[Federal Register Volume 64, Number 109 (Tuesday, June 8, 1999)]
[Rules and Regulations]
[Pages 30406-30409]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 99-14349]


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ENVIRONMENTAL PROTECTION AGENCY

40 CFR Part 63

[AD-FRL-6355-5]
RIN 2060-AH47


National Emission Standards for Hazardous Air Pollutants 
Emissions: Group IV Polymers and Resins

AGENCY: Environmental Protection Agency (EPA).

ACTION: Direct final rule; extension of compliance.

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SUMMARY: The EPA is taking direct final action to extend certain 
compliance dates contained in National Emissions Standards for 
Hazardous Air Pollutants Emissions: Group IV Polymers and Resins. The 
revisions concern extending the compliance dates specified in 40 CFR 
63.1311(b) and (d)(6) for polyethylene terephthalate (PET) affected 
sources. We are approving these compliance extensions pursuant to Clean 
Air Act section 301(a)(1) to complete reconsideration of equipment 
leaks provisions and any necessary revision to the rule.

DATES: The direct final rule is effective on August 9, 1999, without 
further notice, unless the EPA receives adverse comment by July 8, 
1999. If we receive such comment, we will publish a timely withdrawal 
in the Federal Register informing the public that this rule will not 
take effect.

ADDRESSES: Comments. Comments should be submitted (in duplicate, if 
possible) to: Air and Radiation Docket and Information Center (6102), 
Attention Docket Number A-92-45 (see docket section below), Room M-
1500, U.S. Environmental Protection Agency, 401 M Street, SW, 
Washington, D.C. 20460. The EPA requests that a separate copy also be 
sent to the contact person listed below. Comments and data may also be 
submitted electronically by following the instructions provided in the 
SUPPLEMENTARY INFORMATION section. No Confidential Business Information 
(CBI) should be submitted through electronic mail.
    Docket. The official record for this rulemaking has been 
established under docket number A-92-45 (including comments and data 
submitted electronically as described below). A public version of this 
record, including printed, paper versions of electronic comments and 
data, which does not include any information claimed as CBI, is 
available for inspection between 8 a.m. and 4 p.m., Monday through 
Friday, excluding legal holidays. The official rulemaking record is 
located at the address in the ADDRESSES section. Alternatively, a 
docket index, as well as individual items contained within the docket, 
may be obtained by calling (202) 260-7548 or (202) 260-7549. A 
reasonable fee may be charged for copying.

FOR FURTHER INFORMATION CONTACT: Mr. Keith Barnett, Emission Standards 
Division (MD-13), U.S. Environmental Protection Agency, Office of Air 
Quality Planning and Standards, Research Triangle Park, North Carolina 
27711, telephone number (919) 541-5605.

SUPPLEMENTARY INFORMATION:

Electronic Filing

     Electronic comments and data can be sent directly to the EPA at: 
[email protected]. Electronic comments and data must be 
submitted as an ASCII file avoiding the use of special characters and 
any form of encryption. Comments and data will also be accepted on 
diskette in WordPerfect 5.1 file format or ASCII file format. All 
comments and data in electronic form must be identified by the docket 
number A-92-45. Electronic comments may be filed online at many Federal 
Depository Libraries.

Electronic Availability

    This document is available in docket number A-92-45 or by request 
from the

[[Page 30407]]

EPA's Air and Radiation Docket and Information Center (see ADDRESSES), 
and is available for downloading from the Technology Transfer Network 
(TTN), the EPA's electronic bulletin board system. The TTN provides 
information and technology exchange in various areas of emissions 
control. The service is free, except for the cost of a telephone call. 
Dial (919) 541-5742 for up to a 14,000 baud per second modem. For 
further information, contact the TTN HELP line at (919) 541-5348, from 
1:00 p.m. to 5:00 p.m., Monday through Friday, or access the TTN web 
site at: http://www.epa.gov/ttn/oarpg.

Regulated entities.

    Regulated categories and entities include:

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              Category                  Examples of regulated entities
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Industry............................  Facilities that produce PET.
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This table is not intended to be exhaustive, but rather provides a 
guide for readers regarding entities regulated by the NESHAP addressed 
in this direct final rule. If you have questions regarding the 
applicability of the NESHAP addressed in this direct final rule to a 
particular entity, consult the person listed in the preceding FOR 
FURTHER INFORMATION CONTACT section.
    The 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 Rule'' section of today's Federal 
Register publication, we are publishing a separate document that will 
serve as the proposal to approve the extension of the compliance dates 
specified in 40 CFR 63.1311 (b) and (d)(6) for polyethylene 
terephthalate (PET) affected sources if adverse comments are filed. 
This rule will be effective on August 9, 1999, without further notice, 
unless we receive adverse comment by July 8, 1999. If the EPA receives 
adverse comment, we will publish a timely withdrawal in the Federal 
Register informing the public that the rule will not take effect. We 
will address all public comments in a subsequent final rule based on 
the proposed rule. We will not institute a second comment period on 
this action. Any parties interested in commenting must do so at this 
time.
    The information presented in this preamble is organized as follows:

I. Background and Rationale
II. Authority for Extension of the Compliance Date and 
Reconsideration
III. Impacts
IV. Administrative Requirements

I. Background and Rationale

    On September 12, 1996, the EPA promulgated 40 CFR part 63, subpart 
JJJ--Group IV Polymers and Resins NESHAP (61 FR 48208). 40 CFR 63.1331 
establishes standards for equipment leaks based on the equipment leaks 
provisions from the Hazardous Organic NESHAP (HON), 40 CFR part 63, 
subpart H. The final rule required existing sources to comply with 40 
CFR 63.1331 beginning March 12, 1997 (see 40 CFR 63.1311(d)).
    Subsequent to the promulgation of the Group IV Polymers and Resins 
rule, the EPA promulgated changes to the equipment leak provisions of 
the HON. In addition, a petition was submitted to the EPA requesting 
reconsideration of the equipment leak provisions of the rule affecting 
PET facilities. As a result, the compliance date for 40 CFR 63.1331 for 
existing PET facilities has twice been extended and is currently 
September 12, 1999, which is three years after promulgation of the 
rule. After the last compliance extension, the effective date of the 
Group IV Polymers and Resins rule was changed to February 27, 1998 to 
comply with sections 801 and 802 of the Congressional Review Act.
    The petition was submitted to the EPA by two PET manufacturers 
requesting reconsideration of the technical basis for estimates of 
emissions, emission reduction, and costs for equipment leaks emission 
control at PET affected sources. A second petition was subsequently 
filed by a third PET manufacturer requesting the same relief. The 
petitions summarize new information claimed by the petitioners to 
``confirm the petitioners' comments made during the public comment 
period questioning the validity of the EPA's predictions of the costs 
and cost effectiveness of the leak detection and repair program.'' This 
new information, which the EPA did not have prior to promulgation of 
the final rule, includes data related to emissions and costs. The EPA 
elected to act upon the petitioners' requests to reconsider the 
equipment leak provisions of the 1996 rule, as it applies to PET 
affected sources.
    The EPA's reconsideration has created uncertainty with regard to 
compliance requirements for the PET equipment leak provisions. 
Furthermore, the EPA's reconsideration has led the Agency to publish in 
the ``Proposed Rules'' section of today's Federal Register publication 
a proposal to deny the petitions. The EPA will consider public comments 
on this proposed denial and publish a final action on the petitions. 
Therefore, this period of uncertainty will continue until the EPA 
publishes a final decision on the petitions. For these reasons, the EPA 
is providing an extension of the compliance dates associated with the 
provisions of 40 CFR 63.1331, which regulate equipment leaks for PET 
affected sources, until such time as the EPA is able to take final 
action on the petitions for reconsideration. This extension applies to 
affected sources in the following regulated subcategories: (1) PET 
using a batch dimethyl terephthalate process; (2) PET using a 
continuous dimethyl terephthalate process; (3) PET using a batch 
terephthalic acid process; and (4) PET using a continuous terephthalic 
acid process. It does not affect any other provisions of the Polymers 
and Resins Group IV rule, or any other source categories or 
subcategories.
    By this action the EPA is providing, pursuant to Clean Air Act 
section 301(a)(1), an extension of the compliance dates specified in 40 
CFR 63.1311(b) and (d)(6), only as necessary to complete 
reconsideration and potential revision of the rule. The EPA intends to 
complete its reconsideration of the rule and, following the notice and 
comment procedures of Clean Air Act section 307(d), take appropriate 
action as expeditiously as possible. The EPA does not believe this 
extension will, as a practical matter, impact the overall effectiveness 
of the rule. The EPA will seek to ensure that the affected parties are 
not unduly prejudiced by the EPA's reconsideration. The compliance date 
will be extended until February 27, 2001 which is the latest compliance 
date permitted by section 112 of the Clean Air Act (in the absence of a 
one year extension).

II. Authority for Extension of the Compliance Date and 
Reconsideration

    The extension of the compliance dates specified in 40 CFR 
63.1311(b) and (d)(6) for PET affected sources is being undertaken 
pursuant to Clean Air Act section 301(a)(1). Reconsideration is being 
undertaken pursuant to Clean Air Act section 307(d)(7)(B). 
Reconsideration is appropriate if the grounds for an objection arose 
after the period for public comment and if the objection is of central 
relevance to the outcome of the rule.
    The grounds for reconsideration of this rule arose after the public 
comment period. The emissions and cost data which serve as the bases 
for the summary of data provided by the petitioners became available 
after the close of the comment period on the rule. Therefore, the EPA 
is extending the

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compliance dates specified in 40 CFR 63.1311(b) and (d)(6) for PET 
affected sources in order to allow time to reconsider the provisions of 
40 CFR 63.1331 as these provisions pertain to PET affected sources.

III. Impacts

    The extension of the compliance date for equipment leaks at PET 
affected sources will not affect the eventual annual estimated 
emissions reduction or the control cost for the rule.

IV. Administrative

A. Paperwork Reduction Act

    For the Group IV Polymers and Resins NESHAP, the information 
collection requirements were submitted to the Office of Management and 
Budget (OMB) under the Paperwork Reduction Act. The OMB approved the 
information collection requirements and assigned OMB control number 
2060-0351. An Agency may not conduct or sponsor, and a person is not 
required to respond to, a collection of information unless it displays 
a currently valid OMB control number. The OMB control numbers for the 
EPA's regulations are listed in 40 CFR part 9 and 48 CFR Chapter 15. 
The EPA has amended 40 CFR 9.1, to indicate the information collection 
requirements contained in the Group IV Polymers and Resins NESHAP.
    This action has no impact on the information collection burden 
estimates made previously. Therefore, the ICR has not been revised.

B. Executive Order 12866--Regulatory Planning and Review

    Under Executive Order 12866 (58 FR 51735, October 4, 1993), the EPA 
must determine whether the regulatory action is ``significant'' and 
therefore subject to review by OMB on the basis of the requirements of 
the Executive Order in addition to its normal review requirements. The 
Executive Order defines ``significant regulatory action'' as one that 
is likely to result in 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, or 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.
    Today's action does not fall within any of the four categories 
described above. Instead, the direct final rule will provide an 
extension of the compliance dates specified in 40 CFR 63.1311(b) and 
(d)(6) for PET affected sources. The direct final rule does not add any 
additional control requirements. Therefore, this direct final rule was 
classified ``non-significant'' under Executive Order 12866 and was not 
required to be reviewed by OMB.

C. Regulatory Flexibility

    The EPA has determined that it is not necessary to prepare a 
regulatory flexibility analysis in connection with this final rule. The 
EPA has also determined that this rule will not have a significant 
impact on a substantial number of small entities because the compliance 
extension would not impose any economic burden on any regulated 
entities.

D. Unfunded Mandates Reform Act

    Title II of the Unfunded Mandates Reform Act of 1995 (UMRA), Public 
Law 104-4, establishes requirements for Federal agencies to assess the 
effects of their regulatory actions on State, local and tribal 
governments and the private sector. Under section 202 of the UMRA, the 
EPA generally must prepare a written statement, including a cost-
benefit analysis, for proposed and final rules with ``Federal 
mandates'' that may result in expenditures to State, local and tribal 
governments, in the aggregate, or to the private sector of $100 million 
or more in any one year. Before promulgating an EPA rule for which a 
written statement is needed, section 205 of the UMRA generally requires 
the EPA to identify and consider a reasonable number of regulatory 
alternatives and adopt the least costly, most cost-effective or least 
burdensome alternative that achieves the objects of the rule. The 
provisions of section 205 do not apply when they are inconsistent with 
applicable law. Moreover, section 205 allows the EPA to adopt an 
alternative other than the least costly, most cost-effective or least 
burdensome alternative if the Administrator publishes with the final 
rule an explanation of why that alternative was not adopted. Before the 
EPA establishes any regulatory requirements that may significantly or 
uniquely affect small governments, including tribal governments, it 
must have developed under section 203 of the UMRA a small government 
agency plan. The plan must provide for notifying potentially affected 
small governments, enabling officials of affected small governments to 
have meaningful and timely input in the development of EPA regulatory 
proposals with significant Federal intergovernmental mandates, and 
informing, educating, and advising small governments on compliance with 
the regulatory requirements.
    Today's direct final rule contains no Federal mandates (under the 
regulatory provisions of Title II of the UMRA) for State, local or 
tribal governments or the private sector. Instead, this rule provides 
additional time to comply with some requirements of the Group IV 
Polymers and Resins NESHAP. In any event, the EPA has determined that 
this rule does not contain a Federal mandate that may result in 
expenditure of $100 million or more for State, local and tribal 
governments, in the aggregate, or the private sector, in any one year. 
Thus today's direct final rule is not subject to the requirements of 
sections 202 and 205 of the UMRA.
    We also have determined that this rule contains no regulatory 
requirements that might significantly or uniquely affect small 
governments. This rule does not impose any enforceable duties on small 
governments, i.e., they own or operate no sources subject to this rule 
and therefore are not required to purchase control systems to meet the 
requirements of this rule.

E. Executive Order 13045--Protection of Children From Environmental 
Health Risks and Safety Risks

    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 (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 Agency must evaluate the 
environmental health or safety aspects 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.
    The EPA interprets E.O. 13045 as applying only to those regulatory 
actions that are based on health or safety risks, such that the 
analysis required under section 5-501 of the Order has the potential to 
influence the regulation. This final action is not subject to the 
Executive Order 13045 because it is not an economically significant 
regulatory action as defined in E.O. 12866, and it

[[Page 30409]]

is based on technology performance and not on health or safety risks.

F. National Technology Transfer and Advancement Act

    Section 12 of the National Technology Transfer and Advancement Act 
of 1995 (NTTAA) requires federal agencies to evaluate existing 
technical standards when developing new regulations. To comply with the 
NTTAA, the EPA must consider and use ``voluntary consensus standards'' 
(VCS) if available and applicable when developing programs and policies 
unless doing so would be inconsistent with applicable law or otherwise 
impractical.
    The EPA believes that the use of VCS in this direct final rule is 
impractical. The compliance extension of the Group IV Polymers and 
Resins NESHAP is merely a procedural action that does not require 
sources to take substantive steps that lend themselves to VCS.

G. 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 the EPA consults with those 
governments. If the EPA complies by consulting, Executive Order 12875 
requires the EPA to provide to the Office of Management and Budget 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 direct final rule does not create a mandate on State, local 
or tribal governments. The direct final rule does not impose any 
enforceable duties on these entities. Rather, the rule extends certain 
regulatory requirements. Accordingly, the requirements of section 1(a) 
of Executive Order 12875 do not apply to this rule.

H. 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 Office of 
Management and Budget, 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 direct final rule does not significantly or uniquely affect 
the communities of Indian tribal governments. This direct final rule 
imposes no enforceable duties on these entities. Rather, the rule 
extends certain regulatory requirements. Accordingly, the requirements 
of section 3(b) of Executive Order 13084 do not apply to this rule.

I. Submission to Congress and the Comptroller General

    The Congressional Review Act, 5 U.S.C. 801 et seq., as amended 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. The 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. 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 direct final rule will be effective on August 9, 
1999.

List of Subjects in 40 CFR Part 63

    Environmental protection, Air pollution control, Hazardous 
substances, Reporting and recordkeeping requirements.

    Dated: May 28, 1999.
Carol M. Browner,
Administrator.
    For the reasons set out in the preamble, part 63 of Chapter I of 
title 40 of the Code of Federal Regulations is amended as follows:

PART 63--NATIONAL EMISSION STANDARDS FOR HAZARDOUS AIR POLLUTANTS 
FOR SOURCE CATEGORIES

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

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

Subpart JJJ--National Emission Standards for Hazardous Air 
Pollutant Emissions: Group IV Polymers and Resins

    2. Section 63.1311 is amended by revising paragraphs (b) and (d)(6) 
to read as follows:


Sec. 63.1311  Compliance schedule and relationship to existing 
applicable rules.

* * * * *
    (b) New affected sources that commence construction or 
reconstruction after March 29, 1995 shall be in compliance with this 
subpart upon initial start-up or September 12, 1996, whichever is 
later, as provided in Sec. 63.6(b), except that new affected sources 
whose primary product, as determined using the procedures specified in 
Sec. 63.1310(f), is PET shall be in compliance with Sec. 63.1331 upon 
initial start-up or February 27, 2001, whichever is later.
* * * * *
    (d) * * *
    (6) Notwithstanding paragraphs (d)(1) through (d)(4) of this 
section, existing affected sources whose primary product, as determined 
using the procedures specified in Sec. 63.1310(f), is PET shall be in 
compliance with Sec. 63.1331 no later than February 27, 2001.
* * * * *
[FR Doc. 99-14349 Filed 6-7-99; 8:45 am]
BILLING CODE 6560-50-U