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

Note: EPA no longer updates this information, but it may be useful as a reference or resource.

[Federal Register: June 9, 2004 (Volume 69, Number 111)]
[Rules and Regulations]
[Page 32277-32281]
From the Federal Register Online via GPO Access [wais.access.gpo.gov]
[DOCID:fr09jn04-18]

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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: morris.makeba@epa.gov.
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 wentworth.ellen@epa.gov.

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 (59 FR 22951, 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.

? 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 VV--Virginia

? 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
----------------------------------------------------------------------------------------------------------------
State Explanation
State citation (9 VAC 5) Title/subject effective EPA approval date (former SIP
date citation)
----------------------------------------------------------------------------------------------------------------

* * * * * * *
----------------------------------
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].
----------------------------------
* * * * * * *
----------------------------------------------------------------------------------------------------------------

[FR Doc. 04-12926 Filed 6-8-04; 8:45 am]
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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

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