EPA 453/R-06-004 

September 2006 

Control Techniques Guidelines for 

Flat Wood Paneling Coatings 
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EPA 453/R-06-004 

September 2006 

Control Techniques Guidelines for 

Flat Wood Paneling Coatings 

Sector Policies and Programs Division 

Office of Air Quality Planning and Standards 

U.S. Environmental Protection Agency 

RTP, NC 

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TABLE OF CONTENTS 

I. Introduction..................................................................................Page 1 

II. Background and Overview ..........................................................Page 2 

III. Applicability ................................................................................Page 3 

IV. Process Description and Sources of VOC Emissions..................Page 4 

A. Types of Flat Wood Paneling 

1. Decorative Interior Panels 

2. Exterior Siding 

3. Tileboard 

B. Source of VOC Emissions 

V. Available Control Options...........................................................Page 6 

A. Available Controls 

 1. Low-VOC Coatings 

 2. Ultraviolet Cure and Electron Beam Cure Coatings 

 3. Add-On Controls 

 4. Work Practices 

 B. The 1978 CTG and Existing State and Local Regulatory Approaches 

 1. Summary of the 1978 Flat Wood Paneling CTG Document 

 2. Summary of Existing State and Local VOC Requirements 

VI. Recommended Control Options ..................................................Page 9 

A. Emissions Limit based on Low-VOC Coatings for Inks, Coatings and 

Adhesives 

 B. Optional Add-On Controls for Inks, Coatings and Adhesives 

C. Work Practices 

VII. Cost Effectiveness of Recommended Control Options...............Page 10 

VIII. References....................................................................................Page 11 

Appendix A 

1978 CTG for Flat Wood Paneling..............................................Page 13 

 

Appendix B 

State and Local Regulations for Flat Wood Paneling..................Page 15 

Appendix C 

Estimated Costs Associated with the Recommendations Contained in the 

Control Techniques Guideline for Flat Wood Paneling 

Coating.........................................................................................Page 17 

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I. Introduction

 Clean Air Act (CAA) section 172(c)(1) provides that state implementation plans 

(SIPs) for nonattainment areas must include “reasonably available control measures” 

(RACM), including “reasonably available control technology” (RACT), for sources of 

emissions. Section 182(b)(2)(A) provides that for certain nonattainment areas, States must 

revise their SIPs to include RACT for sources of VOC emissions covered by a control 

techniques guidelines (CTG) document issued after November 15, 1990 and prior to the 

area’s date of attainment. 

 

 The United States Environmental Protection Agency (EPA) defines RACT as “the 

lowest emission limitation that a particular source is capable of meeting by the application 

of control technology that is reasonably available considering technological and economic 

feasibility.” 44 FR 53761 (Sept. 17, 1979). In subsequent Federal Register notices, EPA 

has addressed how states can meet the RACT requirements of the Act. 

 CAA section 183(e) directs EPA to list for regulation those categories of products 

that account for at least 80 percent of the VOC emissions, on a reactivity-adjusted basis, 

from consumer and commercial products in areas that violate the NAAQS for ozone (i.e., 

ozone nonattainment areas). EPA issued the list on March 23, 1995, and has revised the list 

periodically. See 60 FR 15264 (March 23, 1995); see also 71 FR 28320 (May 16, 2006), 70 

FR 69759 (Nov. 17, 2005); 64 FR 13422 (Mar. 18, 1999). Flat wood paneling coatings are 

included on the current section 183(e) list. 

 This CTG is intended to provide state and local air pollution control authorities 

information that should assist them in determining RACT for volatile organic compounds 

(VOCs) from flat wood paneling coating. In developing this CTG, EPA, among other 

things, evaluated the sources of VOC emissions from the flat wood paneling coating 

industry and the available control approaches for addressing these emissions, including the 

costs of such approaches. Based on available information and data, EPA provides 

recommendations for RACT for flat wood paneling coating. 

 States can use the recommendations in this CTG to inform their own determination 

as to what constitutes RACT for VOCs for flat wood paneling coatings in their particular 

nonattainment areas. There are several HAP that are also VOCs. The information contained 

in this document is provided only as guidance. This guidance does not change, or substitute 

for, applicable sections of the CAA or EPA’s regulations; nor is it a regulation itself. This 

document does not impose any legally binding requirements on any entity. It provides only 

recommendations for state and local air pollution control agencies to consider in 

determining RACT. State and local pollution control agencies are free to implement other 

technically-sound approaches that are consistent with the CAA and EPA’s implementing 

regulations 
The recommendations contained in this CTG are based on data and information 

currently available to EPA. These general recommendations may not apply to a particular 

situation based upon the circumstances of a specific source. Regardless of whether a State 

chooses to implement the recommendations contained herein through State rules, or to issue 

State rules that adopt different approaches for RACT for VOCs from flat wood paneling 

coatings, States must submit their RACT rules to EPA for review and approval as part of the 

SIP process. EPA will evaluate the rules and determine, through notice and comment 

rulemaking in the SIP process, whether they meet the RACT requirements of the Act and 

EPA’s regulations. To the extent a State adopts any of the recommendations in this 

guidance into its State RACT rules, interested parties can raise questions and objections 

about the substance of this guidance and the appropriateness of the application of this 

guidance to a particular situation during the development of the State rules and EPA’s SIP 

approval process. 

CAA section 182(b)(2) provides that a CTG issued after November 15, 1990 and 

before the date of attainment must include the date by which States must submit SIP 

revisions in response to the CTG. States subject to section 182(b) should submit their SIP 

revisions within one year of the date of issuance of the final CTG for flat wood paneling 

coatings. States subject to CAA section 172(c)(1) may take action in response to this 

guidance, as necessary to attain. 

II. Background and Overview

In June 1978, EPA published a final CTG for flat wood paneling coatings, entitled 

“Control of Volatile Organic Emissions from Existing Stationary Sources, Volume VII, 

Factory Surface Coating of Flat Wood Paneling,” EPA-450/2-78-034 (June 1978).1

 The 

cover page of the 1978 CTG is included as Appendix A to this CTG. In September 1979, 

EPA published guidance to provide assistance to State and local air pollution control 

agencies in preparing RACT regulations for a variety of categories, including flat wood 

paneling.2

 In 2003, EPA promulgated national emission standards for hazardous air 

pollutants (NESHAP) covering surface coating of wood building products (including flat 

wood paneling). See 68 FR 31746 (May 28, 2003). 

At least 28 State and local jurisdictions have regulations that control VOC emissions 

from surface coating operations that include flat wood paneling. Most of these regulations 

are general surface coating rules; a few are specific to flat wood paneling. Almost all of the 

jurisdictions that specifically address flat wood paneling have based their rules on the 1978 

CTG. However, there are two jurisdictions in California that have requirements specific to 

flat wood paneling that go beyond the 1978 CTG. These jurisdictions are Placer County 

California Air Pollution Control District (Placer County) and South Coast Air Quality 

Management District (South Coast). A discussion of the applicability and control options 

found in the 1978 CTG and in the Placer County and South Coast rules is presented in 

Section V of this document. 

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The remainder of this document is divided into six sections. Section III describes the 

scope of sources to which this CTG could apply. Section IV describes the flat wood 

paneling industry along with the types of flat wood products, and identifies the sources of 

VOC emissions from flat wood related processes. Section V describes the available control 

approaches for addressing VOC emissions from this source category and summarizes state 

and local regulatory approaches for addressing such emissions. Section VI provides our 

recommendations for RACT for flat wood paneling coatings. Section VII discusses the 

cost-effectiveness of the recommended control approaches. Section VIII contains a list of 

references. 

III. Applicability

This CTG applies to facilities that apply flat wood paneling coatings that emit at 

least 6.8 kg/day (15 lb/day) of VOC before consideration of controls. Flat wood paneling 

coatings means wood paneling products that are any interior, exterior or tileboard (class I 

hardboard) panel to which a protective, decorative, or functional material or layer has been 

applied. 

This threshold of 6.8 kg/day (15 lb/day) is consistent with the applicability threshold 

level contained in many previous final CTGs. It is also consistent with the purpose of the 

section 183(e). In section 183(e), Congress directed EPA to assist States in achieving VOC 

emission reductions from consumer and commercial products. These products individually 

may result in relatively small amounts of VOC emissions but, in the aggregate, they 

contribute significantly to ozone formation in nonattainment areas. Given the nature of the 

products and sources at issue here, we believe that the 15 lb/day applicability threshold is 

appropriate. 

We used the 2002 National Emission Inventory (NEI) as the source of emissions data 

and statistical information concerning the flat wood paneling industry as a whole. Plants are 

located throughout the United States, with the Pacific Coast and the Southern States having 

the largest numbers of facilities. There are approximately 80 facilities in the United States 

that produce flat wood paneling products. We found that there are 24 flat wood paneling 

coating facilities that meet the 15 lb of VOC per day applicability threshold for this CTG 

that are located in current ozone nonattainment areas (based on April 2006 designations) in 

eight States. Appendix B shows the distribution of these facilities and the current State 

and/or local requirements that apply to them. Information on flat wood paneling coatings 

facilities in the South Coast area of California was not contained in the 2002 NEI database. 

We have other information, however, which indicates that there are two flat wood paneling 

facilities in the South Coast area. Appendix B does not identify these facilities because

Appendix B focuses solely on the information we obtained from NEI. 

3
IV. Process Description and Sources of VOC Emissions

 A. Types of Flat Wood Paneling

Flat wood paneling products are used in construction and can be classified as three 

main product types: decorative interior panels, exterior siding, and tileboard. 

1. Decorative interior panels 

Interior wall paneling is usually grooved, frequently embossed, and sometimes grain 

printed to resemble various wood species. Interior panels are typically manufactured at the 

same facilities as tileboard, although in much smaller quantities. 

Coated board used for interior panels are subject to industry performance 

specifications (consensus standards) which have more decorative coating requirements than 

other products. These standards require multiple coating layers and coating steps. 

Production speeds of 30 to 35 boards per minute require the use of solvents that evaporate 

without leaving cure blisters and without leaving residual solvent in the coating film or 

substrate. The substrate can be hardboard, plywood, medium density fiberboard (MDF), or 

particleboard. 

2. Exterior Siding 

Exterior siding may be made of solid wood, hardboard, or waferboard. Siding made 

of solid wood and hardboard is typically primed at the manufacturing facility and finished in 

the field, although some finishing may be performed during manufacturing on a limited 

basis. Field-applied coatings are not subject to this CTG. Exterior trim (material made out 

of siding panels and used for edges and corners around the siding) is typically manufactured 

at the same facility and coated with the same coatings as siding. 

 

This industry segment involves exterior products that must have coatings able to 

withstand extreme and long-term weather conditions. These requirements impact the 

amount of VOC emitted from the coating of exterior siding. 

3. Tileboard 

Tileboard is a premium interior wall paneling product made of hardboard that is used 

in high moisture areas of the home such as kitchens and bathrooms. Specifically, tileboard 

meets the specifications for Class I hardboard as approved by the American National 

Standards Institute. The standard specifies requirements and test methods for water 

absorption, thickness swelling, modulus of rupture, tensile strength, surface finish, 

dimensions, squareness, edge straightness, and moisture content for five classes of 

hardboard. 

Product specifications for tileboard are established by consensus standards. 

Tileboard has more stringent product performance requirements (i.e., adhesion and hardness 

4
standards, household stain, scrub and moisture resistance, while maintaining a relative 

smooth surface) compared to standard interior wall paneling. 

 B. Sources of VOC Emissions

Flat wood paneling, like most wood products, are vulnerable to light, moisture and 

insects. Coatings are used for three principal purposes: protection, appearance, and surface 

modification. Surface coatings are applied to reduce potential damage from environmental 

elements such as moisture and temperature extremes and other climate-related hazards and 

from insect infestation. Coatings are also applied to enhance surfaces to make other 

coatings more effective. Finally, coatings are applied to improve the appearance of the 

wood product. Releases of VOC occur during the coating process as the coatings are mixed 

or thinned, as they are applied to the substrate, and as they dry and the VOC within the 

coating evaporate into the air. 

A typical flat wood coating facility applies stains and varnishes to natural plywood 

panels used for wall coverings. Other plants print wood grain patterns on particle board 

panels that were first undercoated with an opaque coating to mask the original surface. 

Coatings applied to flat wood paneling include fillers, sealers, “groove” coats, primers, 

stains, basecoats, inks and topcoats. Most coatings are applied by direct roll coating. Filler 

is usually applied by reverse roll coating. The offset rotogravure process is used where the 

coating and printing operation requires precision printing techniques. Other coating 

methods include spray techniques, brush coating and curtain coating. A typical flat wood 

paneling coating line includes a succession of coating operations. Each individual operation 

consists of the application of one or more coatings followed by a heated oven to cure the 

coatings. A typical production line begins with mechanical alterations of the substrate 

(filling of holes, cutting of grooves, sanding, etc.), followed by the coating operations, and 

packaging/stacking for shipment. 

Emissions of VOC from a flat wood coating facility occur primarily at the coating 

line, although some emissions also occur at paint mixing and storage areas. To assist 

facilities and regulatory agencies in estimating emissions, VOC emission factors for 

conventional solvent based coatings applied to interior printed panels are as follows 

(expressed as kilograms of VOC per 100 m2

 coated): 3.0 for filler, 0.5 for sealer, 2.4 for 

basecoat, 0.3 for inks, and 1.8 for topcoats.1 

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V. Available Controls and State and Local Regulatory Approaches

A. Available Controls

1. Low-VOC Coatings

The use of low-VOC, waterborne coatings has increased since 1978. Paint 

manufacturers have developed and are continuing to develop waterborne coating 

formulations that replace conventional organic solvent-borne coatings. These coatings are 

generally available and often are not produced and marketed specifically for the flat wood 

paneling industry. Conversion to waterborne coatings can lower VOC emissions greatly, 

and most coatings operations are capable of converting to waterborne coatings. 

2. Ultraviolet Cure and Electron Beam Cure Coatings 

A process change that is an alternative to waterborne coatings is the use of coatings 

that cure by ultraviolet (UV) light. This technology is gaining greater acceptance and, 

where applicable, achieves a near 100 percent reduction of VOC emissions. In the flat wood 

paneling industry, UV systems have been found useful on specialty coatings operations. UV 

curing is extremely fast usually taking approximately 10 seconds. UV coatings are found 

only in the application of clear to semitransparent filler and topcoats for paneling and 

cabinetry products. Opaque UV coatings are not available for the flat wood paneling 

industry; however, electron beam (EB) cure systems can use opaque coatings and are 

available for use in the flat wood paneling industry. Over 99 percent reduction can be 

achieved by using EB cure coatings, but the costs of both the cure system and coatings 

themselves limit the applicability of this technique at this time.1 

3. Add-On Controls

For applications where performance requirements or other needs dictate the use of 

high-VOC coatings, flat wood paneling coaters can employ add-on controls to reduce their 

VOC emissions. Currently, an overall control and capture efficiency of 90 percent is a 

widely-accepted and readily available technique. 

4. Work Practices

Another effective means to reduce VOC emissions associated with flat wood 

paneling coatings is the implementation of work practice standards. Work practice 

standards that have proven particularly effective include: (1) frequent visual inspections for 

all equipment used to transfer or apply coatings, adhesives, or organic solvents; (2) cleaning 

and wash off solvent accounting system; (3) collecting and containing all VOCs when 

cleaning coating lines and spray guns; and (4) using low-VOC or low-vapor pressure 

cleaning materials. 

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To provide structure and consistency to their work practices, facilities can develop 

and implement a work practice plan. Such a plan is a compliance option under the 2003 

NESHAP for Surface Coating of Wood Building Products and is equally applicable to VOC 

emissions. The work practice plan is a proven and traditional approach for cleaning that is 

easily adopted and managed by various industries, including flat wood paneling coatings. 

The work practice plan sets forth the steps to be taken to ensure that work practices are 

implemented properly and that VOC emissions are minimized from mixing operations, 

storage tanks and other containers, and handling operations for coatings, thinners, cleaning 

materials, and waste materials. 

 B. The 1978 CTG and Existing State and Local Regulatory Approaches

1. Summary of the 1978 Flat Wood Paneling CTG Document

The 1978 CTG recommends emission limits for flat wood paneling surface coating 

operations. Table 1 summarizes these limits, which are expressed in pounds of VOC 

emitted per 1,000 square feet (lb VOC/1,000 ft2

) of coated surface. These limits could be 

achieved by either using coatings with VOC contents low enough to achieve these limits 

during application, or by reducing the amount of VOCs emitted through the use of add-on 

controls. Because the 1978 RACT recommended emission limit could be met by using 

coatings with sufficiently low VOC content to meet the limit, Table 1 also presents the 

equivalent VOC coating limit expressed as pounds of VOC per gallon of coating, less water 

and exempt compounds (lb VOC/gal-water-exempt compounds). The pounds of VOC per 

gallon of coating is the VOC content of a coating, taking into account such factors as coating 

coverage rate and solids content, that is expected to achieve the emission limitation (lb 

VOC/1,000 ft2

). The equivalent coating limit is especially useful in the context of this CTG, 

because it allows for comparison between the 1978 RACT recommended limit and the 

current Placer County and South Coast requirements discussed later in this section. 

Table 1. 1978 RACT Limits for Factory Surface Coating of Flat Wood Paneling 

Product 

Emission rate limit, 

pound VOC per 1000

square feet coated surface 

(lb VOC/1,000 ft2

) 

Equivalent coating limit, 

pound VOC per gallon of

coating , less water 

and less exempt compounds 

(lb VOC/gal-water-exempt 

compounds) 

Printed interior wall panels made of hardwood

plywood and thin particleboard

6.0 2.5

Natural finish hardwood plywood panels 12.0 3.3 

Class II hardboard panels 10.0 3.6

As indicated in Table 1, the 1978 CTG recommends emission limits for only three 

categories of flat wood paneling products. Other significant categories of factory finished 

flat wood paneling products, exterior siding, and tileboard, were not reviewed during 

preparation of the 1978 CTG. Consequently, emission limits for these product categories 

were not recommended in that document.

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2. Summary of Existing State and Local VOC Requirements

At least 28 State and local jurisdictions have regulations that control VOC emissions 

from surface coating operations that include flat wood paneling. Most of these regulations 

are general surface coating rules; a few are specific to flat wood paneling. Appendix B lists 

the jurisdictions where the 24 facilities that meet the applicability criterion in this CTG are 

located. 

Almost all of the jurisdictions that specifically address flat wood paneling have 

based their rules on the 1978 CTG. However, there are two jurisdictions in California that 

have requirements specific to flat wood paneling that go beyond the 1978 CTG. In Placer 

County, VOC emissions from flat wood paneling operations in a nonattainment area are 

limited to 250 g VOC/l (2.1 lb VOC/gal) of coating (excluding water and exempt 

compounds) or the overall control device efficiency must be at least 90 percent (see 

Appendix B). 

The South Coast rule defines flat wood paneling as “interior wood panels and 

exterior wood siding, which include, by way of illustration and not limitation, redwood, 

cedar or plywood stocks, plywood panels, particle boards, composition hard boards, and any 

other panels or siding constructed of solid wood or a wood-containing product.” The 

emissions limit established by the South Coast rule is identical to the emission limit 

established by Placer County, and also covers exterior siding, which the Placer County rule 

does not. 

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VI. Recommended Control Options

 

Based on a review of the recommendations in the 1978 CTG, the current State and 

local requirements discussed above, and the 2003 NESHAP, we recommend emission limits 

for the inks, coatings and adhesives used by the flat wood paneling coating facilities and 

work practices for cleaning materials used. 

The recommended emission limits for inks, coatings, and adhesives can be achieved 

either by using materials with VOC contents low enough to achieve the limits during 

application, or by reducing the amount of VOC emitted through the use of add-on controls. 

There are two alternative limits recommended for the use of low VOC inks, coatings and 

adhesives. These limits are expressed in different units, but are equivalent. Table 2 

summarizes the VOC emission limits recommended in this CTG. 

 

A. Emissions Limit based on Low-VOC Coatings for Inks, Coatings and 

Adhesives

The low-VOC materials recommendation for inks, coatings and adhesives include an 

emissions limit of 250 g VOC/l (2.1 lb VOC/gal) of material (minus water and exempt 

compounds). An equivalent limit, expressed as units of weight of VOC per volume of solids 

in all coatings would is 350 grams of VOC per liter solids (2.9 lb of VOC per gal of solids). 

The default VOC density used for making this conversion was 0.88 kg/liter (7.36 lb/gal). 

 B. Optional Add-On Controls for Inks, Coatings and Adhesives

 Should product performance requirements or other needs dictate the use of higherVOC coatings than specified above, a facility could choose to use add-on control equipment 

to meet an overall control efficiency of 90 percent. Add-on devices include oxidizers and 

solvent recovery systems, which coupled with their attendant systems to capture the VOC 

being released at the affected facilities, can achieve an overall control efficiency of 90 

percent. This control option, like the low-VOC material option noted above, applies to 

surface coatings, inks, and adhesives applied to all types of flat wood paneling. 

 C. Work Practices

This CTG also recommends work practices for use in all flat wood paneling coating 

facilities meeting the applicability threshold noted above. We recommend that the work 

practice plan include steps to ensure that VOC emissions are minimized from mixing 

operations, storage tanks and other containers, and handling operations for coatings, 

thinners, cleaning materials, and waste materials. Examples of work practice standards 

include: storing all VOC coatings, thinners, and cleaning materials in closed containers, 

minimizing spills of VOC containing coatings, thinners, cleaning up spills immediately, 

conveying any coatings, thinners, and cleaning materials in closed containers or pipes, 

closing mixing vessels which contain VOC coatings and other materials except when 

9
specifically in use, and minimizing emissions of VOC during cleaning of storage, mixing, 

and conveying equipment. 

Table 2. Recommended Emission Limits for Flat Wood Paneling Coating Operations 

Should Meet One of These Emission Limits: 

Surface Coatings, Inks, or Adhesives 

Applied to the Following Flat Wood

Paneling Categories 

lb VOC per 

gallon material 

(grams VOC per 

liter material) 

[excluding water 

and exempt

compounds ] 

lb VOC per 

gallon solids 

(grams VOC per 

liter solids) 

Overall Control 

Efficiency Using an 

Add-On Control 

Device: 

Printed interior panels made of 

hardwood, plywood, or thin

particleboard

2.1 (250) 2.9 (350) 90% 

Natural finish hardwood plywood

panels

2.1 (250) 2.9 (350) 90% 

Class II finishes on hardboard panels 2.1 (250) 2.9 (350) 90% 

Tileboard 2.1 (250) 2.9 (350) 90% 

Exterior siding 2.1 (250) 2.9 (350) 90% * We also recommend that those facilities that meet the applicability threshold noted above follow work

practice standards.

VII. Cost Effectiveness of Recommended Control Options 

 

Cost-effectiveness estimates were determined based on South Coast district studies 

and on studies performed by EPA during development of the 2003 NESHAP. 

Effective January 1, 2000, a new VOC limit was proposed for flat wood paneling 

facilities in the South Coast Air Quality Management District of California. The new

regulation reduced the allowable VOC content for inks from 2.5 pounds per gallon (300 

grams per liter) to 2.1 pounds per gallon (250 grams per liter) and reduced the allowable 

VOC content for exterior siding coatings from 2.9 pounds per gallon (350 grams per liter) to 

2.1 pounds per gallon (250 grams per liter). At the time of proposal of the South Coast rule, 

there were two facilities in the district that would be affected by the regulation changes. 

One facility manufactured interior paneling and the other manufactured exterior siding. 

Only the exterior siding facility was not in compliance with the new limits. As part of the 

South Coast proposal, a cost effectiveness analysis was performed for the facility. It was 

determined that the facility could switch to two lower-VOC stains for an annual cost of 

$3,200 and reduce VOC emissions by 2,900 pounds per year (1.45 tons per year), which has 

a cost-effectiveness of approximately $2,200/ton in 2000 dollars. The facility applying 

coatings to exterior siding is believed to be representative of most exterior siding facilities. 

The surface coating of wood building products NESHAP applies to various 

operations, including flat wood paneling coatings. The NESHAP sets requirements for 

emissions of hazardous air pollutants (HAP) and includes the use of low-HAP material as a 

compliance option. The majority of HAP are VOCs. In developing the NESHAP, EPA 

estimated in 1998 dollars, the cost-effectiveness of using low-HAP materials. The facilities 

10
used in developing the NESHAP were also analyzed for VOC emissions so the cost

effectiveness is described in terms of HAP and VOC. The cost of compliance for six 

facilities in the interior wall paneling and tileboard category was estimated to be $760,000 

and result in VOC reductions of 480 tons ($1,600 per ton of VOC) in 1998 dollars.7

 

Using the Marshall and Swift Index, the costs in 1999 and 1998 dollars, respectively, 

were scaled to estimate 2005 dollars. The resulting cost effectiveness estimate, in 2005 

dollars, for the California flat wood paneling facility that manufactures exterior siding is 

$2,600 per ton of VOC. Escalating the NESHAP figures to 2005 dollars, the cost 

effectiveness is $1,900 per ton of VOC for interior paneling/tileboard. The cost 

effectiveness of controls for exterior siding operations could vary substantially for facilities 

already complying with the 2003 NESHAP. When developing their requirements for the 

exterior siding operations, States should consider the impacts of such measures on facilities 

already subject to the NESHAP. 

VIII. References

1. Control of Volatile Organic Emissions from Existing Sources - Volume VII: Factory 

Surface Coating of Flat Wood Paneling. Publication No. EPA-450/2-78-032. U. S. 

Environmental Protection Agency, Research Triangle Park, NC. June 1978. 

2. Guidance to State and Local Agencies in Preparing Regulations to Control Volatile 

Organic Compounds from Ten Stationary Source Categories. EPA-450-2-79-004. 

U. S. Environmental Protection Agency, Research Triangle Park, NC. September 

1979. 

3. Placer County (California) Air Quality Management District Rule 238, Factory 

Coating of Flat Wood Paneling. Amended August 14, 1997. 

4. 1972 Census of Manufacturers, United States Bureau of Census, Vol. II, Industry 

Statistics, Part I. SIC 20-26, 2431, 2435, 2436, 2493, 2496 

5. Flat Wood Paneling Surface Coating Plants. In: Directory of Volatile Organic 

Compound Sources Covered by Reasonably Available Control Technology (RACT) 

Requirements, Volume II: Group II RACT Categories, EPA 450/4-81-0075, U. S. 

Environmental Protection Agency, Research Triangle Park, NC. February 1981. 

6. Control Techniques for Volatile Organic Compound Emissions from Stationary 

Sources. Publication No. EPA-453/R-92-018. U. S. Environmental Protection 

Agency, Research Triangle Park, NC. December 1992. 

7. Background Information Document for NESHAP for the Wood Building Products 

(Surface Coating Industry). EPA-453/R00-003. U. S. Environmental Protection 

Agency, Research Triangle Park, NC. May 2001. 

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Appendix A 

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Appendix B 

Flat Wood Paneling Coating Facilities in Current Nonattainment Areas and 

Associated State or Local Requirements (Based on 2002 NEI) 

Ozone 

Nonattainment 

Area 

Number

of

Facilities 

Product Applicability Applicable State 

Emission Limit 

Alternative 

Control 

Device Limits

Placer County 

(California) 

1 1978 CTG

Not applicable to exterior siding. 

<2.1 lb VOC per 

gallon of coating 

(excluding

water) 

Overall control

efficiency of 

90% 

Michigan 1 Interior paneling.

Not applicable to exterior siding, 

cabinetry, furniture or tileboard. 

1978 CTG

Limits 

1978 CTG

Limits 

North Carolina 1 1978 CTG

Not applicable to exterior siding and

tileboard. 

1978 CTG

Limits 

1978 CTG

Limits 

Ohio 1 No rule specific to flat wood, wood

building products or tileboard. 

1978 CTG

Limits 

1978 CTG

Limits 

 South Carolina 1 Wood construction products for

interior paneling 

Not applicable to exterior siding and

tileboard. 

1978 CTG

Limits 

1978 CTG

Limits 

Texas 2 Interior paneling and tileboard

Not applicable to exterior siding. 

1978 CTG

Limits 

1978 CTG

Limits 

Virginia 1 Interior panels

Not applicable to exterior siding and

tileboard. 

1978 CTG

Limits 

1978 CTG

Limits 

Indiana 3 Interior panels

Not applicable to exterior siding and

tileboard. 

1978 CTG

Limits 

1978 CTG

Limits 

Tennessee 1 Interior paneling

Not applicable to exterior siding and

tileboard. 

1978 CTG

Limits 

1978 CTG

Limits 

Illinois 1 None None None

Pennsylvania 8 None None None

New Hampshire 2 None None None

Wisconsin 1 1978 CTG Limits

Not applicable to exterior siding and

tileboard. 

1978 CTG

Limits 

1978 CTG

Limits 

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Appendix C 

Estimated Costs Associated with the Recommendations Contained in the Control 

Techniques Guideline for Flat Wood Paneling Coating 

I. Introduction

This appendix presents the estimated costs associated with implementing the 

recommendations in the Control Techniques Guidelines (CTG) for controlling volatile 

organic compounds (VOC) emissions from flat wood paneling surface coating facilities in 

ozone nonattainment areas. The CTG contains guidance for State and local pollution control 

agencies to use in determining reasonably available control technology (RACT) for VOC 

emissions from flat wood paneling coatings. State and local agencies are free to adopt the 

recommendations contained in the CTG or to implement other technically-sound approaches 

for RACT, provided these approaches are consistent with the Clean Air Act (CAA) and EPA 

implementation regulations. Accordingly, there is necessarily some uncertainty in any 

prediction of costs and emission impacts associated with the recommendations contained in 

the CTG. For purposes of this analysis, we assume that all states will adopt the 

recommendations of the CTG. 

According to the 2002 National Emissions Inventory (NEI), there are 24 flat wood 

paneling facilities in the United States that are located in ozone nonattainment areas (based 

on April 2006 designations). These facilities emit greater than 15 pounds VOC per day 

from flat wood paneling surface coating operations and will possibly be affected by the 

CTG. 

II. Cost Analysis 

The 24 flat wood paneling facilities are found in thirteen states. Nine of the states 

have state regulations that currently affect VOC emissions from interior panels, but not 

tileboard or exterior siding. These nine state regulations recommend the same compliance 

options as are recommended in the CTG. By contrast, the CTG provides recommendations 

for interior paneling, tileboard, and exterior siding. In the remaining four states, there are 

currently no state regulations that affect flat wood paneling product facilities. 

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To determine the overall expected costs, the facilities were researched to determine 

the product types at each of the 24 facilities. Fifteen facilities were roughly identified as 

interior product producers (interior panels, tileboard) and nine facilities were roughly 

identified as exterior product producers (exterior siding). These product types were 

compared to the current flat wood paneling state regulations (if any) to determine whether or 

not the facility could be financially affected by the CTG. If the product type at the facility is 

covered by a state regulation, the facility is assumed to be in compliance with the limits in 

the CTG and have no costs. 

Costs could be associated with 12 facilities from Illinois, New Hampshire, Michigan, 

and Pennsylvania. If these states adopt the recommendations from the CTG, costs could be 

incurred to make changes to their coatings in order to meet the recommendations of the 

CTG. The facilities in these four states include two interior panel facilities, one tileboard 

facility, and nine exterior siding facilities. 

The costs of compliance for the 12 identified facilities were based on the cost 

effectiveness calculations in the CTG, which are $2,600 per ton of VOC reduced from 

exterior siding facilities and $1,900 per ton of VOC reduced from interior paneling and 

tileboard facilities. To estimate the cost for implementing the recommendations of the CTG 

for exterior siding, we used the cost effectiveness estimate from South Coast AQMD 

($2,600 per ton of VOC), as opposed to the higher number associated with the NESHAP 

(i.e., $4,400 per ton). We believe the South Coast AQMD estimate is more realistic because 

it is based on actual VOC reduction and conversion costs from a specific facility, whereas 

the NESHAP estimates were based on average coating usages and average coating costs. 

The amount of VOC reduced was based on the VOC emissions in the 2002 NEI 

database attributed to flat wood product surface coating (according to the SCC). To 

calculate the emission reductions, an overall percent reduction was used for each of the 

twelve facilities. For interior paneling products and tileboard in the NESHAP, VOC 

emissions were reduced by an average of 60 percent for all facilities. For exterior siding 

products in the NESHAP, VOC emissions were reduced by an average of 91 percent for all 

facilities. Emission reduction estimates for exterior siding products were also performed as 

part of the cost effectiveness analysis conducted in South Coast AQMD. The analysis 

showed a reduction of VOC emissions by an average of 87 percent. To maintain the most 

realistic estimate of exterior siding costs, we used the real facility reduction associated with 

South Coast AQMD (87 percent), as opposed to the higher percent reduction estimate from

the NESHAP (91 percent). The cost effectiveness of controls for exterior siding operations 

could vary substantially for facilities already complying with the 2003 NESHAP. When 

developing their requirements for the exterior siding operations, States should consider the 

impacts of such measures on facilities already subject to the NESHAP. The respective 

percent reductions for the two product types were assumed to be true for the 12 identified 

facilities in nonattainment areas possibly affected by the CTG. 

The overall cost anticipated for the twelve facilities is $1.2 million, with an average 

cost per facility of $101,000 and an average VOC reduction of 77 percent. The data are 

shown in Table C-1. 

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Table C-1. Cost Summary for Flat Wood Product Surface Coating Facilities 

Interior panels/tileboard

facilities 

Exterior siding 

facilities 

Number of facilities in ozone nonattainment areas 15 9

Number of facilities that could incur costs to 

comply with CTG 

3 9

VOC emissions from 2002 NEI (tons) 297 tons 368 tons

Percent reduction expected 60% 91% 

Amount of VOC emissions reduced (tons) 178 tons 335 tons

Cost of CTG implementation ($/ton VOC reduced) $1,900 $2,600

Total costs ≈ $339,000 ≈ $871,000

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United States 

Environmental Protection Agency 

Office of Air Quality Planning and Standards 

Sector Policies and Programs Division 

Research Triangle Park, NC 

Publication N