[Federal Register Volume 63, Number 126 (Wednesday, July 1, 1998)]
[Rules and Regulations]
[Pages 35842-35844]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 98-17517]



[[Page 35842]]

-----------------------------------------------------------------------

ENVIRONMENTAL PROTECTION AGENCY

40 CFR Part 52

[IL163-1a; FRL-6119-2]


Approval and Promulgation of Implementation Plans; Illinois

AGENCY: United States Environmental Protection Agency (U.S. EPA).

ACTION: Direct Final Rule.

-----------------------------------------------------------------------

SUMMARY: On August 21, 1995, U.S. EPA promulgated a site-specific 
volatile organic material (VOM) rule for Riverside Laboratories, Inc.'s 
(Riverside) Kane County facility. The rule consisted primarily of a 
compliance date extension for Riverside through December 31, 1996, 
after which time Riverside is required to meet the applicable 
requirements of the Chicago-area Federal Implementation Plan (FIP). On 
October 10, 1997, the State of Illinois requested that U.S. EPA approve 
a change in regulatory status for Riverside, based on Riverside's 
current compliance with the applicable State Implementation Plan (SIP) 
rule. For the reasons discussed below, U.S. EPA is today approving the 
State plan as applying to Riverside.
    U.S. EPA is taking this action as a ``direct final'' rulemaking; 
the rationale for this approach is set forth below. Elsewhere in this 
Federal Register, U.S. EPA is proposing this action and soliciting 
comment. If adverse written comments or a request for a public hearing 
are received, U.S. EPA will withdraw the direct final rule and it will 
not take effect. U.S. EPA will address the comments received in a new 
final rule. If no adverse written comments are received, no further 
rulemaking will occur on this requested SIP revision.

DATES: This final rule is effective August 31, 1998 unless written 
adverse comments or a request for a public hearing are received by July 
31, 1998. If adverse comment is received, EPA will publish a timely 
withdrawal of the direct final rule in the Federal Register and inform 
the public the rule will not take effect.

ADDRESSES: Written comments can be mailed to: J. Elmer Bortzer, Chief, 
Regulation Development Section, Air Programs Branch (AR-18J), Air and 
Radiation Division, U.S. Environmental Protection Agency, 77 West 
Jackson Boulevard, Chicago, Illinois, 60604.
    A public hearing may be requested, to be held in Chicago, Illinois. 
Requests for a hearing should be submitted to J. Elmer Bortzer. 
Interested persons may call Steven Rosenthal at (312) 886-6062 to see 
if a hearing will be held and the date and location of the hearing. Any 
hearing will be strictly limited to the subject matter of this action, 
the scope of which is discussed below.
    Copies of the SIP revision request are available for inspection at 
the following address: (It is recommended that you telephone Steven 
Rosenthal at (312) 886-6052, before visiting the Region 5 office.)
    U.S. Environmental Protection Agency, Region 5, Air and Radiation 
Division, 77 West Jackson Boulevard, Chicago, Illinois, 60604.

FOR FURTHER INFORMATION CONTACT: Steven Rosenthal, Air Programs Branch 
(AR-18J) at (312) 886-6052.

SUPPLEMENTARY INFORMATION:

I. Background

    On June 29, 1990, U.S. EPA promulgated a FIP which contained 
Reasonably Available Control Technology (RACT) regulations for 
stationary sources of Volatile Organic Compounds (VOC) located in six 
northeastern Illinois (Chicago area) counties: Cook, DuPage, Kane, 
Lake, McHenry, and Will.<SUP>1</SUP> Included in U.S. EPA's rules was a 
requirement that paper coating sources be subject to 40 CFR 
52.741(e)(1)(C), which requires that a source achieves either a coating 
limit of 2.9 pounds of VOC per gallon of coating or an 81 percent 
reduction in emissions. On August 30, 1990, Riverside filed a petition 
for review of the FIP in the United States Court of Appeals for the 
Seventh Circuit, Riverside Laboratories, Inc., v. U.S. EPA, Case No. 
90-2886. On August 20, 1991, Riverside filed a petition for 
reconsideration (amended on September 5, 1991) with U.S. EPA, in which 
it contended that its economic status prevented the federal rules from 
being RACT for its facility. Based on the information provided, U.S. 
EPA agreed to reconsider the RACT rules for Riverside. U.S. EPA also 
agreed to issue an administrative stay of the applicable FIP rules, 
pending reconsideration. See 57 FR 27935 (June 23, 1992).
---------------------------------------------------------------------------

    \1\ A definition of RACT is cited in a General Preamble-
Supplement on CTGs, published at 44 FR at 53761 (September 17, 
1979). RACT is defined 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.
---------------------------------------------------------------------------

    On September 9, 1994, U.S. EPA approved a number of Illinois 
volatile organic material (VOM) <SUP>2</SUP> RACT rules, adopted as 35 
Ill. Admin. Code Part 218. 59 FR 46562. These rules established State 
VOM RACT requirements for surface coating operations in the Chicago and 
Metro-East St. Louis ozone nonattainment areas, and replaced a large 
section of the Chicago FIP. These regulations include 35 Ill. Admin. 
Code Sec. 218.204, which contains a RACT rule for paper coating 
operations that is identical to the applicable FIP rule of 2.9 lbs./
gal. (40 CFR 52.741(e)(1)(C)). They also contain the Applicability 
section, at 35 Ill. Admin. Code Sec. 218.203. Under Section 
218.103(a)(2), the effectiveness of the Part 218 rules is stayed as to 
any source which appealed the FIP and received a stay of the 
effectiveness of the FIP pending reconsideration. The rule further 
provides that:
---------------------------------------------------------------------------

    \2\ VOM, as defined by the State of Illinois, is identical to 
VOC, as defined by U.S. EPA.

    When USEPA has published in the Federal Register final action to 
revise or affirm the provisions of the FIP specifically applicable 
to such individual source or category of sources or such stay is 
otherwise terminated, the Board shall take corresponding action and 
the Agency shall submit such action to USEPA for approval. Until 
such time as USEPA approves the corresponding amendment to this 
Part, the FIP rule shall remain the applicable implementation plan 
---------------------------------------------------------------------------
for that source. * * *

    On August 21, 1995, U.S. EPA promulgated a site-specific rule for 
Riverside (60 FR 43388). This rule consists of a compliance date 
extension for Riverside through December 31, 1996. During the period of 
the compliance date extension Riverside was required to, among other 
things, decrease the use of VOC-containing material. Starting on 
January 1, 1997, Riverside's polyester paper coating lines were 
required to meet the applicable FIP requirements in 40 CFR 
52.741(e)(1), (e)(2), and (e)(6). In this rulemaking, U.S. EPA also 
terminated the stay of the FIP.
    On February 13, 1996, U.S. EPA approved a revision to the Illinois 
RACT rules for paper coating operations at 35 Ill. Admin. Code 
218.204(c), which further reduced the applicable VOM pounds-per-gallon 
limitation to 2.3 lbs./gal. 61 FR 5511.
    On October 10, 1997, the Illinois Environmental Protection Agency 
(IEPA) submitted a request to U.S. EPA that it change the regulatory 
status for Riverside to recognize the applicability of Illinois' SIP, 
as federally approved on February 13, 1996. In its letter, IEPA states 
that, as a matter of State law, Riverside is subject to the 2.3 pounds 
VOC per gallon limit in 35 Ill. Administrative Code 218.204(c). For 
that reason, IEPA has requested that the Board not be required to 
conduct further rulemaking. The State intends its October 10, 1997, 
request to fulfill the ``corresponding action'' condition of

[[Page 35843]]

Section 218.103(a)(2). U.S. EPA agrees that it is not necessary to 
require Illinois to conduct additional rulemaking, since the 
regulations are already in the SIP and Riverside does not contest their 
applicability (See Riverside's March 26, 1998, letter regarding rule 
applicability.).

II. Applicability

    As a result of this action, the approved State of Illinois 
regulations, including the emission limits in 35 Ill. Admin. Code 
218.204(c) and the associated control requirements, test methods and 
recordkeeping requirements in Part 218 and the associated definitions 
in Part 211 shall become the federally approved regulations applicable 
to Riverside on August 31, 1998. The site-specific rule applicable to 
Riverside promulgated by U.S. EPA on August 21, 1995, remains in effect 
and is enforceable after August 31, 1998 for the period before August 
31, 1998.

III. Final Action

    At the time U.S. EPA approved Ill. Admin. Code Part 218, the Agency 
determined that the generally applicable rules, along with the 
appropriate test methods, recordkeeping requirements and definitions, 
met the applicable statutory requirements for RACT. U.S. EPA also has 
concluded that the provisions of Ill. Admin. Code 218.204(c) constitute 
RACT for Riverside's Kane County paper coating operations. They are 
thus reasonable replacements for the FIP rule that was promulgated by 
U.S. EPA on June 29, 1990, and the site-specific compliance date 
extension promulgated for Riverside by U.S. EPA on August 21, 1995.
    The U.S. EPA is publishing this action without prior proposal 
because U.S. EPA views this as a noncontroversial revision and 
anticipates no adverse comments. However, in a separate document in 
this Federal Register publication, U.S. EPA is proposing this action 
should adverse comments be filed or a request for a hearing be 
received. This action will become effective without further notice 
unless the U.S. EPA receives relevant adverse comments or a request for 
a hearing on the parallel proposed rule (published in the proposed 
rules section of this Federal Register) by July 31, 1998. Should the 
U.S. EPA receive such comments or a request for a hearing, it will 
withdraw this final rule and publish a document informing the public 
that this action did not take effect. Any parties interested in 
commenting on this action should do so at this time. If no such 
comments are received, the public is advised that this action will be 
effective on August 31, 1998.
    Nothing in this action should be construed as permitting, allowing 
or establishing a precedent for any future request for revision to any 
SIP. Each request for revision to the SIP shall be considered 
separately in light of specific technical, economic, and environmental 
factors and in relation to relevant statutory and regulatory 
requirements.

IV. Administrative Requirements

A. Executive Order 12866

    The Office of Management and Budget has exempted this regulatory 
action from Executive Order 12866 review.

B. Regulatory Flexibility

    Under the Regulatory Flexibility Act, 5 U.S.C. 600 et seq., U.S. 
EPA must prepare a regulatory flexibility analysis assessing the impact 
of any proposed or final rule on small entities. 5 U.S.C. 603 and 604. 
Alternatively, U.S. EPA may certify that the rule will not have a 
significant impact on a substantial number of small entities. Small 
entities include small businesses, small not-for-profit enterprises, 
and government entities with jurisdiction over populations of less than 
50,000.
    This action (SIP approval and a supersession of the FIP under 
section 110) does not create any new requirements, but simply approves 
requirements that the State is already imposing. Therefore, because the 
Federal SIP approval does not impose any new requirements, the 
Administrator certifies that it does not have a significant impact on 
any small entities affected. Moreover, due to the nature of the 
Federal-State relationship under the Act, preparation of a flexibility 
analysis would constitute Federal inquiry into the economic 
reasonableness of the State action. The Clean Air Act forbids U.S. EPA 
to base its actions concerning SIPs on such grounds. Union Electric Co. 
v. EPA., 427 U.S. 246, 256-66 (1976); 42 U.S.C. 7410(a)(2).

C. Unfunded Mandates

    Under Section 202 of the Unfunded Mandates Reform Act of 1995, 
signed into law on March 22, 1995, U.S. EPA must undertake various 
actions in association with any proposed or final rule that includes a 
Federal mandate that may result in estimated costs to state, local, or 
tribal governments in the aggregate; or to the private sector, of $100 
million or more. This Federal action approves pre-existing requirements 
under state or local law, and imposes no new requirements. Accordingly, 
no additional costs to state, local, or tribal governments, or the 
private sector, result from this action.

D. Petitions for Judicial Review

    Under section 307(b)(1) of the Clean Air Act, petitions for 
judicial review of this action must be filed in the United States Court 
of Appeals for the appropriate circuit by August 31, 1998. Filing a 
petition for reconsideration by the Administrator of this final rule 
does not affect the finality of this rule for the purposes of judicial 
review nor does it extend the time within which a petition for judicial 
review may be filed, and shall not postpone the effectiveness of such 
rule or action. This action may not be challenged later in proceedings 
to enforce its requirements. (See Section 307(b)(2)).

E. Congressional Review Act

    The Congressional Review Act, 5 U.S.C. section 801 et seq., as 
added by the Small Business Regulatory Enforcement Fairness Act of 
1996, generally provides that before a rule may take effect, the agency 
promulgating the rule must submit a rule report, which includes a copy 
of the rule, to each House of Congress and to the Comptroller General 
of the United States. Section 804, however, exempts from section 801 
the following types of rules: rules of particular applicability; rules 
relating to agency management or personnel; and rules of agency 
organization, procedure, or practice that do not substantially affect 
the rights or obligations of non-agency parties. 5 U.S.C. section 
804(3). U.S. EPA is not required to submit a rule report regarding 
today's action under section 801 because this is a rule of particular 
applicability.

List of Subjects in 40 CFR Part 52

    Environmental protection, Air pollution control, Hydrocarbons, 
Intergovernmental relations, Ozone, Reporting and recordkeeping 
requirements.

    Dated: June 25, 1998.
Carol M. Browner,
Administrator.

    For the reasons stated in the preamble, part 52, chapter I, title 
40 of the Code of Federal Regulations is amended as follows:

PART 52--[AMENDED]

    1. The authority citation for part 52 continues to read as follows:

    Authority: 42 U.S.C. 7401 et seq.


[[Page 35844]]



Subpart O--Illinois

    2. Section 52.726 is amended by adding paragraph (s) to read as 
follows:


Sec. 52.726  Control strategy: Ozone.

* * * * *
    (s) On October 10, 1997, Illinois submitted a site-specific 
revision to the State Implementation Plan, in the form of a letter from 
Bharat Mathur, Chief, Bureau of Air, Illinois Environmental Protection 
Agency. This October 10, 1997, letter requests a change in regulatory 
status for Riverside Laboratories, Inc.'s Kane County facility, to 
reflect that the Federal site-specific rule for Riverside (40 CFR 
52.741(e)(10)) has been superseded by the State of Illinois 
regulations, including the emission limits in 35 Illinois 
Administrative Code 218.204(c) and the associated control requirements, 
test methods and recordkeeping requirements in Part 218 and the 
associated definitions in Part 211. These State regulations shall 
become the federally approved regulations applicable to Riverside on 
August 31, 1998. The site-specific rule, applicable to Riverside, 
promulgated by the Environmental Protection Agency on August 21, 1995 
(40 CFR 52.741(e)(10)), remains in effect and is enforceable after 
August 31, 1998 for the period before August 31, 1998.

[FR Doc. 98-17517 Filed 6-30-98; 8:45 am]
BILLING CODE 6560-50-P