National Emission Standards for Hazardous Air Pollutants;
Proposed Standards for Hazardous Air Pollutant Emissions From the
Printing and Publishing Industry
[Federal Register: March 14, 1995]
ENVIRONMENTAL PROTECTION AGENCY
40 CFR Part 63
[AD-FRL-5168-8]
RIN 2060-AD95
National Emission Standards for Hazardous Air Pollutants;
Proposed Standards for Hazardous Air Pollutant Emissions From the
Printing and Publishing Industry
AGENCY: Environmental Protection Agency (EPA).
ACTION: Proposed rule and notice of public hearing.
SUMMARY: The proposed standards would reduce emissions of hazardous air
pollutants (HAP) from existing and new printing operations that are
major sources of HAP emissions. A major source is defined in section
112(a) of the Clean Air Act as amended in 1990 (Act) as a source that
emits, or has the potential to emit, considering controls, 10 tons per
year (tpy) or more of any individual HAP or 25 tpy or more of any
combination of HAP. Some of these pollutants are emitted from
publication rotogravure and product and packaging rotogravure and wideweb
flexographic printing. These operations are covered in the proposed
rule. In these printing operations, a variety of HAP are used as
solvents and components in inks and other materials applied by
printers. The HAP emitted by the facilities covered by this proposed
rule include toluene, xylene, ethylbenzene, methanol, methyl ethyl
ketone, methyl isobutyl ketone, ethylene glycol and glycol ethers. All
of these pollutants can cause reversible or irreversible toxic effects
following exposure. The potential toxic effects include eye, nose,
throat and skin irritation; and blood cell, heart, liver and kidney
damage. The proposed rule is estimated to reduce emissions of HAP by
6,700 Mg per year. The emissions reductions achieved by these standards
when combined with the emissions reductions achieved by similar
standards, will achieve the primary goal of the Clean Air Act, which is
to ``enhance the quality of the Nation's air resources so as to promote
the public health and welfare and the productive capacity of its
population.''
The proposed rule implements section 112(d) of the Clean Air Act
Amendments of 1990 (1990 Amendments), which requires the Administrator
to regulate emissions of HAP listed in section 112(d) of the 1990
Amendments. The intent of this rule is to protect the public health by
requiring the maximum degree of reduction in emissions of HAP from new
and existing major sources, taking into consideration the cost of
achieving such emission reduction, any nonair quality, health and
environmental impacts, and energy requirements.
DATES: Comments. Comments must be received on or before May 30, 1995.
Public Hearing. Anyone requesting a public hearing must contact the
EPA no later than April 13, 1995. If a hearing is held, it will take
place on April 28, 1995, beginning at 10 a.m.
ADDRESSES: Comments. Comments should be submitted (in duplicate, if
possible) to: Air and Radiation Docket (Mail Code 6102), Attention:
Docket No. A-92-42, U. S. Environmental Protection Agency, 401 M
Street, SW, Washington, DC 20460. The EPA requests that a separate copy
also be sent to the contact person listed below.
The docket is located at the above address in room M-1500,
Waterside Mall (ground floor), and may be inspected from 8 a.m. to 5:30
p.m., Monday through Friday; telephone number (202) 260-7548, FAX (202)
260-4400. A reasonable fee may be charged for copying docket materials.
Public Hearing. If anyone contacts the EPA requesting a public
hearing by the required date (see DATES), the hearing will be held at
the EPA Office of Administration Auditorium in Research Triangle Park,
North Carolina. Persons interested in speaking at a public hearing
should contact Ms. Kim Teal, Coatings and Consumer Products Group, (MD-
13), U. S. Environmental Protection Agency, Research Triangle Park,
North Carolina 27711, telephone number (919) 541-5580. Persons
interested in attending the hearing should contact Ms. Kim Teal to
verify that it will be held.
Additional Information. For information on accessing the U.S. EPA
Technology Transfer Network electronic bulletin board and obtaining
copies of the Proposed Regulatory Text, Background Information Document
or Economic Impact Analysis, please refer to the SUPPLEMENTARY
INFORMATION section below.
FOR FURTHER INFORMATION CONTACT: For information concerning the
proposed regulation, contact Mr. David Salman at (919) 541-0859,
Coatings and Consumer Products Group, Emission Standards Division (MD-
13), U. S. Environmental Protection Agency, Research Triangle Park,
North Carolina 27711.
SUPPLEMENTARY INFORMATION: Technology Transfer Network. The Technology
Transfer Network (TTN) is one of EPA's electronic bulletin boards. The
TTN provides information and technology exchange in various areas of
air pollution control. The service is free [[Page 13665]] except for
the cost of a phone call. Dial (919) 541-5472 for up to a 14,000 bps
modem. If more information on TTN is needed call the HELP line at (919)
541-5384.
Proposed Regulatory Text. The proposed regulatory text is not
included in this Federal Register notice, but is available in Docket
No. A-92-42, or by written or telephone request from the Air and
Radiation Docket. This notice and the proposed regulatory language are
also available for downloading TTN under Clean Air Act, Recently Signed
Rules.
Background Information Document. The Background Information
Document (BID) for the proposed standards may be obtained from the
docket; the U. S. EPA Library (MD-35), Research Triangle Park, North
Carolina 27711, telephone number (919) 541-2777; or the National
Technical Information Service (NTIS), 5285 Port Royal Road,
Springfield, Virginia 22161, telephone (703) 487-4650. Please refer to
``National Emission Standards for Hazardous Air Pollutants: Printing
and Publishing Industry--Background Information for Proposed
Standards'' (EPA-453/R-95-002a). The BID is also available for
downloading on the TTN.
Economic Impact Analysis. The Economic Impact Analysis (EIA) for
the proposed standards may be obtained from the docket, the U. S. EPA
Library, or the NTIS. Please refer to ``Economic Impact Analysis for
the Printing and Publishing NESHAP'' (EPA-452/D-95-001). The EIA is
also available for downloading on the TTN.
Preamble Outline. The information presented in this preamble is
organized as follows:
I. Background
A. Regulatory Background and Purpose
B. Common Sense Initiative
II. Summary of the Proposed Rule
A. Applicability
B. Proposed Standards for Affected Sources
C. Compliance Dates
D. Compliance Extensions
E. Compliance Testing and Monitoring
F. Reporting and Recordkeeping Requirements.
III. Summary of Environmental, Energy, and Economic Impacts of the
Proposed Rule
A. Emission Reductions
B. Secondary Environmental Impacts
C. Energy Impacts
D. Cost Impacts
E. Economic Impacts
IV. Process Descriptions and Control Technologies
A. Process Descriptions
B. Control Techniques
V. Rationale for the Proposed Rule
A. Regulatory Development Process for NESHAP
B. Determining Maximum Achievable Control Technology (MACT)
``Floors''
C. Selection of Pollutant and Source Category(ies)
D. Selection of Emission Points Covered by the Proposed Rule
E. Selection of the Basis for the Proposed Rule
F. Selection of the Format of the Proposed Rule
G. Selection of Emission Test Methods and Monitoring Requirements
H. Selection of Recordkeeping and Reporting Requirements
I. Selection of Compliance Deadlines
J. Operating Permit Program
K. Pollution Prevention Considerations
L. Solicitation of Comments
VI. Administrative Requirements
A. Public Hearing
B. Docket
C. Executive Order 12866
D. Enhancing the Intergovernmental Partnership Under Executive Order
12875
E. Paperwork Reduction Act
F. Regulatory Flexibility Act
G. Clean Air Act Section 117
H. Regulatory Review
VII. Statutory Authority
I. Background.
The proposed rule addresses facilities which apply ink and other
materials to any substrate, except fabric, using rotogravure or wideweb
flexographic methods. These facilities print products such as
magazines, newspapers, supplements, packaging and wallpaper on
substrates such as paper, plastic, metal foil, and vinyl.
A. Regulatory Background and Purpose.
The Act requires, under section 112, that EPA evaluate and control
emissions of HAP. The control of HAP is to be achieved through
promulgation of emission standards under sections 112(d) and (f), and
of work practice standards under section 112(h) where appropriate, for
categories of sources that emit HAP. Pursuant to section 112(c) of the
Act, EPA published in the Federal Register the initial list of source
categories that emit HAP on July 16, 1992 (57 FR 31576). This list
includes major and area sources of HAP for which the EPA intends to
issue regulations between November 1992 and November 2000.
The Act was created, in part, ``to protect and enhance the quality
of the Nation's air resources so as to promote the public health and
welfare and the productive capacity of its population'' (the Act,
section 101(b)(1)). As such, this proposed regulation would protect the
public health by reducing emissions of HAP from publication rotogravure
and product and packaging rotogravure and wide-web flexographic
printing.
The HAP listed in section 112(b)(1) emitted by printing facilities
that would be covered by this proposed rule include toluene, xylene,
ethylbenzene, methanol, methyl ethyl ketone, methyl isobutyl ketone,
ethylene glycol and glycol ethers. All of these pollutants can cause
reversible or irreversible toxic effects following exposure. The
potential toxic effects include eye, nose, throat and skin irritation;
and blood cell, heart, liver and kidney damage. These adverse health
effects are associated with a wide range of ambient concentrations and
exposure times and are influenced by source-specific characteristics
such as emission rates and local meteorological conditions. Health
impacts are also dependent on multiple factors that affect human
variability such as genetics, age, health status (e.g., the presence of
pre-existing disease) and lifestyle.
The proposed standards will reduce HAP emissions from publication
rotogravure printing facilities by 4,750 Mg/yr (5,220 tpy) from a
baseline level of 17,500 Mg/yr (19,200 tpy). The proposed standards
will reduce HAP emissions from product and packaging rotogravure and
wide web flexographic printing facilities by 1,940 Mg/yr (2,140 tpy)
from a baseline level of 4,200 Mg/yr (4,620 tpy).
There are no significant economic impacts associated with the
proposed standards. There are no firms or facilities at risk of closure
as a result of the proposed standards and there will not be a
significant economic impact on a substantial number of small entities.
B. Common Sense Initiative
On October 17, 1994, the Administrator established the Common Sense
Initiative (CSI) Council in accordance with the Federal Advisory
Committee Act (U.S.C. App. 2, Section 9(c)) requirements. The CSI
addresses six industrial sectors. The Printing and Publishing industry
is one of these sectors.
The following are the six elements of the CSI program, as stated in
the ``Advisory Committee Charter.''
Regulation. Review existing regulations for opportunities to get
better environmental results at less cost. Improve new rules through
increased coordination.
Pollution Prevention. Actively promote pollution prevention as
the standard business practice and a central ethic of environmental
protection.
Recordkeeping and Reporting. Make it easier to provide, use, and
[[Page 13666]] publicly disseminate relevant pollution and
environmental information.
Compliance and Enforcement. Find innovative ways to assist
companies that seek to comply and exceed legal requirements while
consistently enforcing the law for those that do not achieve
compliance.
Permitting. Improve permitting so that it works more
efficiently, encourages innovation, and creates more opportunities for
public participation.
Environmental Technology. Give industry the incentives and
flexibility to develop innovative technologies that meet and exceed
environmental standards while cutting costs.
The Agency intends to work with the Printing CSI sector team and
consider its consensus recommendations concerning the proposed
standards. Even though the data collection and analysis efforts for the
proposed standards were completed before the CSI program was announced,
many aspects of the CSI are reflected in the proposed standards.
The alternatives considered in the development of this regulation,
including those alternatives selected as standards for new and existing
printing facilities are based on process and emissions data received
from over 600 printing facilities. The EPA met with industry and trade
groups on numerous occasions to discuss these data. In addition,
facilities and State regulatory authorities had the opportunity to
comment on draft versions of the proposed regulation and to provide
additional information. Two trade organizations provided extensive
comments; these comments were considered, and in some cases, today's
proposed standards reflect these comments. Of major concern to industry
were the opportunity to comply through pollution prevention by using
low HAP content materials.
The regulation allows sources flexibility to select from various
options for compliance. Sources may reduce HAP usage and emissions
through conversions to waterborne, lower HAP solvent-borne or
ultraviolet/electron beam cure materials. Alternatively, sources may
install or upgrade existing capture and control devices to meet the
proposed standard. Finally sources have the option to comply by a
combination of lower HAP materials and capture and control. Facilities
may select the most cost-effective option based on facility specific
considerations.
The proposed standards give existing facilities 3 years from the
date of promulgation to comply. This is the maximum amount of time
allowed under the Clean Air Act. This timeframe will provide the
greatest opportunity for developing and adopting low HAP content
materials, and provide sufficient time for facilities that choose to
install or upgrade capture and control equipment.
Included in the proposed rule are methods for determining initial
compliance as well as monitoring, recordkeeping, and reporting
requirements. All of these components are necessary to ensure that
sources will comply with the standards both initially and over time.
However, the EPA has made every effort to simplify the requirements in
the rule. The Agency has also attempted to maintain consistency with
existing regulations, or referencing the applicable sections, depending
on which method would be least confusing for a given situation.
Representatives from other interested EPA offices and programs, as
well as representatives from State regulatory agencies are included in
the regulatory development process as members of the Work Group. The
Work Group must review and concur with the regulation before proposal
and promulgation. Therefore, the EPA believes that the implications to
other EPA offices and programs have been adequately considered during
the development of these standards.
II. Summary of the Proposed Rule
Table 1 provides an overview of the proposed rule, including
applicability; the standards for each affected source; test methods and
procedures; and monitoring, recordkeeping, and reporting requirements.
Table 1.--Summary of Subpart KK of 40 CFR Part 63--National Emission Standards for the Printing and Publishing
Industry
Affected source and requirement Description
Printing and Publishing Industry:
flexographic printing that are major sources as defined in 40 CFR
part 63. (63.821).
Applicable SIC codes include 2295, 2392, 2647, 2649, 2651, 2671,
2673, 2674, 2711, 2721, 2754, 2759, 3497, and 3996.
facility is located according to 40 CFR part 70 and applicable State
regulations. (63.821(d)).
All Affected Sources:
CFR part 63, subpart A, except for Sec. 63.6(h). (63.823).
startup for new sources. (63.826).
Test Methods and Procedures......... See individual affected sources.
Monitoring Requirements............. See individual affected sources.
of compliance status, performance test reports, startup, shutdown and
malfunction reports, summary reports, and HAP use reports as
described in Secs. 63.9-63.10. (63.830).
Publication Rotogravure Facilities:
emissions limited to no greater than 8 percent of the mass of
volatile matter, including water, used on a plantwide basis.)
(63.824(b)).
Performance Test Period and Tests... 1. Test Period. Each and every month. (63.824(b)).
2. Performance Test. Initial performance test for all control devices
to demonstrate compliance with overall control efficiency
requirement. (63.824(b))
[[Page 13667]]
2. Volatile matter content determination. (63.827(c)(1)).
3. Overall control efficiency using liquid-liquid mass balance for
solvent recovery systems. (63.824(b)(1)(i).
4. Overall control efficiency determination using capture efficiency
test with continuous emission monitors. (63.824(b)(1)(ii) and
63.824(b)(2)(ii)).
5. Overall control efficiency determination using capture efficiency
test and incinerator destruction efficiency test. (63.824(b)(2)(i).
(63.828(a)(1).
2. Quarterly audit of continuous emission monitors. (63.828(a)(2)(i)).
3. Monitoring of capture system operating parameter. (63.828(a)(5)).
Product and Packaging Rotogravure
Presses and Wide-web Flexographic
Presses, or Groups of Presses
Controlled by a Common Solvent Recovery
System:
to no greater than 0.20 kg HAP per kg of solids applied, for each
press, or group of presses controlled by a common solvent recovery
system, or organic HAP emissions limited to no greater than 0.04 kg
HAP per kg inks and other materials applied, for each press.
(63.825(b)).
Performance Test Period and Tests... 1. Test Period.
Uncontrolled Presses. Each and every month.
Presses controlled with solvent recovery systems. Each and every
month.
Presses controlled with incinerators monitoring operating parameters.
Every three hour period.
Presses controlled with incinerators using continuous emissions
monitors. Each and every month. (63.825(b) and (c)).
2. Performance Test. Initial performance test for all control devices
to demonstrate compliance with organic HAP emission rate. (63.825(g)
and (h)).
2. Volatile matter and solids content determination. (63.827(c)(2)).
3. Overall control efficiency using liquid-liquid mass balance for
solvent recovery systems. (63.825(g).
4. Overall control efficiency determination using capture efficiency
test with continuous emission monitors. (63.825(g)(2) and
63.825(h)(2)).
5. Overall control efficiency determination using capture efficiency
test and incinerator destruction efficiency test. (63.825(h)).
(63.828(a)(1)).
2. Quarterly audit of continuous emission monitors. (63.828(a)(2)(i)).
3. Quarterly calibration of incinerator monitoring thermocouple(s).
(63.828(2)(ii)).
4. Operation of continuous emission monitors. (63.828(a)(3)).
5. Measurement of incinerator operating parameters. (63.828(a)(4)).
6. Monitoring of capture system operating parameter. (63.828(a)(5)).
SIC
Code Description
2295.. Vinyl Coated or Laminated Fabric.
2392.. House Furnishings, including Shower Curtains.
2647.. Sanitary Paper Products.
2649.. Wallcoverings.
2651.. Folding Paperboard Boxes.
Bags.
2711.. Newspapers.
2721.. Periodicals.
2754.. Commercial Printing, Gravure.
2759.. Commercial Printing, NEC.
3497.. Laminated Aluminum Foil, Flexible Packaging.
3996.. Hard Surface Floor Coverings.
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