[Federal Register Volume 69, Number 111 (Wednesday, June 9, 2004)]
[Rules and Regulations]
[Pages 32277-32281]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 04-12926]


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ENVIRONMENTAL PROTECTION AGENCY

40 CFR Part 52

[VA149-5076a; FRL-7671-6]


Approval and Promulgation of Air Quality Implementation Plans; 
Commonwealth of Virginia; VOC Emission Standards for Solvent Metal 
Cleaning Operations in the Metropolitan Washington, DC Ozone 
Nonattainment Area

AGENCY: Environmental Protection Agency (EPA).

ACTION: Direct final rule.

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SUMMARY: EPA is taking direct final action to approve a revision to the 
Commonwealth of Virginia State Implementation Plan (SIP). The revision 
establishes regulations for the control of volatile organic compound 
(VOC) emissions from solvent metal cleaning operations in the Northern 
Virginia portion of the Metropolitan Washington, D.C. Ozone 
Nonattainment Area (Northern Virginia Area). EPA is approving this 
revision to the Commonwealth of Virginia SIP in accordance with the 
requirements of the Clean Air Act (CAA).

DATES: This rule is effective on August 9, 2004 without further notice, 
unless EPA receives adverse written comment by July 9, 2004. 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: Submit your comments, identified by VA149-5076 by one of the 
following methods:
    A. Federal eRulemaking Portal: http://www.regulations.gov. Follow 
the on-line instructions for submitting comments.
    B. E-mail: [email protected].
    C. Mail: Makeba Morris, Chief, Air Quality Planning Branch Name, 
Mailcode 3AP21, U.S. Environmental Protection Agency, Region III, 1650 
Arch Street, Philadelphia, Pennsylvania 19103.
    D. Hand Delivery: At the previously-listed EPA Region III address. 
Such deliveries are only accepted during the Docket's normal hours of 
operation, and special arrangements should be made for deliveries of 
boxed information.
    Instructions: Direct your comments to Docket ID No. VA149-5076. 
EPA's policy is that all comments received will be included in the 
public docket without change, including any personal information 
provided, unless the comment includes information claimed to be 
Confidential Business Information (CBI) or other information whose 
disclosure is restricted by statute. Do not submit information that you 
consider to be CBI or otherwise protected through regulations.gov or e-
mail. The Federal regulations.gov Web site is an ``anonymous access'' 
system, which means EPA will not know your identity or contact 
information unless you provide it in the body of your comment. If you 
send an e-mail comment directly to EPA without going through 
regulations.gov, your e-mail address will be automatically captured and 
included as part of the comment that is placed in the public docket and 
made available on the Internet. If you submit an electronic comment, 
EPA recommends that you include your name and other contact information 
in the body of your comment and with any disk or CD-ROM you submit. If 
EPA cannot read your comment due to technical difficulties and cannot 
contact you for clarification, EPA may not be able to consider your 
comment. Electronic files should avoid the use of special characters, 
any form of encryption, and be free of any defects or viruses.

[[Page 32278]]

    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, and the Virginia Department 
of Environmental Quality, 629 East Main Street, Richmond, Virginia 
23219.

FOR FURTHER INFORMATION CONTACT: Ellen Wentworth, (215) 814-2034, or by 
e-mail at [email protected].

SUPPLEMENTARY INFORMATION: 

I. Background

    On January 24, 2003 (68 FR 3410), EPA issued a determination that 
the Metropolitan Washington, DC ozone nonattainment area (DC Area) 
failed to attain the ozone standard by the statutory date of November 
15, 1999, and reclassified the area from ``serious'' to ``severe'' for 
one-hour ozone. As a severe nonattainment area, the DC Area must now 
meet the requirements of section 182(d) of the CAA, and attain the one-
hour ozone standard by November 15, 2005. As a result of the 
reclassification to severe nonattainment, the States that comprise the 
DC Area (Maryland, Virginia, and the District of Columbia) must 
implement additional control measures and submit SIP revisions for 
post-1999 Rate of Progress Plans, revisions to Contingency Plans, and 
revisions to the Attainment Demonstration.
    As part of Virginia's strategy to meet its portion of emission 
reductions keyed to the post-1999 ROPs, the 2005 attainment 
demonstration, and/or the contingency plan, the State adopted new 
measures to control volatile organic compound (VOC) emissions from four 
additional source categories, including a regulation to control 
emissions from solvent metal cleaning operations.
    On February 23, 2004, the Commonwealth of Virginia submitted a 
formal revision to its SIP. The SIP revision consists of four new 
regulations to 9 VAC 5, Chapter 40, amendments to one existing article 
of 9 VAC 5, Chapter 40, and amendments to one article of 9 VAC Chapter 
20.
    The new regulations are: (1) 9 VAC 5 Chapter 40, New Article 42--
``Emission Standards for Portable Fuel Container Spillage in the 
Northern Virginia Volatile Organic Compound Emissions Control Area'' 
(``Rule 4-42'')--(9 VAC 5-40-5700 to 9 VAC 5-40-5770).
    (2) 9 VAC 5, Chapter 40, New Article 47--``Emission Standards for 
Solvent Metal Cleaning Operations in the Northern Virginia Volatile 
Organic Compound Emissions Control Area'' (``Rule 4-47'')--(9 VAC 5-40-
6820 to 9 VAC 5-40-6970).
    (3) 9 VAC 5, Chapter 40, New Article 48--``Emission Standards for 
Mobile Equipment Repair and Refinishing Operations in the Northern 
Virginia Volatile Organic Compound Emission Control Area'' (``Rule 4-
48'')--(9 VAC 5-40-6970 to 9 VAC 5-40-7110).
    (4) 9 VAC 5, Chapter 40--New Article 49--``Emission Standards for 
Architectural and Industrial Maintenance Coatings in the Northern 
Virginia Volatile Organic Compound Emissions Control Area'' (``Rule 4-
49'')--(9 VAC 5-40-7120 to 9 VAC 5-40-7230).
    The February 23, 2004, submittal also included amendments to 9 VAC 
5-20-21, ``Documents incorporated by reference,'' to incorporate by 
reference additional test methods and procedures needed for Rule 4-42 
or Rule 4-49, and, also amendments to section 9 VAC 5-40-3260 of 
Article 24, ``Emission Standards for Solvent Metal Cleaning Operations 
Using Non-Halogenated Solvents'' (``Rule 4-24'').
    This action concerns only Rule 4-47 of the February 23, 2004 SIP 
revision. The other portions of the February 23, 2004 SIP revision 
submittal will be the subject of separate rulemaking actions, these 
include the new rules: Rule 4-42, Rule 4-48, and, Rule 4-49, the 
amendment to 9 VAC 5-40-3260, and all of the other amendments and 
additions to 9 VAC 5-20-21.

II. Summary of SIP Revision

    The standards and requirements contained in Virginia's solvent 
metal cleaning regulation are based on the Ozone Transport Commission 
(OTC) model rule. The OTC developed control measures into model rules 
for a number of source categories and estimated emission reduction 
benefits from implementing those model rules. On February 23, 2004, the 
Virginia Department of Environmental Quality (VADEQ) submitted a formal 
revision to its SIP. The SIP revision consists of VOC emission 
standards for solvent metal cleaning operations in the Northern 
Virginia counties of Arlington, Fairfax, Loudoun, Prince William, and 
Stafford, and the cities of Alexandria, Fairfax, Falls Church, 
Manassas, and Manassas Park. Affected persons must comply with the 
provisions of this regulation by January 1, 2005.
    The Virginia solvent metal cleaning rule (Emission Standards for 
Solvent Metal Cleaning Operations in the Northern Virginia Volatile 
Organic Compound Emissions Control Area--Rule 4-47, applies to each 
solvent metal cleaning operation, including, but not limited to, cold 
or vapor degreasing at service stations, motor vehicle repair shops, 
automobile dealerships, machine shops, and any other metal refinishing, 
cleaning, repair, or fabrication facility, in the Northern Virginia 
counties of Arlington, Fairfax, Loudoun, Prince William, and Stafford, 
and the cities of Alexandria, Fairfax, Falls Church, Manassas, and 
Manassas Park. Certain provisions of this regulation also apply to 
sellers of solvents for use in cold cleaning machines. The regulation 
establishes hardware and operating requirements, and alternative 
compliance options for vapor cleaning machines used to clean metal 
parts. These requirements are based on the Federal maximum achievable 
control technology (MACT) standards for chlorinated solvent vapor 
degreasers. The requirements implement higher levels of technology than 
required under most existing State requirements, based on EPA's Control 
Technique Guidelines (CTG). The rule also affects cold cleaning 
machines that process metal parts and that contain more than one liter 
of VOCs. The regulation defines applicability, compliance, 
notification, monitoring, recordkeeping, and reporting requirements 
similar to the OTC model rule.

III. General Information Pertaining to SIP Submittals From the 
Commonwealth of Virginia

    In 1995, Virginia adopted legislation that provides, subject to 
certain conditions, for an environmental assessment (audit) 
``privilege'' for voluntary compliance evaluations performed by a 
regulated entity. The legislation further addresses the relative burden 
of proof for parties either asserting the privilege or seeking 
disclosure of documents for which the privilege is claimed. Virginia's 
legislation also provides, subject to certain conditions, for a penalty 
waiver for violations of environmental laws when a regulated entity 
discovers such violations pursuant to a voluntary compliance evaluation 
and voluntarily discloses such violations to the Commonwealth and takes 
prompt and appropriate measures to remedy the violations. Virginia's 
Voluntary Environmental Assessment Privilege Law, Va. Code Sec. 10.1-
1198, provides a privilege that protects from disclosure documents and 
information about the content of those documents that are the product 
of a voluntary environmental assessment. The Privilege Law does not 
extend to documents or information (1) That are generated or developed 
before the commencement of a voluntary environmental assessment; (2) 
that are

[[Page 32279]]

prepared independently of the assessment process; (3) that demonstrate 
a clear, imminent and substantial danger to the public health or 
environment; or (4) that are required by law.
    On January 12, 1998, the Commonwealth of Virginia Office of the 
Attorney General provided a legal opinion that states that the 
Privilege law, Va. Code Sec. 10.1-1198, precludes granting a privilege 
to documents and information ``required by law,'' including documents 
and information ``required by Federal law to maintain program 
delegation, authorization or approval,'' since Virginia must ``enforce 
Federally authorized environmental programs in a manner that is no less 
stringent than their Federal counterparts. * * *'' The opinion 
concludes that ``[r]egarding Sec.  10.1-1198, therefore, documents or 
other information needed for civil or criminal enforcement under one of 
these programs could not be privileged because such documents and 
information are essential to pursuing enforcement in a manner required 
by Federal law to maintain program delegation, authorization or 
approval.''
    Virginia's Immunity law, Va. Code Sec. 10.1-1199, provides that 
``[t]o the extent consistent with requirements imposed by Federal 
law,'' any person making a voluntary disclosure of information to a 
State agency regarding a violation of an environmental statute, 
regulation, permit, or administrative order is granted immunity from 
administrative or civil penalty. The Attorney General's January 12, 
1998 opinion states that the quoted language renders this statute 
inapplicable to enforcement of any Federally authorized programs, since 
``no immunity could be afforded from administrative, civil, or criminal 
penalties because granting such immunity would not be consistent with 
Federal law, which is one of the criteria for immunity.''
    Therefore, EPA has determined that Virginia's Privilege and 
Immunity statutes will not preclude the Commonwealth from enforcing its 
program consistent with the Federal requirements. In any event, because 
EPA has also determined that a State audit privilege and immunity law 
can affect only State enforcement and cannot have any impact on Federal 
enforcement authorities, EPA may at any time invoke its authority under 
the Clean Air Act, including, for example, sections 113, 167, 205, 211 
or 213, to enforce the requirements or prohibitions of the State plan, 
independently of any State enforcement effort. In addition, citizen 
enforcement under section 304 of the Clean Air Act is likewise 
unaffected by this, or any, State audit privilege or immunity law.

IV. Final Action

    EPA is approving a revision to the Commonwealth of Virginia SIP to 
establish regulations for the control of VOC emissions from solvent 
cleaning operations in the Northern Virginia ozone nonattainment area, 
which was submitted on February 23, 2004. Implementation of this VOC 
control measure will strengthen the Virginia SIP, and result in 
emission reductions that will assist the DC area in meeting the 
additional requirements associated with its reclassification as a 
severe nonattainment area for one-hour ozone.
    EPA is publishing this rule without prior proposal because the 
Agency views this as a noncontroversial amendment and anticipates no 
adverse comment [as appropriate, insert language explaining why we 
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 August 9, 
2004, without further notice unless EPA receives adverse comment by 
July 9, 2004. 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. Please note that if 
EPA receives adverse comment on an amendment, paragraph, or section of 
this rule and if that provision may be severed from the remainder of 
the rule, EPA may adopt as final those provisions of the rule that are 
not the subject of an adverse comment.

V. Statutory and Executive Order Reviews

A. General Requirements

    Under Executive Order 12866 (58 FR 51735, October 4, 1993), this 
action is not a ``significant regulatory action'' and therefore is not 
subject to review by the Office of Management and Budget. For this 
reason, this action is also not subject to Executive Order 13211, 
``Actions Concerning Regulations That Significantly Affect Energy 
Supply, Distribution, or Use'' (66 FR 28355, May 22, 2001). This action 
merely approves State law as meeting Federal requirements and imposes 
no additional requirements beyond those imposed by State law. 
Accordingly, the Administrator certifies that this rule will not have a 
significant economic impact on a substantial number of small entities 
under the Regulatory Flexibility Act (5 U.S.C. 601 et seq.). Because 
this rule approves pre-existing requirements under State law and does 
not impose any additional enforceable duty beyond that required by 
State law, it does not contain any unfunded mandate or significantly or 
uniquely affect small governments, as described in the Unfunded 
Mandates Reform Act of 1995 (Pub. L. 104-4). This rule also does not 
have tribal implications because it will not have a substantial direct 
effect on one or more Indian tribes, on the relationship between the 
Federal Government and Indian tribes, or on the distribution of power 
and responsibilities between the Federal Government and Indian tribes, 
as specified by Executive Order 13175 (65 FR 67249, November 9, 2000). 
This action also does not have Federalism implications because it does 
not have substantial direct effects on the States, on the relationship 
between the national government and the States, or on the distribution 
of power and responsibilities among the various levels of government, 
as specified in Executive Order 13132 (64 FR 43255, August 10, 1999). 
This action merely approves a State rule implementing a Federal 
standard, and does not alter the relationship or the distribution of 
power and responsibilities established in the Clean Air Act. This rule 
also is not subject to Executive Order 13045 ``Protection of Children 
from Environmental Health Risks and Safety Risks'' (62 FR 19885, April 
23, 1997), because it is not economically significant.
    In reviewing SIP submissions, EPA's role is to approve State 
choices, provided that they meet the criteria of the Clean Air Act. In 
this context, in the absence of a prior existing requirement for the 
State to use voluntary consensus standards (VCS), EPA has no authority 
to disapprove a SIP submission for failure to use VCS. It would thus be 
inconsistent with applicable law for EPA, when it reviews a SIP 
submission, to use VCS in place of a SIP submission that otherwise 
satisfies the provisions of the Clean Air Act. Thus, the requirements 
of section 12(d) of the National Technology Transfer and Advancement 
Act of 1995 (15 U.S.C. 272 note) do not apply. This rule does not 
impose an information collection burden under the provisions of the

[[Page 32280]]

Paperwork Reduction Act of 1995 (44 U.S.C. 3501 et seq.).

B. 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).

C. 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 August 9, 2004. 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, approving the Commonwealth of Virginia's 
regulation to control emission from solvent metal cleaning operations 
in the Northern Virginia area, 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, Ozone, Reporting 
and recordkeeping requirements, Volatile organic compounds.

    Dated: May 27, 2004.
James W. Newsom,
Acting Regional Administrator, Region III.

0
40 CFR part 52 is amended as follows:

PART 52--[AMENDED]

0
1. The authority citation for part 52 continues to read as follows:

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

Subpart VV--Virginia

0
2. In Sec.  52.2420, the table in paragraph (c) is amended by adding 
entries under chapter 40 to read as follows:


Sec.  52.2420  Identification of plan.

* * * * *
    (c) EPA approved regulations.

                                  EPA-Approved Regulations in the Virginia SIP
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                                                                  State                             Explanation
     State citation (9 VAC 5)            Title/subject          effective     EPA approval date     (former SIP
                                                                  date                               citation)
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                                                  * * * * * * *
----------------------------------
Chapter 40.......................  Existing Stationary Sources
----------------------------------
 
                                                  * * * * * * *
----------------------------------
Part II Emission Standards
----------------------------------
 
                                                  * * * * * * *
----------------------------------
Article 47.......................  Emission Standards for Solvent Metal Cleaning Operations in the Northern
                                    Virginia Volatile Organic Compound Emissions Control Area (Rule 4-47)
----------------------------------
5-40-6820........................  Applicability............      3/24/04   6/09/04 [Insert       ..............
                                                                             Federal Register
                                                                             page citation].
----------------------------------
5-40-6830........................  Definitions..............      3/24/04   6/9/04 [Insert        ..............
                                                                             Federal Register
                                                                             page citation].
----------------------------------
5-40-6840........................  Standards for volatile         3/24/04   6/9/04 [Insert        ..............
                                    organic compounds.                       Federal Register
                                                                             page citation].
----------------------------------
5-40-6850........................  Standard for visible           3/24/04   6/9/04 [Insert
                                    emissions.                               Federal Register
                                                                             page citation].
----------------------------------
5-40-6860........................  Standard for fugitive          3/24/04   6/9/04 [Insert        ..............
                                    dust/emissions.                          Federal Register
                                                                             page citation].
----------------------------------
5-40-6890........................  Compliance...............      3/24/04   6/9/04 [Insert        ..............
                                                                             Federal Register
                                                                             page citation].
----------------------------------
5-40-6900........................  Compliance schedules.....      3/24/04   6/9/04 [Insert        ..............
                                                                             Federal Register
                                                                             page citation].
----------------------------------
5-40-6910........................  Test methods and               3/24/04   6/9/04 [Insert        ..............
                                    procedures.                              Federal Register
                                                                             page citation].
----------------------------------

[[Page 32281]]

 
5-40-6920........................  Monitoring...............      3/24/04   6/9/04 [Insert        ..............
                                                                             Federal Register
                                                                             page citation].
----------------------------------
5-40-6930........................  Notification, records and      3/24/04   6/9/04 [Insert        ..............
                                    reporting.                               Federal Register
                                                                             page citation].
----------------------------------
5-40-6940........................  Registration.............      3/24/04   6/9/04 [Insert        ..............
                                                                             Federal Register
                                                                             page citation].
----------------------------------
5-40-6950........................  Facility and control           3/24/04   6/9/04 [Insert        ..............
                                    equipment maintenance or                 Federal Register
                                    malfunction.                             page citation].
----------------------------------
5-40-6960........................  Permits..................      3/24/04   6/9/04 [Insert        ..............
                                                                             Federal Register
                                                                             page citation].
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                                                  * * * * * * *
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[FR Doc. 04-12926 Filed 6-8-04; 8:45 am]
BILLING CODE 6560-50-P