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30370 Federal Register / Vol. 70, No.

101 / Thursday, May 26, 2005 / Rules and Regulations

TABLE 52.1031.—EPA-APPROVED RULES AND REGULATIONS—Continued


Date Date
State Title/subject adopted approved Federal Register citation 52.1020
citation by State by EPA

* * * * * * *
153 ........... Mobile Equipment Repair and Refin- 2/5/04 5/26/05 [Insert FR citation from published date] .. (c)(54).
ishing.

* * * * * * *
Note.—1. The regulations are effective statewide unless stated otherwise in comments section.

[FR Doc. 05–10481 Filed 5–25–05; 8:45 am] emissions from expandable polystyrene Arizona Department of Environmental
BILLING CODE 6560–50–P foam operations. We are approving local Quality, Air Quality Division, 1100 West
Rule 358—Polystyrene Foam Washington Street, Phoenix, AZ, 85007;
Operations. This rule regulates these and,
Maricopa County, Air Quality Department,
ENVIRONMENTAL PROTECTION emission sources under the Clean Air 1001 North Central Avenue, Phoenix, AZ,
AGENCY Act as amended in 1990 (CAA or the 85004–1942.
Act).
40 CFR Part 52 A copy of the rule may also be available
DATES: Effective Date: This rule is via the Internet at http://www.maricopa.gov/
[AZ–140–128; FRL–7912–3] effective on June 27, 2005. AQ/Rules. Please be advised that this is not
ADDRESSES: You can inspect copies of an EPA Web site and may not contain the
Revisions to the Arizona State the administrative record for this action same version of the rule that was submitted
Implementation Plan, Maricopa County to EPA.
at EPA’s Region IX office during normal
business hours by appointment. You FOR FURTHER INFORMATION CONTACT:
AGENCY: Environmental Protection
can inspect copies of the submitted SIP Jerald S. Wamsley, EPA Region IX, (415)
Agency (EPA).
revisions by appointment at the 947–4111, wamsley.jerry@epa.gov.
ACTION: Final rule. following locations: SUPPLEMENTARY INFORMATION:
SUMMARY: EPA is finalizing approval of Environmental Protection Agency, Region IX, Throughout this document, ‘‘we,’’ ‘‘us’’
revisions to the Maricopa County 75 Hawthorne Street, San Francisco, CA and ‘‘our’’ refer to EPA.
portion of the Arizona State 94105–3901;
Air and Radiation Docket and Information I. Proposed Action
Implementation Plan (SIP). These Center, U.S. Environmental Protection
revisions were proposed in the Federal Agency, Room B–102, 1301 Constitution On March 23, 2005 (70 FR 14616),
Register on March 23, 2005 and concern Avenue, NW., (Mail Code 6102T), EPA proposed to approve the following
volatile organic compound (VOC) Washington, DC 20460; rule into the Arizona SIP.

Local agency Rule # Rule title Adopted Submitted

Maricopa County ........................ 358 Polystyrene Foam Operations ........................................................ 04/20/05 04/25/05

We proposed to approve Rule 358 submittal that is the subject of this Response #1: In their RACT
because we determined that it complied rulemaking. Analysis ,1 MCAQD reviewed the
with the relevant CAA requirements. expandable polystyrene industry, a
Our proposed action contains more II. Public Comments and EPA
wide variety of possible emission
information on this rule and our Responses
control options, and emission limits and
evaluation. EPA’s proposed action provided a 30- controls adopted in other jurisdictions.
On May 2, 2005, we found this rule day public comment period. During this Their RACT analysis outlined a
submittal met the completeness criteria period, we received comments from the compliance strategy of installing
in 40 CFR part 51, appendix V. On following party. specific control equipment and process
February 22, 2005, the Arizona 1. Seth v.d.H. Cooley, Duane Morris, modifications, such as a regenerative
Department of Environmental Quality LLP representing WinCup Holdings, Inc. thermal oxidizer, use of a total
(ADEQ) requested EPA to parallel (WinCup); letter dated April 22, 2005 enclosure for capturing prepuff
process our review of Rule 358 and received via electronic mail April polystyrene aging emissions, and
concurrently with Maricopa County’s 22, 2005. The comments and our different prepuff polystyrene aging
rule adoption process. We agreed to responses are summarized below. regimes, that could be used at the
parallel process Rule 358 using our WinCup facility to meet the Section 303
authority under 40 CFR part 51, Comment #1: The emission limit in
emission limit. MCAQD calculated a
appendix V and, for the purposes of our Rule 358, Section 303, 3.2 pounds of
specific emission reduction due to
March 23, 2005 proposal, we made a VOC per 100 pounds of polystyrene
WinCup’s use of the compliance
completeness finding on the February beads processed, (Section 303 limit) has
22, 2005 submittal according to the no technical basis. There is no 1 ‘‘RACT Analysis for Rule 358 Polystyrene Foam
criteria at 40 CFR part 51, appendix V, connection between Maricopa County
Operations,’’ Planning & Analysis Section,
2.3.1. Our May 2, 2005 completeness Air Quality Division’s (MCAQD) RACT Maricopa County Air Quality Department, Phoenix,
finding applies to the April 25, 2005 Analysis and the Section 303 limit. AZ April 21, 2005.

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Federal Register / Vol. 70, No. 101 / Thursday, May 26, 2005 / Rules and Regulations 30371

strategy, 37.3 tons per year. 2 Then, specific WinCup product lines because applicable to their jurisdiction and
MCAQD calculated the cost WinCup labeled this information sources and part of this obligation
effectiveness of these emission controls confidential. Furthermore, MCAQD involves looking at limits applied to
at $5,414 per ton of VOC reduced. 3 could not present information in such a similar sources in other jurisdictions.
MCAQD developed the Section 303 way as to allow a reader to derive the In Rule 358, MCAQD must adopt and
compliance strategy after reviewing information which WinCup claimed as submit to EPA limits that meet our
provisions adopted in other states and confidential. Had WinCup allowed RACT criteria. At MCAQD’s discretion,
localities (see Chapter 5.2) and how MCAQD to be more forthcoming with they may adopt and submit to EPA
cupmakers met similar and more this information labeled as confidential, limits that exceed our RACT criteria. We
stringent emission limits in the Bay the RACT Analysis and its appendices note that the commenter provided no
Area Air Quality Management District could have demonstrated more clearly evidence that compliance with the
(BAAQMD Rule 8–52, 2.8 pounds of the existing link between the Section Section 303 limit is unreasonable for
VOC per 100 pounds of beads 303 emission limit and the VOC Maricopa County facilities given EPA’s
processed, for our discussion, the ‘‘Rule emissions and compliance estimates definition of RACT.
8–52 limit’’) and South Coast Air used in the RACT Analysis. Also, we point out that BAAQMD
Quality Management District (SCAQMD Contrary to the comment, MCAQD Rule 8–52 has one set of limits intended
Rule 1175, 2.4 pounds of VOC per 100 provides three independent rationales fulfill both RACT and BARCT
pounds of beads processed, for our supporting the section 303 limit. First, requirements under California law. In
discussion the ‘‘Rule 1175 limit’’). similar and more stringent limits are in contrast, BAAQMD could have specified
Specifically, Chapter 10 of the RACT effect in other areas. Second, by using separate RACT and BARCT limits as
analysis describes how MCAQD a reasonably available and similar they have done, for example, within
established the Section 303 standard by control strategy employed by cupmakers BAAQMD Rule 9–9. However,
adding 0.4 pounds VOC to BAAQMD’s to meet these similar and more stringent BAAQMD did not do this in adopting
2.8 pound VOC limit. MCAQD added limits, it is technically feasible to meet Rule 8–52.
the Section 303 limit. Third, the cost of Comment #3: MCAQD has not
the 0.4 pounds VOC to account for
compliance with the Section 303 limit demonstrated the technical and
residual VOC in finished products that
is reasonable. In contrast, WinCup economic feasibility of the Section 303
are not stored at the WinCup Corte
provided no evidence that compliance limit based on the physical structures
Madera manufacturing facility. WinCup
with the Section 303 limit is and layout of Wincup’s Maricopa
supplied this information used to
unreasonable for Maricopa County facility.
estimate residual VOC content in their Response #3: It is not appropriate for
finished products.4 facilities.
Comment #2: The Section 303 limit is state and local agencies to analyze the
Finally, in the appendices to the physical structures and layout of every
derived from the BAAQMD Rule 8–52
RACT analysis, MCAQD supplied the potentially affected facility before
emission limit. As determined by
information needed to review the 2001 adopting requirements. Instead,
BAAQMD, the Rule 8–52 limit is a Best
pre-rule implementation VOC emissions agencies consider typical facilities and
Available Retrofit Control Technology
baseline case, the post-rule design elements common to a class of
(BARCT) standard. Under California
implementation estimated VOC facilities.
regulation, BARCT limits are more
emissions, the resulting VOC emission As we outlined in Response to
stringent than RACT limits for the same
reductions, and rule implementation Comment #1, MCAQD did consider the
source. Because the Rule 8–52 limit is
costs. These appendices show the technical and cost feasibility of
defined as BARCT, the Section 303 limit
different VOC capture and destruction implementing the Section 303 standard.
cannot represent RACT.
percentages that result from Response #2: As discussed in MCAQD provided three independent
implementing the MCAQD’s control Response #1, the Rule 8–52 limit was rationales for the section 303 limit.
strategy and that ultimately allow a not the only basis for the Section 303 First, in comparison to the Section 303
cupmaker to meet the Section 303 limit. However, even if MCAQD had limit, similar and more stringent limits
standard. MCAQD’s calculations use the borrowed wholly from the BAAQMD are in effect in other areas such as
Section 303 limit as an end point for rule, nothing in Federal law precludes BAAQMD and SCAQMD. Second, by
estimating emission reductions under MCAQD from adopting in Rule 358 using a reasonably available and similar
the rule and the Section 303 limit can limits taken from other jurisdictions and control strategy employed by cupmakers
be mathematically derived from the submitting them to EPA. There are over to meet these similar or more stringent
information provided in the RACT a hundred state and local agencies in limits, it is technically feasible to meet
Analysis and appendices. the United States that establish the Section 303 limit. Third, the cost of
As MCAQD points out, 5 they did not prohibitory air pollution regulations like compliance with the Section 303 limit
specify precise WinCup production Rule 358 for stationary sources of is reasonable. In contrast, WinCup has
inputs, exact emission rates related to pollution. It is necessary and provided no evidence that compliance
WinCup’s specific production processes appropriate for these agencies to build with the Section 303 limit is technically
or manufacturing practices, or discuss on work performed by others with or economically infeasible for their
production figures or emission rates for similar sources. Phoenix facility.
EPA has defined RACT as the, Comment #4: Under current WinCup
2 See RACT Analysis at Table 12–1, Appendix A–
‘‘lowest emission limitation that a operating conditions, the VOC content
2, Tables III & IV, and Appendix A–3).
3 See RACT Analysis at Table 12–1 and Appendix particular source is capable of meeting of pre-puff polystyrene fed to cup
A–2, Table II. by the application of control technology molding machines is 3.3 to 3.9 percent.
4 See citations 11A, B, and C in RACT Analysis that is reasonably available, considering Therefore, the Section 303 limit cannot
bibliography. technological and economic feasibility’’ be met by installing the control
5 See Comment and Response #5, Notice of Final
(44 Federal Register 53762, September equipment MCAQD assigned to the
Rulemaking (NFRM), Maricopa County Air
Pollution Control Regulations, Rule 358—
17, 1979). MCAQD has the primary WinCup facility in the RACT Analysis
Polystyrene Foam Operations, Preamble, Response obligation to analyze the source category without changing the facility’s pre-puff
to Comments. and determine what controls are polystyrene aging process. MCAQD

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30372 Federal Register / Vol. 70, No. 101 / Thursday, May 26, 2005 / Rules and Regulations

failed to consider and analyze how either of these VOC emission points support must include quantification of
WinCup might be able to change its pre- cost-effective.10 Consequently, WinCup emission changes as a result of the
puff aging processes without affecting has considerable flexibility in how it proposed SIP revision, evidence that
product quality. This failure constitutes may choose to comply with the Section emission limitations are based on
an arbitrary and capricious action. 303 limit. continuous emission reduction
Response #4: MCAQD reviewed the Lastly, we do not believe MCAQD technology, and any modeling required
current operating conditions at WinCup must specify exactly how WinCup will to support the revision (see 40 CFR part
and other expandable polystyrene meet the Section 303 limit in every 51, appendix V, 2.2 (c),(e), and (h)).
molding operations. They found that conceivable circumstance for every Otherwise, the Section 303 limit is an
block makers were able to maintain single product line without unsupported numerical standard and
product quality while modernizing their modification of WinCup’s current EPA’s action to approve this SIP
manufacturing equipment, using a lower operating conditions before MCAQD can submittal is arbitrary and capricious.
VOC bead content, and installing more adopt and apply the Section 303 limit Response #6: The comment cites the
efficient VOC capture and control to WinCup’s operations. MCAQD need three completeness criteria listed above
equipment. 6 MCAQD questioned only perform an analysis sufficient to as the basis for the deficiency described
cupmaker Dart Container Corporation demonstrate that the Section 303 limit in Comment #5. Beyond that, the
on how it meets SCAQMD’s more is consistent with our definition of comment does not claim that these three
stringent Rule 1175 limit while making RACT; that the Section 303 limit is completeness elements were missing.
similar high density products that reasonably available, both on a technical Nonetheless, in our March 23, 2005
WinCup cites as problematic in and economic basis. completeness finding, we found that
implementing the Section 303 limit, and Comment #5: In EPA’s proposed Arizona and MCAQD submitted all the
MCAQD learned that product quality rulemaking action on Rule 358, EPA required elements needed for EPA to
did not suffer due to an emission found complete the February 22, 2005 review the February 22, 2005 SIP
reduction strategy that included a pre- SIP revision submitted to EPA by ADEQ Revision. In particular, we found that
puff polystyrene aging regime. 7 using the criteria at 40 CFR part 51, Arizona quantified emission changes as
MCAQD has information from WinCup appendix V, 2.3.1 (The Completeness a result of the proposed SIP revision; we
showing that they already mold 4.5 Criteria). Under the Completeness found evidence that the emission
pound per cubic foot density product Criteria, a SIP submittal must contain a limitations are based on a continuous
from 3.0% VOC pre-puff. If WinCup fully justified basis. ADEQ’s February emission reduction technology; and, we
installs a 90% efficient emission control 22, 2005 SIP submittal is deficient found that Arizona provided modeling
system and ages the pre-puff to 2.9% because it does not support a RACT sufficient to support the revision.11 In
VOC, it would meet the 3.2 pound VOC standard for expandable polystyrene the case of modeling, no ambient
limit. 8 We cite this evidence presented cup-makers. As a result, EPA must aerometric modeling or specific
by MCAQD to show that they have disapprove this SIP revision pursuant to aerometric models were required for
performed an analysis and have reason 40 CFR part 51, appendix V. this rulemaking so the majority of the
to believe that the Section 303 limit has Response #5: The comment confuses elements described within the criterion
been and can be met as described in the EPA’s completeness finding with EPA’s are not relevant. MCAQD estimated
RACT Analysis, through aging pre-puff subsequent qualitative review and VOC emissions prior to and after rule
polystyrene adequately and capture and proposed action. The Completeness implementation according to a specified
Criteria provide a list of materials that control strategy. This simple modeling
control of these and other VOC
a SIP revision should contain when was all we required.
emissions prior to molding.
submitted to EPA for review. For a few We point out that our March 23, 2005
Also, MCAQD points out that the
items on the list, a state is allowed completeness finding supported our
form of Section 303 limit does not
discretion in determining the proposed action on Arizona’s February
preclude WinCup from implementing
appropriateness of the criterion to the 22, 2005 parallel processing request and
VOC emission controls on molding or
submittal; however, EPA may contradict SIP revision. MCAQD adopted Rule 358
storage emissions. 9 WinCup has
the state’s decision in our completeness on April 20, 2005 after a lengthly public
presented data to MCAQD showing that comment period and Arizona submitted
specific products lines have molding finding. EPA’s March 23, 2005
completeness finding states that Arizona a new SIP revision to complete their
losses of 0.8 pounds of VOC and storage parallel processing request on April 25,
losses of 1.0 pound VOC per 100 pound submitted the material EPA needed to
review and take an action on the SIP 2005. Our May 2, 2005 completeness
beads processed. MCAQD determined finding and today’s final action concern
that these emission rates and the revision. EPA is neither required by 40
CFR part 51, appendix V, nor did we this April 25, 2005 SIP submittal. In this
product’s production volumes are high submittal, we note that Arizona and
enough to make capture and control of use it to review the technical and legal
sufficiency of Rule 358. It is after our MCAQD may submit additional
6 See Comment and Response #24, NFRM, completeness finding that we determine information in support of their SIP
Maricopa County Air Pollution Control Regulations whether or not the SIP submittal revision as a result of their public
Rule 358—Polystyrene Foam Operations, Preamble,
complies with the relevant federal review and comment period.
Response to Comments.
7 See Comment and Response #1 and 24, NFRM, requirements discussed in our TSD, III. EPA Action
Maricopa County Air Pollution Control Regulations proposal, and outlined in Response #1. No comments were submitted that
Rule 358—Polystyrene Foam Operations, Preamble, Comment #6: EPA is required to change our assessment that Rule 358
Response to Comments. review and approve the technical
8 See Comment and Response #24, NFRM, complies with the relevant CAA
Maricopa County Air Pollution Control Regulations
support submitted with the SIP revision.
Rule 358—Polystyrene Foam Operations, Preamble, Among other items, the technical 11 These three elements of the SIP submittal can
Response to Comments. be found in the February 11, 2005 Arizona
9 See Comment and Response #20, NFRM, 10 Again, MCAQD is restricted from presenting Administrative Register Notice of Proposed
Maricopa County Air Pollution Control Regulations the specific product and production volumes due Rulemaking and the RACT Analysis, draft January
Rule 358—Polystyrene Foam Operations, Preamble, to confidentiality strictures applied by WinCup to 28, 2005 at pages 42–44 and appendices A–2 and
Response to Comments. their data. A–3.

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Federal Register / Vol. 70, No. 101 / Thursday, May 26, 2005 / Rules and Regulations 30373

requirements. Also, because our Federal standard, and does not alter the List of Subjects in 40 CFR Part 52
proposed action was based on a parallel relationship or the distribution of power Environmental protection, Air
processing submittal, Maricopa and responsibilities established in the pollution control, Incorporation by
County’s April 20, 2005 adopted version Clean Air Act. This rule also is not reference, Intergovernmental relations,
and subsequent submittal of Rule 358 subject to Executive Order 13045 Ozone, Reporting and recordkeeping
must be similar in meaning and content ‘‘Protection of Children from requirements, Volatile organic
to the February 11, 2005 version of the Environmental Health Risks and Safety compounds.
rule published in the Arizona Risks’’ (62 FR 19885, April 23, 1997),
Administrative Register submitted for because it is not economically Dated: May 5, 2005.
parallel processing. There are no significant. Laura Yoshii,
substantial and meaningful differences In reviewing SIP submissions, EPA’s Acting Regional Administrator, Region IX.
between the two submitted versions of role is to approve state choices, ■ Part 52, Chapter I, Title 40 of the Code
Rule 358. Therefore, as authorized in provided that they meet the criteria of of Federal Regulations is amended as
section 110(k)(3) of the Act, EPA is fully the Clean Air Act. In this context, in the follows:
approving Rule 358 into the Arizona absence of a prior existing requirement
SIP. for the State to use voluntary consensus PART 52—[AMENDED]
IV. Statutory and Executive Order standards (VCS), EPA has no authority
■ 1. The authority citation for Part 52
Reviews to disapprove a SIP submission for
continues to read as follows:
failure to use VCS. It would thus be
Under Executive Order 12866 (58 FR inconsistent with applicable law for Authority: 42 U.S.C. 7401 et seq.
51735, October 4, 1993), this action is EPA, when it reviews a SIP submission,
not a ‘‘significant regulatory action’’ and to use VCS in place of a SIP submission Subpart D—Arizona
therefore is not subject to review by the
that otherwise satisfies the provisions of ■ 2. Section 52.120 is amended by
Office of Management and Budget. For
the Clean Air Act. Thus, the adding paragraph (c)(122) to read as
this reason, this action is also not
requirements of section 12(d) of the follows:
subject to Executive Order 13211,
National Technology Transfer and
‘‘Actions Concerning Regulations That
Advancement Act of 1995 (15 U.S.C. § 52.120 Identification of plan.
Significantly Affect Energy Supply,
272 note) do not apply. This rule does * * * * *
Distribution, or Use’’ (66 FR 28355, May
not impose an information collection (c) * * *
22, 2001). This action merely approves
burden under the provisions of the (122) A plan revision was submitted
state law as meeting Federal
Paperwork Reduction Act of 1995 (44 on April 25, 2005 by the Governor’s
requirements and imposes no additional
requirements beyond those imposed by U.S.C. 3501 et seq.). designee.
state law. Accordingly, the The Congressional Review Act, 5 (i) Incorporation by reference.
Administrator certifies that this rule U.S.C. 801 et seq., as added by the Small (A) Maricopa County Environmental
will not have a significant economic Business Regulatory Enforcement Services Department.
impact on a substantial number of small Fairness Act of 1996, generally provides (1) Rule 358 adopted on April 20,
entities under the Regulatory Flexibility that before a rule may take effect, the 2005.
Act (5 U.S.C. 601 et seq.). Because this agency promulgating the rule must
[FR Doc. 05–10491 Filed 5–25–05; 8:45 am]
rule approves pre-existing requirements submit a rule report, which includes a
BILLING CODE 6560–50–P
under state law and does not impose copy of the rule, to each House of the
any additional enforceable duty beyond Congress and to the Comptroller General
that required by state law, it does not of the United States. EPA will submit a
ENVIRONMENTAL PROTECTION
contain any unfunded mandate or report containing this rule and other
AGENCY
significantly or uniquely affect small required information to the U.S. Senate,
governments, as described in the the U.S. House of Representatives, and 40 CFR Part 52
Unfunded Mandates Reform Act of 1995 the Comptroller General of the United
(Pub. L. 104–4). States prior to publication of the rule in [R01–OAR–2005–ME–0002; A–1–FRL–7915–
the Federal Register. A major rule 1]
This rule also does not have tribal
implications because it will not have a cannot take effect until 60 days after it
Approval and Promulgation of Air
substantial direct effect on one or more is published in the Federal Register.
Quality Implementation Plans; Maine;
Indian tribes, on the relationship This action is not a ‘‘major rule’’ as
Smaller-Scale Electric Generating
between the Federal Government and defined by 5 U.S.C. 804(2).
Resources
Indian tribes, or on the distribution of Under section 307(b)(1) of the Clean
power and responsibilities between the Air Act, petitions for judicial review of AGENCY: Environmental Protection
Federal Government and Indian tribes, this action must be filed in the United Agency (EPA).
as specified by Executive Order 13175 States Court of Appeals for the ACTION: Direct final rule.
(65 FR 67249, November 9, 2000). This appropriate circuit by July 25, 2005.
action also does not have Federalism Filing a petition for reconsideration by SUMMARY: EPA is approving a State
implications because it does not have the Administrator of this final rule does Implementation Plan (SIP) revision
substantial direct effects on the States, not affect the finality of this rule for the submitted by the State of Maine. This
on the relationship between the national purposes of judicial review nor does it revision establishes requirements to
government and the States, or on the extend the time within which a petition reduce emissions of nitrogen oxides
distribution of power and for judicial review may be filed, and (NOX), sulfur dioxide (SO2), particulate
responsibilities among the various shall not postpone the effectiveness of matter (PM), and carbon monoxide (CO)
levels of government, as specified in such rule or action. This action may not from smaller-scale electric generating
Executive Order 13132 (64 FR 43255, be challenged later in proceedings to units. The intended effect of this action
August 10, 1999). This action merely enforce its requirements. (See section is to approve these requirements into
approves a state rule implementing a 307(b)(2).) the Maine SIP. EPA is taking this action

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