96-3237. Approval and Promulgation of Air Quality Implementation Plans; Massachusetts; Automotive Refinishing  

  • [Federal Register Volume 61, Number 31 (Wednesday, February 14, 1996)]
    [Rules and Regulations]
    [Pages 5696-5699]
    From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
    [FR Doc No: 96-3237]
    
    
    
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    ENVIRONMENTAL PROTECTION AGENCY
    40 CFR Part 52
    
    [MA42-1-7174a; A-1-FRL-5329-5]
    
    
    Approval and Promulgation of Air Quality Implementation Plans; 
    Massachusetts; Automotive Refinishing
    
    AGENCY: Environmental Protection Agency (EPA).
    
    
    [[Page 5697]]
    
    ACTION: Direct final rule.
    
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    SUMMARY: EPA is approving a State Implementation Plan (SIP) revision 
    submitted by the Commonwealth of Massachusetts. This revision 
    establishes VOC emission standards for automotive refinishing. The 
    intended effect of this action is to approve a revision to 
    Massachusetts SIP which reduces VOC emissions from automotive 
    refinishing. This action is being taken in accordance with Section 
    183(e) of the Clean Air Act.
    
    DATES: This action is effective April 15, 1996, unless notice is 
    received by March 15, 1996 that adverse or critical comments will be 
    submitted. If the effective date is delayed, timely notice will be 
    published in the Federal Register.
    
    ADDRESSES: Comments may be mailed to Susan Studlien, Deputy, Office of 
    Ecosystems Protection, U.S. Environmental Protection Agency, Region I, 
    JFK Federal Building, Boston, MA 02203. Copies of the documents 
    relevant to this action are available for public inspection during 
    normal business hours, by appointment at the Office of Ecosystems 
    Protection, U.S. Environmental Protection Agency, Region I, One 
    Congress Street, 10th floor, Boston, MA; Air and Radiation Docket and 
    Information Center, U.S. Environmental Protection Agency, 401 M Street 
    SW. (LE-131), Washington, D.C. 20460; and the Division of Air Quality 
    Control, Department of Environmental Protection, One Winter Street, 8th 
    Floor, Boston, MA 02108.
    
    FOR FURTHER INFORMATION CONTACT: Jeanne Cosgrove, (617) 565-3246.
    
    SUPPLEMENTARY INFORMATION: Under section 183(a) of the Clean Air Act, 
    EPA was required to issue a control techniques guideline (CTG) for the 
    category of autobody refinishing. However, EPA has instead issued 
    guidance for this category in the form of an Alternative Control 
    Technology (ACT) guideline. While the ACT does not define reasonably 
    available control technology (RACT) standards for autobody refinishing, 
    it does include three control options with estimates of costs and 
    emission reductions for each option. In addition to the section 183(a) 
    requirements, Section 183(e) of the CAA, requires EPA to issue national 
    VOC emissions standards for consumer and commercial products, which 
    include automotive refinishing coatings. EPA expects to propose the 
    national rule for automotive refinishing coatings in the fall of 1995. 
    Massachusetts decided to adopt rules for autobody refinishing in 
    advance of a federal rule, to get credit for reductions from this 
    category in its 15% plan.
        Massachusetts was required to submit, by November 15, 1993, a SIP 
    revision for Reasonable Further Progress (RFP) for 15% reduction of 
    VOCs as necessary for moderate areas and above. The entire state of 
    Massachusetts is classified as serious nonattainment area, therefore 
    the 15% plan must cover the entire state.
        On August 18, 1994, the Massachusetts DEP submitted to EPA for 
    comment, proposed amendments to the SIP to address the RFP requirements 
    including new air pollution control regulations 7.18(28) ``autobody 
    refinishing.'' Massachusetts held public hearings during May 6-13, 1994 
    and on September 22 and 23, 1994 throughout the State for its proposed 
    automotive refinishing rule. EPA submitted written comments regarding 
    the proposed regulations on September 22, 1994. The rule was effective 
    on December 16, 1994, upon publication in the Massachusetts Register.
        On January 9, 1995, the Commonwealth of Massachusetts submitted a 
    formal revision to its State Implementation Plan (SIP). The SIP 
    revision amends 310 CMR 7.00 by adding Section 310 CMR 7.18(28) 
    autobody refinishing.
        The adopted regulation 310 CMR 7.18(28), ``autobody refinishing,'' 
    regulates the VOC content of automotive refinishing products. The 
    regulation applies to any person who sells, offers for sale, or 
    manufactures autobody refinishing coatings for sale within 
    Massachusetts or who owns, leases, operates or controls an automotive 
    refinishing facility.
    
    Summary of SIP Revision
    
        The adopted air pollution control regulation , 310 CMR 7.18(28) 
    ``autobody refinishing'', establishes Reasonably Available Control 
    Technology for all automobile refinishing facilities. Automotive 
    Refinishing facility'' is defined by Massachusetts as ``any facility at 
    which the interior or exterior bodies of automobiles, motorcycles, 
    light/medium-duty trucks, or vans are painted. Refinishing of 
    aftermarket vehicles and new vehicles damaged in transit before their 
    initial sale are included under this definition.'' The rule established 
    the following RACT emission limits, expressed as pounds of VOC per 
    gallon of coating and grams of VOC per liter of coating, excluding 
    water and exempt solvents:
    
    Table 7.18(28)(c).--RACT Emission Limitations for Automotive Refinishing
                                    Products                                
    ------------------------------------------------------------------------
                                                             VOC Emission   
                                                              limitation    
                        Coating type                     -------------------
                                                           grams/           
                                                            liter    lbs/gal
    ------------------------------------------------------------------------
    Pretreatment Wash Primer............................       780       6.5
    Primer/primer Surfacer..............................       575       4.8
    Primer Sealer.......................................       550       4.6
    Topcoat.............................................       600       5.0
    Three or Four-Stage Topcoat.........................       620       5.2
    Specialty Coating...................................       840       7.0
    ------------------------------------------------------------------------
    
        The rule gives facilities the option of complying through the use 
    of compliant coatings, or by installing emission control systems that 
    result in VOC emissions less than or equal to the limits specified in 
    Table 7.18(28)(c). The rule also contains the following provisions:
        1. Good housekeeping Requirements to minimize solvent evaporation);
        2. Equipment Requirements that specify the use of High volume Low 
    Pressure spray equipment and require spray gun cleaning and solvent 
    storage in a manner that limit solvent evaporation; and
        3. Training, recordkeeping, reporting, biennial compliance 
    certification requirements.
        Facilities are required to comply with the regulation by August 1, 
    1995.
        EPA's evaluation is detailed in a memorandum, entitled ``Technical 
    Support Document for Massachusetts Air Pollution Control Regulation, 
    310 CMR 7.18(28), Automotive Refinishing.''
        EPA is publishing this action without prior proposal because the 
    Agency views this as a noncontroversial amendment and anticipates no 
    adverse comments. However, in a separate document in this Federal 
    Register publication, EPA is proposing to approve the SIP revision 
    should adverse or critical comments be filed. This action will be 
    effective April 15, 1996 unless adverse or critical comments are 
    received by March 15, 1996.
        If the EPA receives such comments, this action will be withdrawn 
    before the effective date by simultaneously publishing a subsequent 
    notice that will withdraw the final action. All public comments 
    received will then be addressed in a subsequent final rule based on 
    this action serving as a proposed rule. The EPA will not institute a 
    second comment period on this action. Any parties interested in 
    commenting on this action should do so at this time. If no such 
    comments are 
    
    [[Page 5698]]
    received, the public is advised that this action will be effective on 
    April 15, 1996.
    
    Final Action
    
        EPA is approving Section 310 CMR 7.18(28) Automotive refinishing.
        Under the Regulatory Flexibility Act, 5 U.S.C. 600 et seq., EPA 
    must prepare a regulatory flexibility analysis assessing the impact of 
    any proposed or final rule on small entities. 5 U.S.C. 603 and 604. 
    Alternatively, EPA may certify that the rule will not have a 
    significant impact on a substantial number of small entities. Small 
    entities include small businesses, small not-for-profit enterprises, 
    and government entities with jurisdiction over populations of less than 
    50,000.
        Under Sections 202, 203, and 205 of the Unfunded Mandates Reform 
    Act of 1995 (``Unfunded Mandates Act''), signed into law on March 22, 
    1995, EPA must undertake various actions in association with proposed 
    or final rules that include a Federal mandate that may result in 
    estimated costs of $100 million or more to the private sector, or to 
    State, local, or tribal governments in the aggregate.
        Through submission of this state implementation plan or plan 
    revision, the State and any affected local or tribal governments have 
    elected to adopt the program provided for under Section 183(e) of the 
    Clean Air Act. These rules may bind State, local and tribal governments 
    to perform certain actions and also require the private sector to 
    perform certain duties. To the extent that the rules being approved by 
    this action will impose no new requirements; such sources are already 
    subject to these regulations under State law. Accordingly, no 
    additional costs to State, local, or tribal governments, or to the 
    private sector, result from this action. EPA has also determined that 
    this final action does not include a mandate that may result in 
    estimated costs of $100 million or more to State, local, or tribal 
    governments in the aggregate or to the private sector.
        This action has been classified as a Table 3 action by the Regional 
    Administrator under the procedures published in the Federal Register on 
    January 19, 1989 (54 FR 2214-2225), as revised by an October 4, 1993, 
    memorandum from Michael H. Shapiro, Acting Assistant Administrator for 
    Air and Radiation. A future document will inform the general public of 
    these tables.
        The OMB has exempted this action from review under Executive Order 
    12866.
        SIP approvals under section 110 and subchapter I, Part D of the CAA 
    do not create any new requirements, but simply approve requirements 
    that the State is already imposing. Therefore, because the federal SIP-
    approval does not impose any new requirements, I certify that it does 
    not have a significant impact on any small entities affected. Moreover, 
    due to the nature of the federal-state relationship under the CAA, 
    preparation of a regulatory flexibility analysis would constitute 
    federal inquiry into the economic reasonableness of state action. The 
    CAA forbids EPA to base its actions concerning SIPs on such grounds. 
    Union Electric Co. v. U.S. E.P.A., 427 U.S. 246, 256-66 (S.Ct. 1976); 
    42 U.S.C. 7410 (a)(2).
        On January 6, 1989, the Office of Management and Budget (OMB) 
    waived Table 2 and Table 3 revisions (54 FR 2222) from the requirements 
    of Section 3 of Executive Order 12291 for a period of two years. EPA 
    has submitted a request for a permanent waiver for Table 2 and Table 3 
    SIP revisions. OMB has agreed to continue the temporary waiver until 
    such time as it rules on EPA's request.
        Nothing in this action should be construed as permitting or 
    allowing or establishing a precedent for any future request for 
    revision to any State implementation plan. Each request for revision to 
    the State implementation plan shall be considered separately in light 
    of specific technical, economic, and environmental factors and in 
    relation to relevant statutory and regulatory requirements.
        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 April 15, 1996. 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, Intergovernmental relations, Ozone, 
    Reporting and recordkeeping requirements.
    
        Note: Incorporation by reference of the State Implementation 
    Plan for the Commonwealth of Massachusetts was approved by the 
    Director of the Federal Register on July 1, 1982.
    
        Dated: October 6, 1995.
    John P. DeVillars,
    Regional Administrator, EPA New England.
    
        Part 52 of chapter I, title 40 of the Code of Federal Regulations 
    is amended as follows:
    
    PART 52--[AMENDED]
    
        1. The authority citation for part 52 continues to read as follows:
    
        Authority: 42 U.S.C. 7401-7671q.
    
    Subpart W--Massachusetts
    
        2. Section 52.1120 is amended by adding paragraph (c)(109) to read 
    as follows:
    
    
    Sec. 52.1120  Identification of plan.
    
    * * * * *
        (c) * * *
        (109) Revisions to the State Implementation Plan submitted by the 
    Massachusetts Department of Environmental Protection on January 9, 
    1995.
        (i) Incorporation by reference.
        (A) Letter from the Massachusetts Department of Environmental 
    Protection, dated January 9, 1995, submitting a revision to the 
    Massachusetts State Implementation Plan.
        (B) The following portions of the Rules Governing the Control of 
    Air Pollution for the Commonwealth of Massachusetts effective on 
    December 16, 1994: 310 Code of Massachusetts Regulations Section 
    7.18(28) Automotive Refinishing.
        3. In Sec. 52.1167 Table 52.1167 is amended by adding and new entry 
    (28) to the end of entry 310 CMR 718 to read as follows:
    
    
    Sec. 52.1167  EPA--approved Massachusetts State regulations.
    
    * * * * * 
    
    [[Page 5699]]
    
    
                                                     Table 52.1167.--EPA--Approved Massachusetts Regulations                                                
    --------------------------------------------------------------------------------------------------------------------------------------------------------
                                                                   Date                                                                                     
              State citation                Title/subject       submitted    Date approved by EPA     Federal Register     52.1120(c)   Comments/unapproved 
                                                                 by State                                 citation                            sections      
    --------------------------------------------------------------------------------------------------------------------------------------------------------
                                                                                                                                                            
                       *                  *                  *                  *                  *                  *                  *                  
    310 CMR 7.18(28)..................  Automotive                01/09/95  February 14, 1996....  Supply Page..........          109  Reasonably Available 
                                         Refinishing.                                                                                   Control Technology  
                                                                                                                                        Requirement (RACT)  
                                                                                                                                        for automotive      
                                                                                                                                        refinishing.        
                                                                                                                                                            
                       *                  *                  *                  *                  *                  *                  *                  
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    [FR Doc. 96-3237 Filed 2-13-96; 8:45 am]
    BILLING CODE 6560-50-P
    
    

Document Information

Effective Date:
4/15/1996
Published:
02/14/1996
Department:
Environmental Protection Agency
Entry Type:
Rule
Action:
Direct final rule.
Document Number:
96-3237
Dates:
This action is effective April 15, 1996, unless notice is received by March 15, 1996 that adverse or critical comments will be submitted. If the effective date is delayed, timely notice will be published in the Federal Register.
Pages:
5696-5699 (4 pages)
Docket Numbers:
MA42-1-7174a, A-1-FRL-5329-5
PDF File:
96-3237.pdf
CFR: (2)
40 CFR 52.1120
40 CFR 52.1167