[Federal Register Volume 60, Number 63 (Monday, April 3, 1995)]
[Rules and Regulations]
[Pages 16803-16806]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 95-8038]



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ENVIRONMENTAL PROTECTION AGENCY
40 CFR Part 52

[IL91-1-6279a; FRL-5169-4]


Approval and Promulgation of Implementation Plans; Illinois

AGENCY: United States Environmental Protection Agency (USEPA).

ACTION: Direct final rule.

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SUMMARY: The USEPA approves the site-specific State Implementation Plan 
(SIP) revision request submitted by the State of Illinois on January 
25, 1994, for Quantum Chemical Corporation's (Quantum) facility located 
in Morris, Illinois. This site-specific SIP revision alters certain 
Reasonably Available Control Technology (RACT) regulations contained 
within 35 Illinois Administrative Code (IAC) Part 218 as they apply to 
specific units or plants within this facility. This approval is based 
upon sufficient demonstration that factors relating to this facility 
are substantially and significantly different from those relied upon in 
adopting 35 IAC Part 218, and that these factors warrant a 
corresponding adjustment of this facility's RACT requirements. The 
submittal was reviewed for completeness, and was found to be complete 
on March 21, 1994. The rationale for this approval is set forth in this 
final rule; additional information is available at the address 
indicated below. In the proposed rules section of this Federal 
Register, USEPA is proposing approval of and soliciting public comment 
on this requested SIP revision. If adverse comments are received on 
this direct final rule, USEPA will withdraw this direct final rule and 
address the comments received in a subsequent final rule on the related 
proposed rule which is being published in the proposed rules section of 
this Federal Register. No additional opportunity for public comment 
will be provided. Unless this direct final rule is withdrawn no further 
rulemaking will occur on this requested SIP revision.

DATES: This final rule is effective June 2, 1995 unless notice is 
received by May 3, 1995 that someone wishes to submit adverse comments. 
If the effective date is delayed, timely notice will be published in 
the Federal Register.

ADDRESSES: Copies of the USEPA's technical analysis are available for 
inspection at the following address: (It is recommended that you 
telephone Mark J. Palermo at (312) 886-6082 before visiting the Region 
5 Office.)

U.S. Environmental Protection Agency, Region 5, Air and Radiation 
Division, 77 West Jackson Boulevard, Chicago, Illinois 60604.
Written comments should be mailed to: J. Elmer Bortzer, Chief, 
Regulation Development Section, Regulation Development Branch (AR-18J), 
U.S. Environmental Protection Agency, 77 West Jackson Boulevard, 
Chicago, Illinois 60604.
A copy of this SIP revision is also available for inspection at: Office 
of Air and Radiation (OAR), Docket and Information Center (Air Docket 
6102), room 1500, U.S. Environmental [[Page 16804]] Protection Agency, 
401 M Street, SW., Washington, DC 20460.

FOR FURTHER INFORMATION CONTACT: Mark J. Palermo (312) 886-6036.

SUPPLEMENTARY INFORMATION:

I. Background/Summary of Submittal

    On January 25, 1994, the Illinois Environmental Protection Agency 
(IEPA) submitted a site-specific SIP revision request for Quantum's 
Morris, Illinois facility. This site-specific SIP revision would relax 
the Volatile Organic Material (VOM) emission reduction requirements for 
the polymer manufacturing units and cooling water towers at this 
facility.
    The Quantum facility is located in Aux Sable Township, Grundy 
County. Aux Sable Township was added to the Chicago ozone nonattainment 
area, with an effective date of January 6, 1992. The Chicago ozone 
nonattainment area is covered by the RACT requirements contained within 
35 IAC Part 218. The site-specific SIP revision submitted on January 
25, 1994, seeks relaxation of these requirements as they apply to 
specific units or plants within the Quantum facility.
    The Quantum facility in Morris, Illinois is an integrated petroleum 
manufacturing complex that includes manufacturing operations classified 
as organic chemical manufacturing (Standard Industrial Code [SIC] 2869) 
and polymer manufacturing (SIC 2821). The site-specific SIP revision is 
confined to VOM (VOM, as defined by the State of Illinois is identical 
to ``volatile organic compounds'' [VOC], as defined by the USEPA) 
emission sources associated with polymer manufacturing and water 
cooling. In the polymer manufacturing processes, plastic resins are 
synthesized in closed, high pressure reactor units from feed stocks of 
ethane, propane, and butane. During the synthesis process, some of the 
VOM are entrained within the polymer resins. These entrained gases are 
emitted to the atmosphere with the conveying air at numerous exhaust 
points.
    The site-specific SIP revision seeks an adjusted standard for three 
plants at the Quantum facility: the Low Density Polyethylene (LDPE) 
Plant; the Linear Low Density Polyethylene (LLDPE) Plant; and the 
Polypropylene Plant. The site-specific SIP revision also seeks an 
adjusted standard for six water cooling towers at the facility.
    The site-specific SIP revision would alter application of 
regulations found within two sections of the Chicago area RACT rules. 
These are sections 218.966 and 218.986 of the 35 IAC. The rules in 
section 218.966 address miscellaneous organic chemical manufacturing 
processes (35 IAC: Subpart RR), and the rules in section 218.986 
address ``other'' VOM emission sources (35 IAC: Subpart TT). The 
request for an adjusted standard from section 218.966 deals solely with 
the requirements found in subsections (a) and (b), which require a 
reduction of VOM emissions of at least 81 percent or an alternative 
control plan which has been approved by the IEPA and the USEPA. The 
request for an adjusted standard from section 218.986 deals with the 
requirements found in subsections (a), (b), and (c), which require an 
81 percent reduction in uncontrolled VOM emissions, an independent 
requirement for coating lines (not applicable in this case), or an 
alternative control plan which has been approved by the IEPA and the 
USEPA.
    The adjusted standard would pertain to VOM emission sources from 
Quantum's polymer plants' finishing and storage units with the affected 
units defined as follows:

(1) LDPE Plant:
(a) Spin Driers--total of 4 spin driers, one for each line;
(b) Blenders--total of 18 blenders, BL-1 through BL-18, and associated 
bagfilters;
(c) Storage and Car Loading--total of 17 silos, car loading facilities, 
and associated bagfilters;
(2) LLDPE Plant:
(a) Pellet Driers--total of 2 spin dryers, one for each line;
(b) Blenders--total of 12 blenders, 4 for line #5 (BL-13 through BL-16) 
and 8 for line #6 (BL-30 through BL-37), and associated bagfilters;
(c) Multipass Separators--total of 4 multipass separators, 2 at the 
booster blower and 2 at car loading facilities, and associated 
bagfilters;
(d) Scalperators and Hopper Cars--total of 4 scalperators and 2 
bagfilters at car loading facilities;
(3) Polypropylene Plant:
(a) Pellet Driers--total of 4 spin dryers, one for each line;
(b) Blenders--total of 7 blenders and associated bagfilters; and
(c) Storage and Car Loading--total of 24 silos, car loading facilities, 
and associated bagfilters.
In addition, the adjusted standard would pertain to the following:
(1) Non-contact cooling water towers at the Ethylene Plant, LDPE Plant, 
Polypropylene Plant, Utilities Area, and Process Research Area; and
(2) Process cooling water tower at the Ethylene Oxide/Ethylene Glycol 
Plant.

    The SIP revision defines the current operations at the sources 
listed above to be RACT with no additional VOM emission reduction 
needed to meet the requirements of 35 IAC sections 218.966 and 219.986.
    In addition to the above, the SIP revision requires Quantum to 
comply with the following at the LDPE Plant:
    (1) VOM concentrations from the LDPE finishing operations, measured 
at the discharge of the fabric filters (during normal operation in 
which two production lines are running through one bagfilter), may not 
exceed 250 parts per million by weight;
    (2) VOM concentrations from LDPE spin dryers may not exceed 500 
parts per million by weight;
    (3) Quantum shall conduct testing in accordance with 35 IAC section 
218.105 to determine VOM concentrations from the LDPE finishing 
operation and spin dryers upon written request by the IEPA or upon a 
significant change in LDPE product or operation that may increase VOM 
emissions; and
    (4) Quantum shall maintain operation records, as specified in an 
operating permit, that identify any significant changes in LDPE product 
or operation that may increase VOM emissions.
    The adjusted standards described above were adopted by the Illinois 
Pollution Control Board on October 7, 1993, and effective on October 7, 
1993.
    In support of the SIP revision and adjusted standard, Quantum and 
IEPA note that the particular type of polymer manufacturing employed at 
the Morris, Illinois facility was not considered during the 
promulgation of Part 218 of 35 IAC and was not reviewed by the USEPA in 
the preparation of the Control Technology Guideline (CTG) upon which 
RACT for the polymer manufacturing industry was based. It is noted, 
however, that the USEPA did review this type of polymer manufacturing 
during the development of the New Source Performance Standard (NSPS) 
for this source category. The NSPS for this source category exempts (40 
CFR Part 60.560(g)) vent streams from controls where VOM concentrations 
are less than 0.1 percent by weight. The emission sources for which 
Quantum has requested an adjusted standard have vent stream VOM 
concentrations below 0.1 percent by weight.
    Quantum commissioned a study to review possible emission control 
strategies and costs for the low-VOM concentration emission sources 
associated with the polymer manufacturing units. This study considered 
nine possible control technologies, including carbon adsorption, 
absorption, condensation, thermal incineration, catalytic 
[[Page 16805]] incineration, regenerative thermal incineration, 
flaring, and use of a low pressure product separator or degassing 
extruder. The carbon adsorption, absorption, and condensation 
technologies were found to be technically infeasible. The remaining 
control technologies, although considered to be technically feasible, 
were found to be economically unacceptable, with costs ranging from 
$7,270 per VOM ton reduction for regenerative thermal incineration to 
$183,110 per VOM ton reduction for flaring. An additional drawback to 
the incineration technologies is the increased emission of oxides of 
nitrogen, which Quantum and the IEPA believe may add to the formation 
of downwind ozone.
    Quantum and the IEPA agree that, under normal operating procedures, 
little or no VOM should be emitted from the non-contact cooling towers. 
In the case of the single contact cooling tower, which cools process 
water, the VOM emissions are contended to be negligible due to the high 
solubility and low vapor pressure (less than 1 millimeter Hg at ambient 
temperatures) of ethylene glycol, which is the primary VOM to be 
included in the cooled water. Water sampling has also shown a small 
concentration of ethylene oxide, with an expected emission rate of 3.4 
tons per year under normal operating conditions. Therefore, total VOM 
emissions from the contact cooling tower are expected to be minimal.

II. USEPA Analysis of Submittal

    Review of the emissions data provided in Attachment A and Exhibit E 
(``Economic Analysis and Technology Review For Control of VOM Emissions 
From Polyolefin Finishing and Storage Units'') of the SIP revision 
submittal shows that the majority of the VOM emissions occur at the 
LDPE Plant. This plant accounts for 94.1 percent of the annual VOM 
emissions from the polymer manufacturing operations at this facility. 
At the LDPE Plant, nearly all VOM emissions are associated with vent 
emissions from spin dryer and blending operations, with the emissions 
from the blending operations dominating.
    The IEPA and Quantum have correctly interpreted the implications of 
the emission limits specified for vent streams in the NSPS standard. 
Review of process flow and emissions data contained in Attachment A, 
Exhibit E, and Exhibit C (``LDPE Synthesis Simplified Process Flow 
Diagram'') of the submittal show that most of the VOM emissions from 
the LDPE Plant occur at vent streams. Given the low density of VOM in 
the vent streams, less than 0.1 percent by weight, these emissions 
would be exempted if the NSPS is assumed to equivalent to RACT for this 
facility. It is the opinion of the USEPA that this is the case given 
the current nature of the NSPS for this source type and the lack of 
other VOM control analyses specificly representing RACT. It should be 
noted that the VOM emission limits adopted by the State for this source 
would limit emissions to levels below the NSPS cutoffs specified for 
vent streams.
    The remaining emissions from storage and loading operations and 
from water cooling towers can not be exempted under the NSPS exemption 
specified by Quantum and the State. It is noted, however, that these 
emissions are expected to total to less than 10 tons VOM per year. 
Given the small total of these emissions and the high cost of control, 
in excess of $7,500 per ton of VOM controlled, the USEPA agrees that 
the current operations at this facility may be assumed to be RACT.
    Based on the State's submittal, the USEPA approves this site-
specific revision to the Illinois SIP.

Procedural Background

    The USEPA is publishing this action without prior proposal because 
USEPA views this action as a noncontroversial action and anticipates no 
adverse comments. However, USEPA is publishing a separate document in 
this Federal Register publication, which constitutes a ``proposed 
approval'' of the requested SIP revision and clarifies that the 
rulemaking will not be deemed final if timely adverse or critical 
comments are filed. The ``direct final'' approval shall be effective on 
June 2, 1995, unless USEPA receives adverse or critical comments by May 
3, 1995.
    If USEPA receives comments adverse to or critical of the approval 
discussed above, USEPA will withdraw this approval before its effective 
date by publishing a subsequent Federal Register document which 
withdraws this final action. All public comments received will then be 
addressed in a subsequent rulemaking notice. Please be aware that USEPA 
will institute another comment period on this action only if warranted 
by significant revision to the rulemaking based on any comments 
received in response to today's action.
    Any parties interested in commenting on this action should do so at 
this time. If no such comments are received, USEPA hereby advises the 
public that this action will be effective on June 2, 1995.
    This action has been classified as a Table 3 action by the Regional 
Administrator under the procedures published in the Federal Register on 
January 19, 1989 (54 FR 2214-2225), as revised by an October 4, 1993 
memorandum from Michael H. Shapiro, Acting Assistant Administrator for 
Air and Radiation. The Office of Management and Budget has exempted 
this regulatory action from Executive Order 12866 review.
    Nothing in this action should be construed as permitting or 
allowing or establishing a precedent for any future request for 
revision to any SIP. Each request for revision to any SIP shall be 
considered separately in light of specific technical, economic, and 
environmental factors and in relation to relevant statutory and 
regulatory requirements.
    Under the Regulatory Flexibility Act, 5 U.S.C. 600 et seq., USEPA 
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, USEPA may certify that the rule will not have a 
significant economic 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.
    The SIP approvals under section 110 and subchapter I, part D, of 
the Act do not create any new requirements, but simply approve 
requirements that the State is already imposing. Therefore, because the 
Federal SIP approval does not impose any new requirements, I certify 
that it does not have a significant impact on small entities. Moreover, 
due to the nature of the Federal-State relationship under the Act, 
preparation of a regulatory flexibility analysis would constitute 
Federal inquiry into the economic reasonableness of State action. The 
Act forbids the USEPA to base its actions concerning SIPs on such 
grounds. Union Electric Co. v. U.S. E.P.A., 427 U.S. 246, 256-66 (S.Ct. 
1976); 42 U.S.C. 7410(a)(2).
    Under section 307(b)(1) of the Act, petitions for judicial review 
of this action must be filed in the United States Court of Appeals for 
the appropriate circuit by June 2, 1995. Filing a petition for 
reconsideration by the Administrator of this final rule does not affect 
the finality of this rule for the purpose 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)). [[Page 16806]] 

List of Subjects in 40 CFR Part 52

    Environmental protection, Air pollution control, Hydrocarbons, 
Incorporation by reference, Ozone, Volatile organic compounds.

    Dated: February 23, 1995.
Robert Springer,
Acting Regional Administrator.

    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. 7401-7671q.

Subpart O--Illinois

    2. Section 52.720 is amended by adding paragraph (c)(108) to read 
as follows:


Sec. 52.720  Identification of plan.

    (c)* * *
    (108) On January 25, 1994, the State submitted a revision to its 
ozone State Implementation Plan (SIP) for Quantum Chemical 
Corporation's facility located in Morris, Aux Sable Township, Grundy 
County, Illinois. It grants an adjusted standard from Parts 35 Illinois 
Administration Code (IAC) 218.966 and 218.986 as they apply to specific 
units or plants within this facility.
    (i) Incorporation by reference.
    (A) Illinois Pollution Control Board Final Opinion and Order, AS 
92-14, adopted on October 7, 1993, and effective on October 7, 1993.

[FR Doc. 95-8038 Filed 3-31-95; 8:45 am]
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