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E!pG0 r 0` r(#r(# r   12.4NOTIFICATIONOFPROCESSCHANGESD.PP2!!G(#` (#` (#126E!pGG݌ 8  Ќ  E!  E!nH0 r 0` r(#r(# r   12.5REDUCINGBURDEND."!!G(#` (#` (#126E!nHH݌ $  Ќ  9  9]I  13.0MISCELLANEOUSD. !!G(#1319]IxI݌  Ќ  <XXXXE!  E!4J0 r 0` r(#r(# r   13.1STRUCTUREOFTHERULED.(!!G(#` (#` (#131E!4JOJ݌  Ќ  E!  E!(K0 r 0` r(#r(# r   13.2ONCEIN,ALWAYSINPOLICYD.((,!!G(#` (#` (#131E!(KCK݌  Ќ  E!  E! L0 r 0` r(#r(# r   13.3IMPACTSD. !!G(#` (#` (#132#XXX<XJ#E! L;L݌ p Ќ  E!  E!)M0 r 0` r(#r(# r   13.4COMPLIANCEDATED."!!G(#` (#` (#133E!)MDM݌ \ Ќ  E!  E!N0 r 0` r(#r(# r   13.5GUIDANCED.B B !!G(#` (#` (#134E!N2N݌ H Ќ  E!  E!N0 r 0` r(#r(# r   13.6MISCELLANEOUSD. !!G(#` (#` (#134E!NO݌ 4 Ќ  9  9O  9OP݌̌  9  9IP  9IPdP݌  H Ќ  R@#LISTOFTABLES  21.0 r LISTOF_COMMENTERS_ԀONTHEPROPOSED_NESHAP_ԀFORMISCELLANEOUS  COATINGMANUFACTURINGtr(#r(#   ` ` ` @Thispageintentionallyleftblank. `    L  9rX Xr`  X9LISTOFACRONYMSANDABBREVIATIONSFORUNITSOFMEASURE  <XXXXACRONYMS  Act0 r 0r(#r(#0` (#(# CleanAirActt` (#` (# Administrator ` 0 EPAAdministrator` (# (# Agency ` 0 EPAL  (# (# _APCD_  0 ` 0 ` (#` (#airpollutioncontroldevice(s)8  (# (# API0 r 0r(#r(#0` (#(#0 ` (#` (#AmericanPetroleumInstitute$ t (# (# CAA  0 ` 0 ` (#` (#CleanAirAct ` (# (# _CEM_  0 ` 0 ` (#` (#continuousemissionsmonitor L  (# (# _CEMS_  0 ` 0 ` (#` (#continuousemissionsmonitoringsystem(s) 8  (# (# _CFR_ r 0  0` (#(#0 ` (#` (#CodeofFederalRegulations$  (# (# CMS0  0` (#(#0 ` (#` (#Continuousmonitoringsystem  (# (# _CPMS_0  0` (#(#0 ` (#` (#Continuousparametermonitoringsystem  (# (# DoD r 0  0` (#(#0 ` (#` (#U.S.DepartmentofDefense  (# (# _EIIP_0 r 0r(#r(#0` (#(#0 ` (#` (#EmissionInventoryImprovementProgram  (# (# EPA r 0  0` (#(#0 ` (#` (#U.S.EnvironmentalProtectionAgencyp (# (# FR0 r 0r(#r(#0` (#(# FederalRegister\` (#` (# H2 r 0  0` (#(#0 ` (#` (#hydrogenH (# (# HAP r 0  0` (#(#0 ` (#` (#hazardousairpollutant(s)4 (# (# _HCl_0 r 0r(#r(#0` (#(# hydrogenchloride p` (#` (# _LDAR_0  0` (#(#0 ` (#` (#leakdetectionandrepairprogram \ (# (# _MACT_ ` 0 maximumavailablecontroltechnologyH (# (# N2 r 0  0` (#(#0 ` (#` (#nitrogen4 (# (# _NAAQS_ ` 0 NationalAmbientAirQualityStandards  (# (# _NAICS_0 ` 0 ` (#` (#NorthAmericanIndustrialClassificationSystem  (# (# _NESHAP_0 ` 0 ` (#` (#nationalemissionstandardsforhazardousairpollutants (# (# NH3 r 0  0` (#(#0 ` (#` (#ammonia (# (# _NOx_ r 0  0` (#(#0 ` (#` (#nitrogenoxides (# (# _NSPS_  0 ` 0 ` (#` (#newsourceperformancestandardsl (# (# _NSR_ r 0  0` (#(#0 ` (#` (#newsourcereviewX  (# (# O2 r 0  0` (#(#0 ` (#` (#oxygenD! (# (# _OAQPS_ ` 0 OfficeofAirQualityPlanningandStandards0"  (# (# OSHA  0 ` 0 ` (#` (#OccupationalSafetyandHealthAdministration#l! (# (# OVA0  0` (#(#0 ` (#` (#Organicvaporanalyzer$X" (# (# Pb r 0  0` (#(#0 ` (#` (#lead$D # (# (# PM r 0  0` (#(#0 ` (#` (#particulatematter%0!$ (# (# POD0 r 0r(#r(#0` (#(#0 ` (#` (#pointofdetermination&"% (# (# _POTW_0 ` 0 ` (#` (#PubliclyOwnedTreatmentWorks'#& (# (# PSD r 0  0` (#(#0 ` (#` (#preventionofsignificantdeterioration  (#' (# (# QA/QC0 ` 0 ` (#` (#qualityassurance/qualitycontrol)$( (# (# _RCRA_  0 ` 0 ` (#` (#ResourceConservationandRecoveryAct|*%) (# (# SARA/TRI0 ` 0 ` (#` (#SuperfundAmendmentsand_Reauthorization_ԀAct/ToxicReleaseInventoryh+&* (# (# SIC0 r 0r(#r(#0` (#(#0 ` (#` (#StandardIndustrialClassificationT,'+ (# (# _SOCMI_0 ` 0 ` (#` (#SyntheticOrganicChemicalManufacturingIndustry@-(, (# (# SO2 r 0  0` (#(#0 ` (#` (#sulfurdioxide (# (# _SSM_0  0` (#(#0 ` (#` (#startup,shutdown,andmalfunction (# (# TOC0 r 0r(#r(#0` (#(#0 ` (#` (#totalorganiccompounds (# (# TRE0 r 0r(#r(#0` (#(#0 ` (#` (#totalresourceeffectivenesst (# (# TRI0 r 0r(#r(#0` (#(#0 ` (#` (#ToxicReleaseInventory` (# (# VOC  0 ` 0 ` (#` (#volatileorganiccompoundsL  (# (# &  ABBREVIATIONSFORUNITSOFMEASURE $ t Btu0 r 0r(#r(#0` (#(#= Britishthermalunit L ` (#` (# dscf0 r 0r(#r(#0` (#(#=0 ` (#` (#drystandardcubicfoot(@14.7psia,68$F) 8  (# (# '$ kdscfm0  0` (#(#=0 ` (#` (#drystandardcubicfootperminute(@14.7psia,68$F)$  (# (# dscm0  0` (#(#=0 ` (#` (#drystandardcubicmeter(@14psia,68$F)  (# (# $F r 0  0` (#(#=0 ` (#` (#degreesFahrenheit  (# (# ft30 r 0r(#r(#0` (#(#=0 ` (#` (#cubicfeet  (# (# hr0 r 0r(#r(#0` (#(#=0 ` (#` (#hour  (# (# lb0 r 0r(#r(#0` (#(#=0 ` (#` (#poundp (# (# mg r 0  0` (#(#=0 ` (#` (#milligrams(10-3grams)\ (# (# Mg r 0  0` (#(#=0 ` (#` (#megagram(106grams)H (# (# MMm30 ` =0 ` (#` (#millioncubicmeters4 (# (# MW r 0  0` (#(#=0 ` (#` (#megawatt p (# (# MWhr/yr ` =0 megawatthoursperyear \ (# (# ng r 0  0` (#(#=0 ` (#` (#nanogram(10-9grams)H (# (# ppm r 0  0` (#(#=0 ` (#` (#partspermillion4 (# (# ppmv  0 ` =0 ` (#` (#partspermillionbyvolume  (# (# ppmdv ` 0 =0 (# (#partspermillionbydryvolume (#(# ton/yr  0 ` =0 ` (#` (#tonsperyear (# (# g r 0  0` (#(#=0 ` (#` (#microgram(10-6grams) (# (# wk r 0  0` (#(#=0 ` (#` (#week (# (# yr r 0  0` (#(#=0 ` (#` (#year#XXX<XR# l (# (#  8XXdd8` ` @88$1.0SUMMARY `   r OnApril4,2002,theU.S.EnvironmentalProtectionAgency(EPA)proposednational 8  emissionstandardsforhazardousairpollutants(_NESHAP_)formiscellaneousorganicchemical J  manufacturingandmiscellaneouscoatingmanufacturing(67FR16154)underauthorityof   Section112(d)oftheCleanAirActasamendedin1990(CAA).Publiccommentsonthe ^ proposalandtheissuesraisedbyEPAsproposedapproachtoregulatingmiscellaneousorganic p  chemicalmanufacturingandmiscellaneouscoatingmanufacturingsourceswererequestedwhen "  theproposalwaspublishedintheFederalRegister.Commentsontheproposalrelatingtothe 4 miscellaneouscoatingmanufacturing_NESHAP_Ԁwerereceivedfrom81sourcesconsistingof  paint,ink,andadhesivesmanufacturers;industrytradeassociations;afederalgovernment H agency;anenvironmentalgroup;andotherinterestedparties.Inaddition,apublichearingwas Z held,atwhich8of11speakersprovidedtestimonyrelatedtotheproposedmiscellaneouscoating   manufacturingrule.Allofthecommentssubmittedinwritingandatthepublichearing,and n EPAsresponsestothecomments,aresummarizedinthisdocument.Thissummaryandthe   Agencysresponsesformpartofthebasisfortherevisionsmadetothestandardsbetween !2 proposalandpromulgation.Otherbasesinclude,butarenotlimitedto,reassessmentofdatain D# the_rulemaking_Ԁrecord.Commentsonthemiscellaneousorganicchemicalmanufacturing $  _NESHAP_Ԁaresummarizedanddiscussedinaseparatedocument. &X!" 1.10 r SUMMARYOFCHANGESSINCEPROPOSALj'"$r(#r(#  r Numerouschangeshavebeenmadesincetheproposalofthemiscellaneouscoating ($&  manufacturing_NESHAP_.Majorchangesincludethefollowing: .*~%( & &    Structureandformatoftherule   (Nxx"3"  ?` X XrX X?3M2N3  0    Replacedlargesectionsoftextandtableswithmorecompleteandcomprehensivereferences b '&gtoprovisionsintheHON;theGeneric_MACT_Ԁ_subparts_ԀSS,_UU_,andWW;the t PharmaceuticalsProduction_NESHAP_Ԁ(subpart_GGG_);andtheGeneralProvisions.3M݌&(#(# Ќ  Compliancedates 8   )(xx"3"  323  0    Specifiedthatareasourcesthatbecomemajorsourceshave3yearstocomplyratherthan1    year.3݌ L (#(# Ќ  Emissionlimitsandworkpracticestandards ^   !(~xx)"3"  32~3  0    Providedanemissionsaveragingoptionforstationaryprocessvesselsatexistingsources.3օ݌ (#(# Ќ  "3"  32~3  0    Revisedthestandardforequipmentleaksatexistingsourcestoasensory_LDAR_Ԁprogram.3݌"r (#(# Ќ  "3"  32~3  0    Revisedthewastewatercontrolthresholdlevels.3݌ (#(# Ќ  "3"  3̈2~3  0    Revised_MACT_Ԁfloorforstoragetanksatnewsources.3̈݌6(#(# Ќ  Compliancerequirements H  #(xx!"3"  323  0    Allowedperformancetestingunderrepresentativeconditions.3݌(#(# Ќ  "3"  3{23  0    Eliminatedtherequirementtocalculateuncontrolledandcontrolledemissionsforvessels  \ equippedwithclosedventsystems.3{݌n(#(# Ќ  "3"  323  0    SpecifiedlessburdensomeQA/QCproceduresfor_CPMS_.3݌  (#(# Ќ  _Recordkeeping_Ԁandreporting 2"  +(*xx#"3"  32*3  0    Eliminatedtherequirementtoreportoperatingscenarios.3ώ݌$(#(# Ќ  "3"  32*3  0    Eliminatedtherequirementtodevelopandmaintainamaintenancewastewaterplan.3݌F&(#(# Ќ  "3"  32*3  0    Eliminatedthereportingrequirementtosubmitfloatingrooftankcapacitiesanddimensions3Ő݌X ((#(# Ќ  "3"  32*3  0    Eliminated_duplicative_Ԁ_LDAR_Ԁreportingrequirements3֑݌! *(#(# Ќ  Definitions #l,  '(xx+"3"  3x23  0    Reviseddefinitionsforstartupandshutdown3x݌~$.(#(# Ќ  1.20  SUMMARYOFIMPACTSOFFINALRULE%0!0(#(# 9X X` X X9  Thefinalstandardswillreducenationwideemissionsofhazardousairpollutants(HAP) B'"2 frommiscellaneouscoatingmanufacturingoperationsfacilitiesby4,460_megagrams_Ԁperyear (#4 (Mg/yr)(4,900tonsperyear[tons/yr]),or64percentcomparedtothebaselineemissionsthat *V%6 wouldresultintheabsenceofthestandards.Nosolidwasteisexpectedtobegeneratedfrom h+&8 controls.Also,anadditionalenergyusageof40billionBritishthermalunitsperyear(Btu/yr)  wasdeterminedtoresultfrompromulgationofthesestandards. b   Theimplementationofthisruleisexpectedtoresultinanoverallannualcostof$16 t millionforexistingsources.Theeconomicimpactanalysisshowsthattheestimatedprice & increasefromcompliancewiththerecommendedstandardsforprocessvessels,storagetanks, 8  transferoperations,equipmentleaks,andwastewateris0.26percent.Estimatedreductionin    marketoutputis0.14percent.   L  ` ` @Thispageintentionallyleftblank.  `   ` ` @ 2.0OVERVIEWOFPUBLICCOMMENTS `    ThepubliccommentperiodfollowingtheApril4,2002FederalRegisternotice $  (proposedrule)lastedfromApril4,2002toJune28,2002.Atotalof116letterscommentingon 6  theproposedrulesformiscellaneousorganicchemicalmanufacturingandmiscellaneouscoating  manufacturingweresubmitted,andthesecommentshavebeenplacedinthedocketforthis J  _rulemaking_Ԁ(DocketA-96-04)undercategoryIV-D.Ofthe116letters,81containedcomments \  ontheproposedruleformiscellaneouscoatingmanufacturing.Inaddition,8ofthe11speakers  atthepublichearingprovidedcommentsontheproposedruleformiscellaneouscoating  p manufacturing.Table2-1liststhenamesofthe81personssubmittinglettersandthe8persons  speakingatthepublichearing,theiraffiliations,andtherecordeddocketitemnumberassignedto 4 theircorrespondence.Commentsontheproposedmiscellaneousorganicchemical F manufacturingrulearesummarizedanddiscussedinaseparatedocument.    Many_commenters_Ԁsupportedthecommentssubmittedby_commenter_ԀIVD99.By  Z convention,ratherthanidentifyallofthesupporting_commenters_Ԁineachdiscussionofissues l! raisedbythis_commenter_,wehavedecidedtoidentifythesupporting_commenters_Ԁonlyinthis " chapter.Intheremainderofthisdocumentitistobeunderstoodthateachreferenceto 0$  _commenter_ԀIVD99standsforallofthesupporting_commenters_Ԁaswell._Commenters_ԀIVD6,8 % " through16,18through23,25through31,34,35,37,42,44,48,53,56,58,60through62,64 &D"$ through66,71,73,76,83,96,97,101through103,105,116,and124through127concurwith V(#&  thecommentsofIVD99. )%(   Chapters3.0through13.0presentasummaryofthecommentsontheproposedrulealong   withEPAresponses.Thecommentsaregroupedbysubjectareas,andtheorganizationoftopics b issimilartotheorganizationofthepreambletothefinalrule. t &  @wwTABLE21.LISTOF_COMMENTERS_ԀONTHEPROPOSED_NESHAP_ԀFOR 8  @  MISCELLANEOUSORGANICCHEMICALMANUFACTURING    *VcYWddd Xdd Xdd X(#(#,dd ,pdd +   L  L  @YY DocketItem_No.a_  `   @%%_Commenter_ԀandAffiliation'8 Ԉ `   IV-D-06  0  J.Adams,AmericanCoatings  0  IV-D-07  `  K._Garbin_,NationalCoilCoatingAssociation  `  IV-D-08  0  P.Formica,_Bondo_ԀCorporation  0  IV-D-09  ` G.Hyde,RPMWoodFinishesGroup  ` IV-D-10  0 M._Tellor_,Rust_Oleum_ԀCorporation  0 IV-D-11  ` D.Finn,RPM,Inc.  ` IV-D-12  0 J.Lee,DavisPaintCompany  0 IV-D-13  ` D.Ness,FlintInkCorporation  ` IV-D-14  0 D.Hood,_Induron_ԀProtectiveCoatings  0  IV-D-15  `! H.McNair,_Pflaumer_ԀBrothers,Inc.  `" IV-D-16  0# P.Schneider,_Preservo_ԀPaint&CoatingsManufacturing  0$ IV-D-18  `% S.Berg,EllisPaintCompany  `& IV-D-19   0' K.Bernard,AceHardwareCorporation,PaintDivision   0( IV-D-20  `") T.Byrne,_Adheron_ԀCoatingsCorporation  `"* IV-D-21  #0+ W.Vogel,_Cloverdale_ԀPaintInc.  #0, IV-D-22  `% - R._Lefelar_,CliftonAdhesive,Inc.  `% . IV-D-23  &0"/ K.Bernard,AceHardwareCorporation,PaintDivision  &0"0 IV-D-24  `(#1 W._Leclerc_,KellyMoorePaintCompany,Inc.  `(#2 IV-D-25  )0%3 D.Smith,_TCR_ԀIndustries  )0%4 IV-D-26  `+&5 L._Ruckgaber_,TheEgyptianLacquerMfg.Co.  `+&6 _IV-D-27  d B.Hamm,JamestownPaintCompany  d IV-D-28   N._Zucker_,_Kalcor_ԀCoatingsCompany   IV-D-29   d W.Richards,W.C.RichardsCompany   d IV-D-30    M._Angerer_,IowaPaintManufacturingCompany,Inc.    IV-D-31   d  R.Williamson,TrinityCoatingsCompany   d  IV-D-34    F.Chin,UniversalChemicals&Coatings,Inc.    IV-D-35  d  P._Pesola_,DeltaLaboratories,Inc.  d  IV-D-37    R.Oliver,_Fibergrate_ԀCompositeStructures,Inc.    IV-D-38  d  K.Johnston,SovereignSpecialtyChemicalsInc.  d  IV-D-40    J.Davis,StarBronzeCompany,Inc.    IV-D-41  d A.Keane,NationalPaint&CoatingsAssociation  d IV-D-42   D.Hampton,TheLawrenceMcFaddenCo.   IV-D-43  d M.Frank,TheBoeingCompany  d IV-D-44   K.Dahl,TheDowChemicalCompany   IV-D-45  d R._Singhal_,FlexiblePackagingAssociation  d IV-D-46   T.Feldman,NationalElectricalManufacturersAssociation    IV-D48  d! J._Tovey_,AkzoNobelCoatings,Inc.  d" IV-D-50   # V._Ughetta_,AllianceofAutomobileManufacturers   $ IV-D-53  !d% M._McGruther_,U.S.PaintCorporation  !d& IV-D-54  #' A._Hentzen_,_Hentzen_ԀCoatings,Inc.  #( IV-D-55  $d) K.Larkin,Shook,Hardy,&Bacon_L.L.P._  $d* IV-D-56  &+ C.Browne,AkzoNobelCoatingsInc.  &, IV-D-58  'd!- M._Nichols_,TrueValueManufacturingCompany  'd!. IV-D-60  )"/ R.Thomas,The_Sherwin_ԄWilliamsCompany  )"0 IV-D-61  *d$1 J._Gatto_,TheLawrenceMcFaddenCompany  *d$2 IV-D-62  d  P.Beck,TheLawrenceMcFaddenCompany  d IV-D-64   S.Henry,RedSpotPaint&VarnishCo.,Inc.   IV-D-65   d D._Puryear_,HarrisonPaintCompany   d IV-D-66    H.Flack,AkzoNobelAerospaceCoatingsInc.    IV-D-68   d  L._Surowitz_,CodingProducts   d  IV-D-71    J.Wolf,_XIM_ԀProducts,Inc.    IV-D-73  d  G._Bockus_,StrathmoreProducts,Inc.  d  IVD75    J._Dege_,E.I.duPontde_Nemours_ԀandCompany    IVD76  d  R.Forrest,ForrestPaintCompany  d  IVD80    T.Hunt,AmericanForest&PaperAssociation    IVD81  d L._Frede_,ChemicalIndustryCouncilofIllinois  d IVD83   P.Robinson,_Valspar_ԀCorporation   IVD84  d G.Anderson,PressureSensitiveTapeCouncil  d IVD85   R.Raiders,_Atofina_ԀChemicals,Inc.   IVD87  d S.Rink,_Earthjustice_ԀLegalDefenseFund  d IVD89   S.Brown,InternationalPaper_Particleboard_    IVD90  d! S.Brown,InternationalPaperLaminates  d" IVD91   # D._Foerter_,InstituteofCleanAirCompanies   $ IVD93  !d% E._Trauner_,EssexGroupInc.  !d& IVD96  #' J._Kantzes_,_ICI_ԀPaintsNorthAmerica  #( IVD97  $d) S.Yankee,_Tnemec_ԀCompany,Inc.  $d* IVD98  &+ FranklinInternational  &, IVD99  'd!- A.Keane,NationalPaint&CoatingsAssociation  'd!. IVD100  )"/ D._Chapin_,EastmanKodakCompany  )"0 IVD101  *d$1 K.Bond,LordCorporation  *d$2 IVD102  d  R._Winn_,IPSCorporation  d IVD103   R.Porter,DiamondVogelNorth,Inc.   IVD105   d G.Hammer,AshlandInc.   d IVD106    C._Wacker_,3MCompany    IVD107   d  S.Capone,GeneralElectricCompany   d  IVD112    K.Hatch,BASFCorporation    IVD113  d  M._Collatz_,TheAdhesiveandSealantCouncil,Inc.  d  IVD114    O._Dominguez_,NationalAeronauticsandSpaceAdministration    IVD115  d  S._Faeth_,_PPG_ԀIndustries,Inc.  d  IVD116    J._McLarty_,_Camie_ԄCampbell,Inc.    IVD122  d A._DeConti_,SyntheticOrganicChemicalManufacturersAssociation  d IVD124   S._Heemstra_,DiamondVogelPaintCo.,Inc.   IVD125  d S._Heemstra_,DiamondProductsCo.  d IVD126   S._Heemstra_,VogelPaint&WaxCo.,Inc.   IV-D-127  d W._Cleverley_,BenjaminMoore&Co.  d IVF1a   M._Collatz_,AdhesiveandSealantCouncil,Inc.    IVF1b  d! A.Keane,NationalPaintandCoatingsAssociation  d" IVF1c   # D._Mazzocco_,_PPG_ԀIndustries,Inc.   $ IVF1d  !d% R.Thomas,The_Sherwin_ԄWilliamsCompany  !d& IVF1e  #' P.Robinson,The_Valspar_ԀCorporation  #( IVF1f  $d) J._Gatto_,TheLawrenceMcFaddenCompany  $d* IVF1g  &+ C.Browne,AkzoNobelCoatings,Inc.  &, IVF1h  'd!- D.Darling,NationalPaintandCoatingsAssociation 'd!. ] aThedocketnumberfortheMiscellaneousOrganicChemicalManufacturing_NESHAP_Ԁis &)". A-96-04.  *#/ ` ` @Thispageintentionallyleftblank. `       - @``!3.0APPLICABILITY   3.10  ENDUSERSOFCOATINGS (#(#   Comment:Anumberof_commenters_Ԁopposedregulationofactivitiessuchasmixing B  additivesandotheringredients,thinning,andadjustingtintthatareconductedbyfacilitiesthat T  aretheendusersofcoatingsandaresubjecttoanyofthesurfacecoating_NESHAP_;severalof   the_commenters_Ԁdescribedtheseactivitiesas affiliatedoperations,andtheyconcurredwiththe h  definitionanddraftpreamblelanguageforthePaperandOtherWebCoating(_POWC_)_NESHAP_ z thatwerediscussedduring_POWC_ԀstakeholdermeetingsonMay22andJune26,2002.For , example,severalofthe_commenters_Ԁ(IVD43,IVD45,IVD46,IVD84,IVD90,IVD100, > andIVD106)requestedspecificexemptionsforaffiliatedoperationsatfacilitiessubjectto  surfacecoatingrulesinsubpartGG,subpart_KK_,and/orsubpart_JJJJ_._Commenter_ԀIVD114 R requestedanexemptionfortheonsiteformulationandmixingofspecialty,ablativecoatingsthat d areappliedtospacevehiclesataNASAsiteandareexemptfromcontrolundersubpartGG.  Two_commenters_Ԁ(IVD80andIVD89)requestedspecificlanguageineitherthepreambleor (x finalruletoclarifythatoperationsatfacilitiessubjecttosubpart_DDDD_Ԁarenotsubjectto  subpart_HHHHH_._Commenter_ԀIVD80alsosuggestedextendingtheprovisiontoallequipment  <  associatedwithaprocessforwhichanother40_CFR_Ԁpart63standardhasbeenpromulgated. N"" _Commenter_ԀIVD101statedthatendusers,particularlythoseatfacilitiessubjecttosubpart #$ _MMMM_,shouldbeexemptbecausesubpart_MMMM_Ԁalreadyaddressesemissionsassociated %b & withtheuseofdiluentsatsuchfacilities._Commenter_ԀIVD50notedthattheexemptionin t&!( 63.7985(a)(4)ofoperationsthatarepartofanaffectedsourceunderanothersubpartof40_CFR_ '&#* part63shouldapplytoenduserssubjectto_subparts_Ԁ_MMMM_Ԁ(miscellaneousmetalpartsand 8)$, products),_IIII_Ԁ(autosurface),and_PPPP_Ԁ(plasticpartsandproducts)becauseaffiliatedoperations *%. arepartoftheaffectedsourcesunderthoserules;the_commenter_Ԁrequeststhatwemakethispoint +L'0 clearinthepreambletothefinalrule._Commenter_ԀIVD105requestedclarificationthatthe  exemptionin63.7985(a)(4)isnotlimitedonlytooperationsthatarerequiredtoimplement b controlsunderotherstandards. t   Two_commenters_Ԁ(IVD7andIVD99)requestedexemptionsforaffiliatedoperationsat & facilitiessubjecttoanyofthesurfacecoating_NESHAP_.Accordingtothe_commenters_,the 8  exemptionisnecessarybecauseweobtainednoinformationonenduserswhiledeveloping    subpart_HHHHH_,someoftheregulatedcommunitywouldnothaveanopportunitytocomment  L  ontheproposalbecausesomeofthesurfacecoatingruleswillnotbepublisheduntilaftersubpart ^  _HHHHH_Ԁisfinalized,andweconsideredemissionsfromaffiliatedoperationsinsomesurface   coatingsourcecategoriestobeinsignificantwhenweweredevelopingthesurfacecoating "r  _NESHAP_.Toexcludeendusersingeneral,_commenter_ԀIVD44recommendedmoreclearly   defining coatingsmanufacturingwithadefinitionsimilartothatfor batchprocessinsubpart 6 _GGG_,usingamorenarrowlistingofStandardIndustrialClassification(SIC)andNorth H AmericanIndustrialClassificationSystem(_NAICS_)codes,andaddingspecificexemptionsfor  temporaryactivitiessuchasmixingpriortopaintingatankorstructureatamajorsource.  \ _Commenter_ԀIVD80suggestedchanging coatingprocessto coatingmanufacturingprocess n asawaytoclarifythattheruleappliesonlytomanufacturers,notsourcesthatapplycoatings.      Response:Thefinalruledoesnotapplytoactivitiesconductedbyendusersofcoating 2" productsinpreparationforapplication.Asnotedbysomeofthe_commenters_,wehavedecided $ toexemptaffiliatedoperationsat_POWC_Ԁfacilitiesfromsubpart_HHHHH_.Inthepreambletothe F& final_POWC_Ԁsurfacecoating_MACT_Ԁrule(67FR72330,December4,2002)wedefineaffiliated X ( operationsat_POWC_Ԁfacilitiesandindicatethattheyarepartofthe_POWC_Ԁsourcecategory,but ! * theyarenotpartofthe_POWC_Ԁaffectedsourceforavarietyofreasons.Wealsoexaminedother #l, surfacecoatingrules,anddeterminedthattheexemptionforaffiliatedoperationsshouldalsobe ~$. appliedtosourcesthataresubjecttotheprintingandpublishingrule(subpart_KK_),theaerospace %0!0 manufacturingrule(subpartGG),themetalcoilcoatingrule(subpart_SSSS_),andthe B'"2 miscellaneousmetalpartsandproductsrule(subpart_MMMM_).Thesefiveruleslack (#4 requirementsforaffiliatedoperations,butaffiliatedoperationswereconsideredduringthe *V%6 developmentoftherulesandcontrolsweredeterminednottobewarranted.Wehavenot h+&8 extendedthisexemptiontoothersurfacecoatingrules(orcertainotherrules)thatalreadyinclude  affiliatedoperationsaspartoftheaffectedsourceundertheapplicablesubpartbecause b operationsthatarepartofanotheraffectedsourceareexemptfromthefinalsubpart_HHHHH_ t accordingto63.7985(a)(4)._Commenter_ԀIVD105'sassumptionthatthisexemptionisnot & limitedtothoseoperationswithinanotheraffectedsourcethatmustimplementcontrolsis 8  correct.Preparationsforpaintingequipmentorstructuresatafacilityarenotpartofa    manufacturingprocessandthusarenotsubjecttosubpart_HHHHH_.  L  3.20  OVERLAPPINGRULES^ (#(#   Comment:Three_commenters_Ԁ(IVD85,IVD93,andIVD107)requestedclarification   ofhowtodeterminewhethersubpart_FFFF_Ԁorsubpart_HHHHH_Ԁappliestotheiroperations.One "r  _commenter_Ԁ(IVD122)notesthattheproposeddefinitionof coatingmanufacturingis   expansiveandwouldunnecessarilysubjectfacilitiestobothsubpart_FFFF_Ԁandsubpart_HHHHH_. 6   Response:Iftheproductbeingmanufacturedisacoating,andthemanufacturingsteps H involveblending,mixing,diluting,andrelatedformulationoperations,withoutanintended  reaction,thentheprocessissubjecttosubpart_HHHHH_.Ifareactionaswellasvariousother  \ operationsareinvolved,thentheprocesstypicallyissubjecttosubpart_FFFF_.However,ifthe n downstreamformulationoperationsaredistinctfromtheprecedingsynthesisprocess(es),    (perhapsbecausethesynthesizedproductisisolatedandsomeofitissoldortransferredoffsite), 2" thentheformulationoperationsaresubjecttosubpart_HHHHH_,andthesynthesisoperationsare $ subjecttosubpart_FFFF_.Intheeventthatequipmentusedformanufacturingproductsin F& processesthataresubjecttosubpart_FFFF_Ԁisalsousedforcoatingmanufacturingoperationsthat X ( aresubjecttosubpart_HHHHH_,thentheprimaryuseoftheequipmentdeterminesapplicability. ! * 3.30  MISCELLANEOUSTECHNICALISSUES#l,(#(#   Comment1:Several_commenters_Ԁ(IVD80,IVD99,andIVD100)recommended ~$. clarifyingtheprovisionin63.7985(c)(3)oftheproposedrulethatwouldexemptallequipment %0!0 associatedwithaprocessthathaslessthan5percentHAPinprocessvessels.One_commenter_ B'"2 (IVD99)notedthatthisprovisionwillnotexemptallwaterbasedcoatingmanufacturing (#4 becausetheactualHAPcontentintheprocessvesselvariesduringtheprocess.Tobeuseful,this *V%6 _commenter_ԀstatedthedeterminationmustbebasedontheHAPcontentofthefinalproduct. h+&8 Accordingtoanother_commenter_Ԁ(IVD80),theexemptionshouldbebasedon organicHAP,  andsourcesshouldbeallowedtodeterminethispercentagebasedonmaterialsafetydatasheets b (_MSDS_)orotheravailableinformationasanalternativetochemicalanalysis.One_commenter_ t (IVD100)suggestedthattheexemptionwouldbelessconfusingifitwereappliedtoindividual & vesselsratherthana coatingprocessbecauseequipmentisgenerallyassociatedwithaspecific 8  processvesselandthedefinitionof processistoobroad.This_commenter_Ԁalsostatedthatifa    processvesselisnotsubjecttocontrolbecauseitscapacityislessthan250gallonsortheHAP  L  emissionsarelessthan50partspermillionbyvolume(_ppmv_),thenitisalsoreasonablethatno ^  otherrequirementsshouldapplytoanyoftheequipmentassociatedwiththatprocessvessel(i.e.,   thestoragetank,equipmentleak,andwastewaterstandards). "r    Response:Undertheproposedrule,wheneverthecontentsofaprocessvesselcontain   lessthan5percentHAPbyweight,theowneroroperatorwouldbeexemptfromallrequirements 6 fortheprocessvesselandrelatedequipment.Underthefinalrule,thisprovisionhasbeen H replacedwithaprovisionthatprovidesforcompliancewiththestationaryprocessvessel  standardsatexistingsourceswhenthevesselisbeingusedtomanufactureacoatingthatcontains  \ lessthan5percentHAPbyweight.Ourrationaleforallowingthemasslimitasanalternative n standardisbasedonanestimatedequivalentreductioninHAPemissionsascomparedto    complyingwiththeprocessvesselstandards.Althoughwedidnotcollectspecificdataon 2" coatingscontent,wereviewedinformationthatwecollectedinthedevelopmentofstandardsfor $ othercoatingmanufacturingsourcecategories.Basedonthesedata,weconcludedthatwecould F& achieveequivalentreductionsinHAPemissionsifcoatingmanufacturersreducetheHAP X ( contentoffinalproductstolessthan5percentbyweight.Inordertoachieveequivalent ! * reductionsof75percentforprocessvessels,theaverageHAPcontentofcoatingswouldhaveto #l, begreaterthan20percent.Otherdatacollectioneffortssupporttheconclusion.Forexample, ~$. theaverageHAPlevelsinallthe_solventborne_Ԁcoatingsreportedinthemetalcanandwood %0!0 buildingproductssourcecategoriesare32and28percent,respectively.Onaconsumption B'"2 weightedbasis,theHAPcontentofcoatingsinthemetalcansourcecategoryis20percent. (#4  Further,althoughtheHAPcontentofmanywaterbasedcoatingsislessthan5percentbyweight, *V%6 wedidnotincludeanexplicitexemptionforwaterbornecoatingsbecausetheHAPcontentof  somewaterbornecoatingscouldberelativelyhighaslongastheHAPissolubleinwater. b    Indevelopingthisalternative,wearepersuadedbyone_commenter_ssuggestiontoapply t ittoallvesselsthatareassociatedwiththemanufacturingofthefinalproduct.Althoughanother & _commenter_Ԁsuggestedthatidentifyingallprocessvesselsinamanufacturingprocesswouldbe 8  confusing,wethinkthatthisalternativewouldactuallysimplifycomplianceformostownersand    operators.Aslongastheprocessvesselmeetsthedefinitioninthefinalrule,anowneror  L  operatorcouldcomplywiththealternativestandardwhenthevesselwasprocessingmaterialthat ^  wouldultimatelycontainlessthan5percentHAPbyweightasfinalproduct.     Tofurthereliminateconfusion,weclarifiedthatthealternativeappliesonlytoprocess "r  vessels.Storagetanksarenotconsideredbecausetheircontrolrequirementsaredetermined   basedonthesizeofthetankandtheHAPpartialpressure,notwhetherthetankisusedforan 6 individualproduct.Transferoperationsarenotconsideredbecausetheircontrolrequirementsare H determinedbasedonthetotalannualquantityofcoatingthatisloadedanditsweightedaverage  partialpressure.Equipmentleaksalsoarenotconsideredbecausetheneedforcontrolis  \ determinedbythenumberofhoursaparticularcomponentisinorganicHAPservicewithinthe n affectedsource,notthespecificproductbeingproduced.Also,wedidnotexemptwastewater    streamsfromprocessvesselssmallerthan250galbecausewehavenoevidencethatsuchvessels 2" arecleanedbyadifferentprocedurethanlargervesselsorthatthewastewaterstreamsfromsuch $ cleaningoperationsarekeptseparate. F&   Comment2:Tominimizethecomplianceburden,one_commenter_Ԁ(IVD100)requested X ( exemptionsforimpuritiesandtraceconstituentspresentinquantitieslessthan0.1percentby ! * weightforcarcinogensandlessthan1.0percentbyweightforallotherHAP,valueswhichare #l, consistentwiththelevelsthatmustbeprovidedon_MSDS_.The_commenter_Ԁstatedthatthis ~$. wouldreducetheburdenofdeterminingtheHAPcontentinavesselforcomparisonwiththe5 %0!0 percentexemptionlevelandfordeterminingtheHAPcontentinprocessvesselventsfor B'"2 comparisontothe50_ppmv_Ԁlimit.The_commenter_Ԁnotesthatthedefinitionof storagetank (#4  excludesvesselsthatcontainHAPonlyasimpurities. *V%6   Response:Wedidnotallowinthefinalruleade_minimis_Ԁexemptionof0.1or1.0weight   percentHAPfortraceconstituents.Thisexemptionisnotrelevanttothe5weightpercentHAP b productalternativestandard.Further,wedonotfeelthatanadditionalde_minimis_Ԁortrace t constituentexemptionforcompliancewiththeremainingstandardsisnecessary. &   Comment3:One_commenter_Ԁ(IVD98)requestedanexemptionforprocesseswith 8  uncontrolledemissionslessthan10,000lb/yr.      Response:Wehavenotincorporatedtherequestedexemptionbecauseitisnotsupported  L  bytheavailabledata. ^    Comment4:One_commenter_Ԁ(IVD98)requestedanexemptionforwaterbornecoatings.     Response:Wehavenotincludedanexplicitexemptionforwaterbornecoatingsbecause "r  theHAPcontentofawaterbornecoatingcouldberelativelyhighaslongastheHAPissolublein   water.However,asourcecanreformulatecoatingstocontainlessthan5percentHAPasa 6 meansofmeetingtheprocessvesselventemissionlimitsandworkpracticestandardsfor H existingsources.    Comment5:One_commenter_Ԁ(IVD107)recommendedrevisingthedefinitionof  \  mixingtoexcludeanychemicalreaction otherthananunintended,inconsequentialreaction n becausesomeinconsequentialreactionssuchasanequilibriumshiftreactioncanoccurduring    mixing.Similarly,_commenter_ԀIVD100recommendedbroadeningthedefinitionofmixing 2" becausemanycoatingsarenotmanufacturedatambienttemperature(agitationitselfgenerally $ addsheat),andmanymayincludeinsignificantreactions. F&   Response:Weagreewiththesuggestedclarifications.Itwasnotourintenttoexclude X ( processeswithinconsequentialreactionsorminorheatingeffectsduetoagitationfromthe ! * miscellaneouscoatingsourcecategory. #l,   Comment6:One_commenter_Ԁ(IVD100)suggestedaddingadefinitionof coatingto ~$. mean aprotective,decorative,orfunctionallayerthatcontainsvolatileorganicHAPandis %0!0 intendedtobeapplieduniformlytoasubstrate,butthatexcludesextrudedmaterial.According B'"2 tothe_commenter_,thebenefitofthisdefinitionisthatitwouldpreventapplicationoftheruleto (#4 coatingsthatcontainHAPonlyasthesolidcomponent(i.e.,particulateHAP)ortopolymer *V%6 extrudingunits(asdefinedin63.1312(b)). h+&8   Response:Weaddedadefinitionofcoatingtothefinalrulethatincorporatessomeofthe  elementsofthe_commenter_sdefinition,withoutsomeconceptsthatweconsiderunnecessary. b ThefinalruledoesnotspecificallyexemptparticulateHAP,butweareunawareofanycoatings t processesorvesselsthatemitparticulateHAP.Further,anexceptionforextrudedmaterialisnot & necessarybecausetheextrusionshouldbepartofthepolymermanufacturingprocessthatispart 8  ofsourcecategoriessubjecttootherrulessuchassubpartU,SSS,or_FFFF_,andthusisexempt    fromsubpart_HHHHH_.Thefinalrulealsospecifiesthatmiscellaneouscoatingoperationsmust  L  process,use,orproduceHAPinordertobesubjecttotherule.Therefore,wedidnotincludethe ^  conceptthatacoatinghadtocontainavolatileorganicHAP.Thefinalrulecontainsthe   followingdefinitionofcoating: "r  0  Coatingmeansanymaterialsuchasapaint,ink,oradhesivethatisintendedtobeapplied   toasubstrateandconsistsofamixtureofresins,pigments,solvents,and/orother p additives.Typically,thesematerialsaredescribedbyStandardIndustrialClassification \ (SIC)Codes285or289andNorthAmericanIndustrialClassificationSystem(_NAICS_) H codes3255and3259.4(#(# (  Comment7:One_commenter_Ԁ(IVD98)requestedanexemptionforlowvaporpressure  p HAP.    Response:WedidnotprovideanexemptionforlowvaporpressureHAPmaterials 4 becausewecouldnotjustifyanoemissionsreduction_MACT_Ԁfloorforthesematerialsbasedon F ourinformation.Wedidnotcollectinformationthatcouldbeusedtosupporttheconceptthat ! processvesselscontainingonlylowvaporpressurematerialswouldnotbecontrolledtothesame  Z# levelsasthosecontaininghighervaporpressurematerials.Further,wereviewedHAPstorage l% tankthroughputatfacilitiesthatreportedcontrolofprocessvessels,andnotedthatlowervapor  ' _HAPs_,suchasglycolethersandethyleneglycolwerealsousedatthesefacilities.However,for 0") thefinalrule,wehavewrittenthestandardforstationaryprocessvesselsatexistingsourcesto #+ require75percentreductiononlyforHAPwithavaporpressuregreaterthanorequalto0.6_kPa_. $D - Wemadethischangebasedonarevisedanalysisthatshowedthetotalimpactsoftheregulatory V&!/ alternativeareunreasonableforHAPwithvaporpressureslessthan0.6_kPa_.Thus,theseHAP '#1 mustbecontrolledtothe_MACT_Ԁfloorlevelof60percent. )j$3   Comment8:One_commenter_Ԁ(IVD106)requestedanexemptionforQA/QClabsfrom |*%5 thedefinitionof process. +.'7   Response:Weagreewiththe_commenter_ԀbecausenoinformationforQA/QClabsis  includedinourdatabase.Therefore,QA/QClabsareexemptedinthefinalrule. b   Comment9:One_commenter_Ԁ(IVD99)supportedtheprovisionin63.7990(c)tobase t applicabilityforstoragetanksonpredominantuseforfacilitieswithoperationssubjecttoboth & subpart_FFFF_Ԁandsubpart_HHHHH_,butfornewtanks,recommendedreducingtheperiodover 8  whichexpectedusemustbeestimatedfrom5yearsto1year.      Response:Wedidnotreducethe_redeterminaton_Ԁperiodtooneyearfornewsources,as  L  requestedbythe_commenter_,becausewebelievethatmorefrequentredeterminationwouldbe ^  moreburdensomeforthemajorityoffacilities;further,theproposedredeterminationprocedures   areconsistentwiththoseof40_CFR_Ԁpart63,subpart_FFFF_. "r    Comment10:One_commenter_Ԁ(IVD93)recommendedestablishingapplicabilitybased   ontheaffectedsourceratherthanthemajorsourcesothatsmallcoatingmanufacturing 6 operationscolocatedwithlargesurfacecoatingsources(specificallythosesubjectto40_CFR_ H part63,subpart_MMMM_)arenotsubjectto40_CFR_Ԁpart63,subpart_HHHHH_.    Response:Wehavenotmadethesuggestedchangebecausethedefinitionofa major  \ sourceencompassesanentireplantsitewithoutbeingsubdividedaccordingtoindustrial n classificationsoractivities.Thisdefinitioniscontainedinsection112(a)(1)oftheCAA,which    includes anystationarysourceorgroupofstationarysourceslocatedwithinacontiguousarea 2" andundercommoncontrolthatemitsorhasthepotentialtoemitconsideringcontrols,inthe $ aggregate,10tons/yrormoreofanyHAPor25tons/yrormoreofanycombinationofHAP. F&   Comment11:One_commenter_Ԁ(IVD99)requestedexemptionsforminorsources, X ( includingsyntheticminorsources,usinglanguagelikethatinthepreambletothefinalmetalcoil ! * surfacecoating_NESHAP_Ԁ(67FR39795,June10,2002). #l,   Response:Syntheticminorsourcesandareasourcesareexemptfromtherule,provided ~$. theyachievethisstatuspriortothecompliancedateoftherule.Section63.7985(a)(1)ofsubpart %0!0 _HHHHH_Ԁspecificallystatesthattheruleappliesonlytomajorsources.Thus,thereisnoreason B'"2 toprovideanexemptionforsourcesthatarenotmajorsources. (#4   Comment12:One_commenter_Ԁ(IVD106)supportedtheproposedexemptionforR&D *V%6 facilities,withoutathresholdlimit. h+&8   Response:Thisprovisionisretainedinthefinalrule.    b ` ` @Thispageintentionallyleftblank.  `    .-@4.0GENERALISSUESREGARDINGTHESELECTIONOFSTANDARDS   4.10  REGULATEDHAP (#(#   Comment:Accordingtoone_commenter_Ԁ(IVD87),thelackofstandardsforallHAPis B  unlawful.The_commenter_Ԁcited_HCl_,hydrogenfluoride,chlorine,potassiumcompounds,and T  maleicandphthalicanhydridesasexamplesofHAPthatarenotregulated.Another_commenter_   (IVD85)recommendedlistingtheHAPthataresubjecttotherule,orcrossreferencingTable2 h  insubpartFoftheHON. z   Response:Thestandardsinsubpart_HHHHH_ԀapplytoallHAPthatareusedincoating , manufacturing.Ofthesixcompoundscitedbythefirst_commenter_,however,only_HCl_Ԁand > phthalicanhydridearelistedinourdatabase.Allprocessvesselslargerthan250gallonsthat  emitanyHAP,includingthesixcitedbythefirst_commenter_,mustbecontrolled.Similarly,any R storagetankthatmeetsthecapacityandvaporpressurethresholdsforcontrol,mustimplement d controls.WedidnotlisttheHAPintherulebecausetheruleappliestoallHAPlistedinthe  CleanAirAct. (x 4.20  THRESHOLDSFORCONTROL(#(#   Comment:One_commenter_Ԁ(IVD87)statedthethresholdsintheruleunlawfullyexempt  <  emissionpointsfromcontrol.Accordingtothe_commenter_,allemissionpointsmustbe N"" controlled. #$   Response:Wedisagreethateveryemissionpointatamajorsourcemustberequiredto %b & reduceemissions.First,section112(a)oftheCAAdefines stationarysource(through t&!( referencetosection111(a))as: ...anybuilding,structure,facility,orinstallationwhichemits '&#* ormayemitanyairpollutant....(42U.S.C.7412(a)(3)and7411(a)(3)).TheGeneral 8)$, Provisionsforthe_MACT_Ԁprogramdefinetheterm affectedsourceas ...thecollectionof *%. equipment,activities,orbothwithinasinglecontiguousareaandundercommoncontrolthatis +L'0 includedinasection112(c)sourcecategoryorsubcategoryforwhichasection112(d)standard  orotherrelevantstandardisestablishedpursuanttosection112...."(40_CFR_Ԁ63.2).Nothingin b thedefinitionof"stationarysource"orintheregulatorydefinitionof"affectedsource"statesor t impliesthateachemissionpointorvolumeofemissionsmustbesubjectedtocontrol & requirementsinstandardspromulgatedunderCAAsection112. 8    Further,evenunderthe_commenter_sinterpretationof stationarysource,theAgency    wouldstillhavediscretioninregulatingindividualemissionsources.Section112(d)(1)ofthe  L  CAAallowstheAdministratorto ...distinguishamongclasses,types,andsizesofsources ^  withinacategoryorsubcategoryinestablishingsuchstandards....Weinterpretthisprovision   forthemiscellaneouscoatingmanufacturing_NESHAP_,aswehaveforpreviousrules,as "r  allowingemissionlimitationstobeestablishedforsubcategoriesofsourcesbasedonsizeor   volumeofmaterialsprocessedattheaffectedsource.UnderthediscretionallowedbytheCAA 6 fortheAgencytoconsidersizesofsources,wemadethedeterminationthatcertainsmall H capacityandlowuseoperations(e.g.,smallerstoragetanks)canbeanalyzedseparatelyfor  purposesofidentifyingthe_MACT_Ԁflooranddeterminingwhetherbeyondthefloorrequirements  \ arereasonable.Inaddition,our_MACT_Ԁfloordeterminationsforcertaincategories(e.g., n stationaryprocessvessels),whicharesetaccordingtosection112(d)(3)oftheCAA,reflectthe    performancelevelsofthebestperformingsourcesforwhichwehadinformation,including 2" vaporpressurethresholdsorcutoffsbelowwhichthebestperformingsourcesdonotreduce $ emissions. F&   Ingeneral,our_MACT_Ԁfloordeterminationshavefocusedonthebestperformingsources X ( ineachsourcecategory,andtheyconsideraddoncontroltechnologiesaswellasotherpractices ! * thatreduceemissions.Aspartofourinformationcollectioneffort,werequestedinformationon #l, emissionreductionmeasures.Wegenerallydidnotreceiveinformationindicatingthat,forthe ~$. emissionpointscoveredby40_CFR_Ԁpart63,subpart_HHHHH_,sourcesarecurrentlyreducing %0!0 emissionsthroughmeasuresotherthancontroltechnologies(e.g.,byfuelswitchingorraw B'"2 materialsorprocesschanges)insufficientnumberstosupporta_MACT_Ԁfloorbasedonsuch (#4 measures.Accordingly,ourstandardsincludeaperformancelevelthatrepresentsthelevel *V%6 achievedbythebestcontroltechnology,andathresholdorcutoffthatrepresentsthelowest h+&8 emissionpotentialthatiscontrolledbythebest12percentofsources.Becausethe  miscellaneouscoatingmanufacturingsourcecategoryisbroadintermsofthenumbersandtypes b ofprocessingoperationsthatarecovered,onechallengewastodevelopaformatbywhichall t sourcescouldbecomparedtoeachothertoestablishthebestperformingsources.The & performancelevelgenerallyisoftheformatthatcanbeappliedtodifferenttypesofcontrol 8  technologyandprocessesandisgenerallyconsistentwithexistingStateandlocalrules.Thus,    differenttypesofcontroltechnologyandemissionlevelsresultingfromexistingrulesare  L  capturedinour_MACT_Ԁflooranalysis.Thecutoffallowsownersandoperatorsthathavereduced ^  theiremissionsbelowacertainlevelusingoneormoremethods,includingprocesschangesto   reduceoreliminatepollutionatthesource,tocomplywithoutadditionalcontrol.Both "r  performancelevelsandcutoffshavebeensettoaccountforvariationsinemissionstream   characteristicssothatthestandardscanbeappliedconsistentlyacrossthesourcecategory.This 6 approachisconsistentwiththelanguageofCAAsection112(d)(3)thatrequiresustosetthe H _MACT_Ԁfloorbasedonthebestperforming12percentofexistingsources.  4.30  OPERATINGLIMITSFORRECOVERYDEVICES \(#(#   Comment:One_commenter_Ԁ(IVD44)statedthattherequirementin63.8000(d)tomeet n operatinglimitsforrecoverydevicesshouldbedeleted,orweshouldexplainwhysubpart    _HHHHH_Ԁismorestringentthanotherrulesthatdonotrequiremonitoringofrecoverydevices. 2"   Response:Weagreewiththe_commenter_.Theterm recoverydeviceisusedonlyinthe $ wastewaterprovisions.Thereare,ineffect,nomonitoringrequirementsforrecoverydevicesin F& thisruleand,therefore,thereferencetomeetingoperatinglimitsforrecoverydeviceshasbeen X ( deleted.  ! * ` ` @Thispageintentionallyleftblank.  `   /.@ 5.0STANDARDSFORPROCESSVESSELS   5.10  _MACT_ԀFLOORISSUES (#(#   Comment1:One_commenter_Ԁ(IVD87)isnotconvincedthatthefloorforportable B  vesselsshouldbeonlyacoverbecausesomeportablevesselshaveacoverplusaddoncontrol T  devices,andtheactualperformanceofacoveredvesselvariesdependingonthetypeofcover   andotherfactorssuchastheHAPcontentandvaporpressureofthematerialbeingprocessed. h  Similarly,_commenter_ԀIVD87alsoobjectedtothefloorforstationaryprocessvessels,claiming z thatitdoesnotreflecttheactualperformanceofthebestperformers,andthatwehavenot , accountedforvariousfactorsthataffecttheperformance. >   Other_commenters_Ԁindicatedthattheflooristoostringent,orattheveryleastthecontrol  levelshouldnotbeincreasedfrom60percentto80percent.Forexample,_commenter_ԀIVD99 R isnotconvincedthat6percent,ortheaverageofthebestperforming12percent,arecontrolled d becausemanyofthecontrolsareappliedonlytovesselswithspecificcharacteristicsratherthan  _facilitywide_._Commenter_ԀIVD60questionedthevalidityofaveraginguncontrolledsources (x withcontrolledsourcesindevelopingthe_MACT_Ԁfloor,andconcludedthatthefloorshouldbeno  control.Inresponsetoasolicitationforcommentregardingthesettingofthefloorbasedonthe  <  meanorthemedianofcontrolledvessels(i.e.,60percentversus80percentcontrol, N"" respectively),_commenter_ԀIVD99statedthemeanisappropriateforseveralreasons:(1)there #$ aresufficientdatapointstousethemean,(2)60percentrepresentsarealworldtechnology,(3) %b & EPAclaimedin_MACT_Ԁfloormemorandathatthemeanisabettermeasureofthecentral t&!( tendencyofthedata,(4)EPAindicatedduringthestakeholderprocessthatthemeanwouldbe '&#* usedasitisrepresentativeoftheindustryandconsistentwithCongressintentundertheCAA, 8)$, and(5)EPAguidelinesfor_MACT_Ԁdeterminationsundersection112(j)statethatthe_MACT_Ԁfloor *%. shouldbebasedonthemeanunlessthereisalargediscrepancybetweentheemissionreductions +L'0 achievedbyavailablecontroloptions(whichthe_commenter_Ԁindicatedisnotthecasehere  becausecontrolefficienciesareuniformlydistributedbetween2and99percent).Numerous b other_commenters_Ԁ(IVD8,9,11,12,23,28,35,54,96,102,103,124,and125)simplystated t thatthe_MACT_Ԁfloorhasbeenadequatelycharacterized,andshouldnotberevised. &   Nearlyallofthe_commenters_Ԁ(IVD6,8,10,11,13through16,18,19,20,22through 8  25,27through30,35,37,38,40,42,48,54,55,56,58,60,61,62,64,65,66,68,73,76,83,96    through99,100,101,102,103,113,124through127,IVF1a,IVF1d,andIVF1g)objected  L  totheapparentrequirementfor100percentcaptureofemissions,andtheystatedthefloorcontrol ^  levelshouldspecifyonlytheefficiencyofthecontroldevice.Theyexpressedparticularconcern   withastatementinthepreambletotheproposedrulethatindicatedcoversmustbe sealedand "r  _gasketed_.The_commenters_Ԁnotedthat100percentcaptureisnotfeasible(andthereforenot   achievedinpracticeexceptpossiblyifusingchemicalreactiontypevesselsandclosedsolids 6 chargingsystems)becausecoversoftenmustincludeanopeningforanagitatorshaft,andvessels H mustbeopenedperiodicallytotakesamples,addmaterial,andperforminspections.Theyalso  notedthatthisrequirementcontradictsourpositioninstakeholdermeetingsandbackground  \ memoranda,andtheybelievetheICRdatadonotsupportacapturecomponenttothefloor(i.e., n onlyinformationaboutthecontrolefficiencywasrequested)._Commenter_ԀIVF1dnotedthat    sixteenfacilitieshaveprovidedconfirmationthatthevaluesreportedforcontrolefficiencyonthe 2" surveywereinfactforthecontroldeviceonly.Evenifactualcaptureefficienciesareallowed, $ theynotedthattheproposedoverallcapturepluscontrolefficiencyof95percentfornewprocess F& vesselswouldbevirtuallyimpossibletoachievebecauseiteffectivelyrequiresnearly100 X ( percentcapture. ! *   Numerous_commenters_Ԁ(IVD8,9,10,11,23,28,53,96,98,99,102,103,122,124,and #l, 125)objectedtotherequirementthatemissionsfromcleaningaresubjecttocontrol,atleastif ~$. thevesseldoesnothaveanautomaticwashsystem._Commenter_ԀIVD99notedthatmostvessels %0!0 arecleanedbyhand,butevenvesselsthathaveautomaticwashsystemsmustbeopenedfor B'"2 inspectionsaftercleaning. (#4   Response:Wedidnotadjustthe_MACT_Ԁfloorsforportableorstationaryvessels.For *V%6 portablevessels,the_MACT_Ԁflooristoequipeachvessellargerthan250galwithacover.Our h+&8 datashowthatlessthan6percentofportablevesselsareequippedwithaddoncontroldevices,  butover90percentareequippedwithcovers.Wedidnotreceiveinformationregardingany b otheremissionreductiontechniquesbesidestheuseofcoversoraddoncontroldevicesfor t portablevesselsinresponsestoourICRrequestforsuchinformation.Thus,wedonothave & informationindicatingthatasufficientpercentageofsourcestosetafloorareusinganyemission 8  reductiontechniquesotherthancovers,andwecannotsupportafloordeterminationbasedonthe    useofanyothertechniques.  L    Ourdatabaseincludesinformationfor4,628stationaryprocessvesselslargerthan250 ^  gal.Sixpercentofallstationaryprocessvesselscorrespondstoatotalof278vessels.Atotalof   368vesselsareequippedwithsometypeofaddondevice,orabout8percent.Theaverage "r  controlofthebestperforming12percent(60percentreduction)representsatechnicallyfeasible   levelofcontroland,therefore,wedisagreewiththeassertionthatthefloorshouldbenocontrol. 6 Theaveragecontrolefficiencywasdeterminedfor368vessels,including278controlledvessels H andfactoringinnocontrolfortheremaining187toprecords.    The_commenters_Ԁalsocontendedthatreportedefficienciesdonotconsidercapture  \ efficiency.Ofthe378vesselsthatarecontrolled,over278(6percentofthestationaryprocess n vessels)reportedeitherdirectventilationtocontroldevices,reportedclosedventsystemsto    controldevices,orreportedoperatingessentially100percentcapture(routingbuildingexhausts 2" toanincineratoracapturesystem)andcontrol.Therefore,weconcludedthatitisappropriateto $ settheexistingsource_MACT_Ԁfloorforstationaryprocessvesselslargerthan250galonan F& overallcontrolefficiencybasedonthereportedefficiencies. X (   Thenewsource_MACT_Ԁfloorsforportableandstationaryprocessvesselslargerthan250 ! * galarebasedonthebestperformingsource.Forbothportableandstationaryprocessvessels,the #l, bestperformingsourcecoversthevesselsandventsemissionsthroughaclosedventsystemtoa ~$. thermalincineratorwithanoverallcontrolefficiencyof95percent.Thus,the_MACT_Ԁfloorsare %0!0 basedontheseconditions. B'"2   Werecognizethatbasing_MACT_Ԁfloorsforstationaryandportablevesselsoncaptureand (#4 controldoesnotovertlyconsiderfuel,materials,process,orsimilarchangesthatcouldresultin *V%6 loweroverallmassemissions.However,basedontheinformationwehave,wecannot h+&8 accuratelyquantifyalevelofmassemissionsthatcouldresultfromsuchemissionreduction  techniquesasa_MACT_Ԁfloorandthatcouldbeachievedbyallcoatingmanufacturersgiventhe b variabilityinprocessingoperations,thescaleofprocessingoperations,andproducts t manufactured. &   Wedidnotspecificallyrequestinformationforportableorstationaryprocessvesselswith 8  capacitieslessthan250gal,andwedonothaveanysuchinformation.Weseta_MACT_Ԁfloorof    noemissionsreductionsbecausewedonothaveinformationindicatingthatasufficient  L  percentageofsourcesareusingemissionreductiontechniquesoraddoncontrolstoenableusto ^  seta_MACT_Ԁfloor.     The_MACT_Ԁfloorforstationaryprocessvesselsatexistingsourcesisbasedonoverall "r  control.Thus,thefinalrulespecifiesthattheseprocessvesselsmusteitherbeequippedwith   tightlyfittingventedcoversandclosedventsystemsmeetingtherequirementsofsubpartSSof 6 40_CFR_Ԁpart63.Wehavedecidedtoexemptsomeemissionsreleasesthatresultfromsafetyand H hygienepracticesbecauseitisunlikelythattheseventswouldreachthe50_ppmv_Ԁconcentration  leveldefinedtobeaprocessvesselvent.Theexemptionalsowillrelieveownersandoperators  \ fromtheburdenofdemonstratingthattheymeettheconcentrationlevel.Specifically,the n definitionofprocessvesselventexcludesflexibleelephanttrunksystemsthatdrawambientair    (i.e,systemsthatarenot_ducted_,piped,orotherwiseconnectedtotheunitoperations)awayfrom 2" operatorsthatcouldbeexposedtofumeswhenvesselsareopened.Asanalternative,capture $ efficiencymustbeconsideredintheoverallcontrolefficiencydeterminationifvesselsarenot F& equippedwithtightlyfittingventedcoversandclosedventsystems.Openingofcoversfor X ( additionofmaterials,sampling,etc.,isincludedaspartofthecaptureefficiencydemonstration. ! * Fornewsources,thefinalrulerequirestheuseoftightlyfittingventedcoverstocontrols; #l, determiningcaptureisnotanoptionbecause,asthe_commenters_Ԁnoted,achieving95percent ~$. overallcontrolwouldrequirenearly100percentcapture. %0!0   Finally,wehavenotrequiredcontrolofcleaningthatisaccomplishedmanually. B'"2 However,emissionsresultingfromautomaticwashsystemsarerequiredtobeconsideredand (#4 controlled.Similarly,controlisrequiredforemissionsresultingfromflushingoflinesorother *V%6 equipmentwithsolventattheendofabatchbecausetheseareclosedoperations. h+&8   Comment2:One_commenter_Ԁ(IVD38)requestedthatweclearlydefinethestarting  pointwhenwediscusspercentreductionrequirementsbecausethe_commenter_Ԁisconcernedthat b Statesdonotconsistentlyconsidercapturewhendeterminingtheoverallpercentreduction.The t _commenter_Ԁalsonotedthatdifferentrawmaterialfeedmechanismsaffecttheoveralllevelof & controlthatisachieved.Forexample,ifemissionsarecontrolledbyusingacondenserata 8  particulartemperature,the_commenter_Ԁnotedthattheoverallcontrolwouldbebetterifraw    materialsareaddedthroughaclosedhopperandscrewconveyorfeedsystemthaniftheraw  L  materialsareaddedmanuallythroughopenhatches. ^    Response:Asdiscussedabove,thefinalrulerequirestheowneroroperatortocomplyby   usingaclosedventsystem,butitalsoallowsuseofemissionsaveragingtoachieveanoverall75 "r  percentforallstationaryprocessvessels.   5.20  LEVELOFSTANDARD6(#(#   Comment:Mostofthe_commenters_Ԁ(IVD6,11through16,18through21,24,25,27 H through30,34,35,40,42,48,54,56,61,62,64though66,68,76,83,99,101,103,113,122,  124through126,andIVF1g)statedthatthestandardforstationaryprocessvesselsatexisting  \ sourcesshouldbesetatthe_MACT_Ԁfloor.Accordingtothe_commenters_,thecostofthe n regulatoryalternativeisunreasonablebecauseouranalysisoverstatedtheuncontrolledemissions,    usedunrealisticmodelplantandemissionstreamcharacteristics,andunderstatedthecosts. 2"   The_commenters_Ԁnotedaboveand_commenter_ԀIVF1edisputedourestimateof $ uncontrolledemissionsforanumberofreasons.Theirprimaryargumentisthattheybelieve F& usingtheEmissionInventoryImprovementProgram(_EIIP_)equationswouldgiveamore X ( accurateestimateoftheHAPemissionsthantheAP42VOCemissionfactor.Theynotedthat ! * EPAhasidentifiedthe_EIIP_Ԁequationsasthepreferredmethod,companiesusethemasthebasis #l, fortitleVpermits,Statespreferthemforpermittingandcompliancedemonstrations,andEPA ~$. specifiestheuseofsimilarequationsinsubpart_GGG_.Conversely,theynotedthattheAP42 %0!0 VOCemissionfactorisinappropriatebecause,typically,halforlessoftheVOCisHAP;the B'"2 factorismeanttoestimateemissionsfromtheentireprocess,notjuststationaryprocessvessels; (#4 andtheindustryhasshiftedtolessvolatilesolventsinrecentyears._Commenter_ԀIVD60 *V%6 provideddatashowingthatthe_EIIP_Ԁmethodology,calibratedwithstacktesting,resultsin h+&8 emissionsequaltoabout0.2to0.6percentofHAPthroughput._Commenter_ԀIVD99alsonoted  thatourbaselineemissionsestimateexceedsfacilitywideToxicReleaseInventory(TRI) b emissions(whichalsoincludenonHAP,fugitives,emissionsfromportablevessels,and t emissionsfromotherprocesses)byfactorsbetween3and36._Commenter_ԀIVD99alsodoesnot & believethat5facilitiesgeneratehalfoftheemissionsinthesourcecategory.Forexample,the 8  _commenter_Ԁcontactedfacilitynumber106(thefacilitywiththehighestestimatedemissions)and    determinedthatonly2percentofthesolventthroughputisattributabletothemanufactureofinks  L  andcoatings;theremainderisassociatedwiththedistributionofpaintthinnersandpaint ^  reducers.     The_commenters_Ԁconsideredmanyofthemodelplantparametersandemissionstream "r  characteristicstobeunrealistic.Relatedtotheirconcernsnotedinsection5.1that100percent   captureisinfeasible,theynotedthatlocalexhaustventilationsystemsusuallyconveylarge 6 volumesofairtominimizeworkerexposure,reducetheriskoffires,andcontaindust.Asa H resultofthehighairflowrates,theynotedthattheHAPconcentrationismuchlowerthanthe  40,000_ppmv_Ԁinourimpactsanalysis.Basedonstacktestdata,_commenter_ԀIVD99statedthat  \ actualconcentrationsarelessthan1,200_ppmv_._Commenter_ԀIVD68indicatedthe n concentrationsareinthehundredsof_ppmv_.The_commenters_Ԁnotedthatfortoluene,the    surrogateHAPusedinouranalysis,40,000_ppmv_Ԁiswithintheflammablerange,whichposes 2" safetyconcernsandwouldnecessitatetheuseofexpensivefire/explosionpreventionequipment $ and_inerting_Ԁsystems._Commenter_ԀIVD99statedthatxyleneshouldbeusedasthesurrogate F& HAPbecauseitisnowfourtimesmoreprevalentthantoluene.The_commenters_Ԁnotedthatthe X ( modelincludedemissionsonlyfromfilling,butemissionsalsoresultfromotherprocesssteps ! * suchasmixing,gassweep,heatup,holding,emptying,andcleaning.Theyalsodisagreedwith #l, theassumptionthatacontroldeviceneedstobesizedtohandleemissionsfromonly5vesselsat ~$. atime.Forexample,_commenter_ԀIVD99indicatedthatmanyfacilitieshavedozensofprocess %0!0 vesselsbeingfilledsimultaneously(asmuchas50to75percentofallvesselsonsite). B'"2 _Commenter_ԀIVD66notedthateachvesselwouldhavetohaveitsowncondenserbecausea (#4 commonheaderposessafetyandproductqualityrisks._Commenter_ԀIVD99objectedtothe *V%6 assumptionthatcondenserscanbeusedtocontrolallprocessvesselsbecausewatercooled h+&8 condenserswillnotbeeffectiveforthelowconcentration(andhighflow)streamsintheindustry,  andcondensersaremeanttooperateforlongperiodsoftimeundersteadystateconditions,not b intermittentlyduringfillingsteps. t   Accordingto_commenters_ԀIVD99andIVF1g,ourcostanalysisincludedanumberof & errorsanddeficiencies.Forexample,theanalysisdidnotincludethecosttoreplaceexisting 8  vesselswithchemicalreactiontypetanksandrawmaterialadditionequipment,whichwouldbe    neededtoevenapproach100percentcapture.Ifcleaningemissionsmustbecontrolled,the  L  _commenter_Ԁindicatedthatacostforautomaticwashsystemsmustbeincluded.Fireandsafety ^  instrumentationandsystemswouldbeneededsincethemodeloperateswithtolueneinthe   flammablerange. "r    Evenifcondensersareassumedtobeapplicableforallprocessvessels(whichthe   _commenter_Ԁopposed,asnotedinsection5.1),the_commenter_Ԁnotedthefollowingconcernswith 6 theanalysis:(1)solventrecoveryisnotfeasiblebecausethecondensedsolventiscontaminated H withcondensedwatervapor(andmustbedisposedofashazardouswaste);(2)theamountof  coolantpipingandvalvespercondenserisunderestimated;(3)_baghouses_Ԁwillbeneeded  \ upstreamofthecondensertoremoveparticulateifsolidmaterialsareaddedtotheprocessvessel; n (4)twostageratherthansinglestagecondenserswillberequiredtooperateatthemodel    operatingtemperatureof32$F;(5)therefrigerationunitneedstobelargeenoughtoservice75 2" percentofthefacilityscondensers;and(6)costsareneededforfoundationsandsupports, $ electricalcomponents,instrumentation,insulation,sitepreparation,andbuildings. F&   _Commenter_ԀIVD99alsostatedtheanalysisunderstatestheincrementalcost X ( effectivenessrelativetothefloorbecauseituseduncontrolledemissionsratherthanbaseline ! * emissions;thecondensercountisincorrectformorethan30facilities;thecostsforcoverswere #l, notincludedforthevesselsthatdonotcurrentlyhavethem;theresultsreportedin$/Mgare ~$. actuallyin$/ton;andthesaturationtolueneconcentrationis37,370_ppmv_,not40,000_ppmv_. %0!0 Basedonasensitivityanalysisthatincorporatessomeofthesesuggestedchangesandlooksata B'"2 rangeofemissionstreamflows,HAPconcentrations,andcontroldevices,the_commenter_ (#4 estimatedthatcostsareatleast5to20timeshigherthanourestimate.The_commenter_Ԁnotedthat *V%6 theseestimatesareconservativelylowbecausetheydonotincludecostsforchemicalreaction h+&8 tanks,rawmaterialadditionequipment,andfiresafetyequipment;theyalsodonotconsiderthe  impactofusingalessvolatilesurrogateHAPonemissionreductions.Evenwithoutchanging b theelementsintheanalysis,_commenter_ԀIVD99statedweshouldconsidertheaveragefacility t costeffectivenessvalueratherthanthenationwidevaluebecauseamajorityofthefacilitiesin & theanalysishaveincrementalcostsabove$3,500/Mg;typically,thesefacilitiesaresmallor 8  producepredominatelywaterbasedcoatings.      Response:Weagreethatthe_EIIP_Ԁguidanceisappropriateforuseinestimatingemissions  L  fromcoatingmanufacturingprocesssources.Wedidnotuse