[Federal Register Volume 76, Number 43 (Friday, March 4, 2011)]
[Proposed Rules]
[Pages 11983-11985]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2011-4909]


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ENVIRONMENTAL PROTECTION AGENCY

40 CFR Part 52

[EPA-R03-OAR-2011-0063; FRL-9275-6]


Approval and Promulgation of Air Quality Implementation Plans; 
Pennsylvania; Adoption of Control Techniques Guidelines for Paper, 
Film, and Foil Surface Coating Processes

AGENCY: Environmental Protection Agency (EPA).

ACTION: Proposed rule.

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SUMMARY: EPA is proposing to approve a State Implementation Plan (SIP) 
revision submitted by the Commonwealth of Pennsylvania (Pennsylvania). 
This SIP revision includes amendments to Chapter 121--General 
Provisions and Chapter 129--Standards for Sources of Title 25 of the 
Pennsylvania Code. Pennsylvania's SIP revision meets the requirement to 
adopt Reasonably Available Control Technology (RACT) for sources 
covered by EPA's Control Techniques Guidelines (CTG) standards for 
paper, film, and foil surface coating processes, and will help 
Pennsylvania attain and maintain the National Ambient Air Quality 
Standard (NAAQS) for ozone. This action is being taken under the Clean 
Air Act (CAA).

DATES: Written comments must be received on or before April 4, 2011.

ADDRESSES: Submit your comments, identified by Docket ID Number EPA-
R03-OAR-2011-0063 by one of the following methods:
    A. http://www.regulations.gov. Follow the on-line instructions for 
submitting comments.
    B. E-mail: [email protected].
    C. Mail: EPA-R03-OAR-2011-0063, Cristina Fernandez, Associate 
Director, Office of Air Program Planning, Mailcode 3AP30, 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. EPA-R03-OAR-
2011-0063. EPA's policy is that all comments received will be included 
in the public docket without change, and may be made available online 
at http://www.regulations.gov, 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 http://www.regulations.gov or e-mail. The http://www.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 http://www.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.
    Docket: All documents in the electronic docket are listed in the 
http://www.regulations.gov index. Although listed in the index, some 
information is not publicly available, i.e., CBI or other information 
whose disclosure is restricted by statute. Certain other material, such 
as copyrighted material, is not placed on the Internet and will be 
publicly available only in hard copy form. Publicly available docket 
materials are available either electronically in http://www.regulations.gov or in hard copy during normal business hours at the 
Air Protection Division, U.S. Environmental Protection Agency, Region 
III, 1650 Arch Street, Philadelphia, Pennsylvania 19103. Copies of the 
State submittal are available at the Pennsylvania Department of 
Environmental Protection, Bureau of Air Quality Control, P.O. Box 8468, 
400 Market Street, Harrisburg, Pennsylvania 17105.

FOR FURTHER INFORMATION CONTACT: Irene Shandruk, (215) 814-2166, or by 
e-mail at [email protected].

SUPPLEMENTARY INFORMATION: On January 4, 2011, the Pennsylvania 
Department of Environmental Protection (PADEP) submitted to EPA a SIP 
revision concerning the adoption of the CTG for paper, film, and foil 
surface coating processes.

I. Background

    Section 172(c)(1) of the CAA provides that SIPs for nonattainment 
areas must include reasonably available control measures (RACM), 
including RACT for sources of emissions. Section 182(b)(2)(A) provides 
that for certain nonattainment areas, states must revise their SIPs to 
include RACT for sources of volatile organic compounds (VOC) emissions 
covered by a CTG document issued after November 15, 1990 and prior to 
the area's date of attainment.
    CTGs are intended to provide state and local air pollution control 
authorities information that should assist them in determining RACT for 
VOCs from various sources, including paper, film, and foil coatings. In 
developing these CTGs, EPA, among other things, evaluated the sources 
of VOC emissions from this industry and the available control 
approaches for addressing these emissions, including the costs of such 
approaches. Based on available information and data, EPA provided 
recommendations for RACT for VOCs from paper, film, and foil coatings.
    In December 1977, EPA published a CTG for surface coating of paper 
(EPA-450/2-77-008). This CTG discusses the nature of VOC emissions from 
this industry, available control technologies for addressing such 
emissions, the costs of available control options, and other items. EPA 
promulgated national standards of performance for new stationary 
sources (NSPS) for the paper, foil, and film industry and EPA also 
published a national emission standard

[[Page 11984]]

for hazardous air pollutants (NESHAP) for this industry.
    In 2006 and 2007, after conducting a review of currently existing 
state and local VOC emission reduction approaches for the paper, foil, 
and film industry, reviewing the 1977/1978 CTG and the NESHAP for this 
industry, and taking into account the information that has become 
available since then, EPA developed a new CTG surface coating for 
paper, entitled Control Techniques Guidelines for Paper, Film, and Foil 
Coatings (Publication No. EPA 453/R-07-003; September 2007).
    The paper, film, and foil product category includes coatings that 
are applied to paper, film, or foil surfaces in the manufacturing of 
several major product types for the following industry sectors: 
Pressure sensitive tape and labels; photographic film; industrial and 
decorative laminates; abrasive products; and flexible packaging. The 
category also includes coatings applied during miscellaneous coating 
operations for several products including: Corrugated and solid fiber 
boxes; die-cut paper paperboard and cardboard; converted paper and 
paperboard not elsewhere classified; folding paperboard boxes, 
including sanitary boxes; manifold business forms and related products; 
plastic asceptic packaging; and carbon paper and inked ribbons. VOC 
emissions from paper, film, or foil surface coating processes result 
from the evaporation of the components of the coatings and cleaning 
materials.

II. Summary of SIP Revision

    On January 4, 2011, PADEP submitted to EPA a SIP revision 
concerning the adoption of the EPA paper, film, and foil surface 
coating processes. EPA develops CTGs as guidance on control 
requirements for source categories. States can follow the CTGs or adopt 
more restrictive standards. Pennsylvania has adopted EPA's CTG 
standards for paper, film, and foil surface coating processes. These 
regulations are in Chapter 121--General Provisions, and in Chapter 
129--Standards for Sources, in Title 25 of the Pennsylvania Code. 
Specifically, this revision amends the existing regulations at sections 
121.1, 129.51 and 129.52 and adds new section 129.52b. Several 
definitions were amended or added in section 121.1 and section 129.52 
was amended to extend coverage to paper, film, and foil surface coating 
processes. New section 129.52b includes VOC emission limits, work 
practices, and recordkeeping and reporting requirements, all of which 
are consistent with EPA's CTG for paper, film, and foil surface coating 
processes. The requirements in section 129.52b supersede the 
requirements in 129.52 relating to control of VOC emissions from paper, 
film, and foil surface coating processes. The emission limits of VOCs 
for paper, film, and foil surface coatings are shown in Table 1. These 
emission limits apply if potential VOC emissions from a single line, 
prior to control, are 25 tons per year (tpy) or more.

                     Table 1--Recommended Emission Limits for Paper, Film, and Foil Coatings
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                                                                                   RACT limits
                                                               -------------------------------------------------
                                                                                          Paper, film, and foil
                             Units                                 Pressure sensitive      surface coating (not
                                                                tape and label  surface     including pressure
                                                                        coating             sensitive tape and
                                                                                                  label)
----------------------------------------------------------------------------------------------------------------
kg VOC/kg solids (lb VOC/lb solids)...........................                     0.20                     0.40
kg VOC/kg coating (lb VOC/lb coating).........................                    0.067                     0.08
----------------------------------------------------------------------------------------------------------------

    Additionally, VOC emission limits for paper coatings only and the 
associated applicability criteria that were in section 129.52(a)(2) 
were added to section 129.52(b) in order to carry forward previously 
regulated paper coating sources and to eliminate the potential for 
backsliding. These VOC emission limits apply only to paper coatings if 
actual VOC emissions have exceeded 3 pounds per hour, 15 pounds per day 
or 2.7 tpy in any year since January 1, 1987. The emission limits are 
shown in Table 2.

           Table 2--Emission Limits of VOCs for Paper Coating
------------------------------------------------------------------------
                                                             RACT limit
                           Units                              for paper
                                                               coating
------------------------------------------------------------------------
lb VOC/gal coating solids.................................          4.84
kg VOC/l coating solids...................................          0.58
------------------------------------------------------------------------

III. Proposed Action

    EPA is proposing to approve the Pennsylvania's SIP revision for 
adoption of the CTG standards for paper, film, and foil surface coating 
processes. EPA is soliciting public comments on the issues discussed in 
this document. These comments will be considered before taking final 
action.

IV. Statutory and Executive Order Reviews

    Under the CAA, the Administrator is required to approve a SIP 
submission that complies with the provisions of the CAA and applicable 
Federal regulations. 42 U.S.C. 7410(k); 40 CFR 52.02(a). Thus, in 
reviewing SIP submissions, EPA's role is to approve state choices, 
provided that they meet the criteria of the CAA. Accordingly, this 
action merely proposes to approve state law as meeting Federal 
requirements and does not impose additional requirements beyond those 
imposed by state law. For that reason, this proposed action:
     Is not a ``significant regulatory action'' subject to 
review by the Office of Management and Budget under Executive Order 
12866 (58 FR 51735, October 4, 1993);
     Does not impose an information collection burden under the 
provisions of the Paperwork Reduction Act (44 U.S.C. 3501 et seq.);
     Is certified as not having a significant economic impact 
on a substantial number of small entities under the Regulatory 
Flexibility Act (5 U.S.C. 601 et seq.);
     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);
     Does not have Federalism implications as specified in 
Executive Order 13132 (64 FR 43255, August 10, 1999);
     Is not an economically significant regulatory action based 
on health or safety risks subject to Executive Order 13045 (62 FR 
19885, April 23, 1997);
     Is not a significant regulatory action subject to 
Executive Order 13211 (66 FR 28355, May 22, 2001);
     Is not subject to requirements of Section 12(d) of the 
National Technology Transfer and Advancement Act of 1995 (15 U.S.C. 272 
note) because application of those requirements would be inconsistent 
with the CAA; and

[[Page 11985]]

     Does not provide EPA with the discretionary authority to 
address, as appropriate, disproportionate human health or environmental 
effects, using practicable and legally permissible methods, under 
Executive Order 12898 (59 FR 7629, February 16, 1994).
    In addition, this proposed rule concerning Pennsylvania's adoption 
of a CTG for paper, film, and foil surface coating processes does not 
have tribal implications as specified by Executive Order 13175 (65 FR 
67249, November 9, 2000), because the SIP is not approved to apply in 
Indian country located in the state, and EPA notes that it will not 
impose substantial direct costs on tribal governments or preempt tribal 
law.

List of Subjects in 40 CFR Part 52

    Environmental protection, Air pollution control, Incorporation by 
reference, Ozone, Reporting and recordkeeping requirements, Volatile 
organic compounds.

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

    Dated: February 22, 2011.
W.C. Early,
Acting Regional Administrator, Region III.
[FR Doc. 2011-4909 Filed 3-3-11; 8:45 am]
BILLING CODE 6560-50-P