[Federal Register: September 3, 2003 (Volume 68, Number 170)]
[Proposed Rules]
[Page 52373-52378]
From the Federal Register Online via GPO Access [wais.access.gpo.gov]
[DOCID:fr03se03-14]
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Proposed Rules
Federal Register
________________________________________________________________________
This section of the FEDERAL REGISTER contains notices to the public of
the proposed issuance of rules and regulations. The purpose of these
notices is to give interested persons an opportunity to participate in
the rule making prior to the adoption of the final rules.
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[[Page 52373]]
ENVIRONMENTAL PROTECTION AGENCY
40 CFR Part 51
[FRL-7552-2]
RIN 2060-AK37
Air Quality: Revision to Definition of Volatile Organic
Compounds--Exclusion of 4 Compounds
AGENCY: Environmental Protection Agency (EPA).
ACTION: Proposed rule.
-----------------------------------------------------------------------
SUMMARY: This action proposes to revise EPA's definition of volatile
organic compounds (VOC) for purposes of preparing State implementation
plans (SIPs) to attain the national ambient air quality standards
(NAAQS) for ozone under title I of the Clean Air Act (CAA). This
proposed revision would add four compounds to the list of compounds
excluded from the definition of VOC on the basis that these compounds
make a negligible contribution to tropospheric ozone formation.
With this proposed action the EPA is not finalizing a decision on
how future petitions will be evaluated. EPA is currently in the process
of assessing its VOC policy in general. We intend to publish a future
notice inviting public comment on the VOC exemption policy and the
concept of negligible reactivity as part of a broader review of overall
policy.
DATES: Comments on this proposal must be received by October 3, 2003.
Requests for a hearing must be submitted by September 18, 2003.
ADDRESSES: Comments should be submitted (in duplicate if possible) to:
Air and Radiation Docket and Information Center (6102), Attention:
Docket No. A-2002-03, U.S. Environmental Protection Agency, 1200
Pennsylvania Avenue, NW., Washington, DC 20460. Comments should be
strictly limited to the subject matter of this proposal, the scope of
which is discussed below.
Public Hearing: If anyone contacts EPA requesting a public hearing,
it will be held at Research Triangle Park, NC. Persons wishing to
request a public hearing, wanting to attend the hearing or wishing to
present oral testimony should notify Mr. David Sanders, Air Quality
Strategies and Standards Division (C539-02), U.S. Environmental
Protection Agency, Research Triangle Park, NC 27711, telephone (919)
541-3356. The EPA will publish notice of a hearing, if requested, in
the Federal Register. Any hearing will be strictly limited to the
subject matter of the proposal, the scope of which is discussed below.
The EPA has established a public docket for this action, A-2002-03,
which is available for public inspection and copying between 8:30 a.m.
and 4:30 p.m. Monday through Friday, excluding legal holidays, at EPA's
Docket Center, EPA West Building, 1301 Constitution Ave., NW.,
Washington, DC 20460. A reasonable fee may be charged for copying.
FOR FURTHER INFORMATION CONTACT: David Sanders, Office of Air Quality
Planning and Standards, Air Quality Strategies and Standards Division
(C539-02), Research Triangle Park, NC 27711, phone (919) 541-3356.
Interested persons may call Mr. Sanders to see if a hearing will be
held and the date and location of any hearing.
SUPPLEMENTARY INFORMATION:
Regulated Entities
Entities potentially affected by this action are those (in the list
matrix below) which use and emit VOC as well as States which have
programs to control VOC emissions. This action has no substantial
direct effects on the States or industry because it does not impose any
new mandates on these entities but, to the contrary, removes four
chemical compounds from regulation as a VOC.
------------------------------------------------------------------------
Category Examples of regulated entities
------------------------------------------------------------------------
Industry.......................... Industries that use or make
refrigerants, blowing agents, fire
suppressants, or solvents
States............................ States which have regulations to
control volatile organic compounds
------------------------------------------------------------------------
This matrix lists the types of entities that EPA is now aware could
potentially be regulated by this action. Other types of entities not
listed in the table have the potential of being regulated.
The four compounds we are proposing to exclude from the definition
of VOC all have potential for use as refrigerants, fire suppressants,
aerosol propellants, or blowing agents (used in the manufacture of
foamed plastic). In addition, all of these compounds, may be used as an
alternative to ozone-depleting substances such as chlorofluorocarbons
(CFCs) and hydrochlorofluorocarbons (HCFCs).
Three of the compounds, 1,1,1,2,2,3,3-heptafluoro-3-methoxy-
propane, 1,1,1,2,3,3,3-heptafluoropropane, and methyl formate are
approved by EPA's Significant New Alternatives Policy (SNAP) program
(CAA section 612; 40 CFR part 82, subpart G) as acceptable substitutes
for ozone-depleting compounds. The fourth compound, 3-ethoxy-
1,1,1,2,3,4,4,5,5,6,6,6-dodecafluoro-2-(trifluoromethyl) hexane, has
not been reviewed under SNAP because it was submitted for use in
secondary loop refrigeration systems. Fluids used in these systems are
not covered by the SNAP program (62 FR 10700). However, this compound
is a member of a larger class of compounds known as hydrofluoroethers
(HFEs), and other HFEs have been recognized by SNAP as ODS substitutes.
The EPA uses the SNAP program to identify substitutes for ozone-
depleting compounds, evaluate the acceptability of these substitutes,
promote the use of those substitutes EPA determines to present lower
overall risks to human health and the environment (relative to the
class I and class II compounds being replaced, as well as to other
substitutes for the same end-use), and prohibit the use of those
substitutes found, based on the same comparisons, to increase overall
risks. The SNAP program has identified the HFCs as a class of
replacement substitutes for CFCs. Because they do not contain chlorine
or bromine, they do not deplete the ozone layer. All HFCs have an ozone
depletion potential (ODP) of 0 although some HFCs have high global
warming potential (GWP).
In approving methyl formate as an acceptable substitute for CFC's
and HCFC's, the EPA's SNAP Program noted that methyl formate is toxic
and flammable and should be handled by users with proper precautions.
Methyl formate causes irritation to the eyes,
[[Page 52374]]
skin, and lungs, and at high levels may cause pulmonary damage.
However, EPA believes that methyl formate is well regulated by other
programs; therefore, exposures to this compound will be below levels of
concern. OSHA has established an enforceable occupational exposure
limit of 100 ppm as an 8-hr time-weighted average. NIOSH has also
established a short-term exposure limit (averaged over 15 mins) of 150
ppm. There is only one supplier of methyl formate in the U.S., and
their total production is less than 10 million pounds per year. We
estimate that use of methyl formate as an HCFC replacement in the foam
sector will be relatively small, reaching 2.5 million pounds between
2008-2010. Although we do not have information on all the possible
exposure scenarios to methyl formate, based on information provided by
industry, the air concentration levels reached in testing methyl
formate as a foam blowing agent have been less than 10 ppm (without
ventilation), a concentration well below the occupational exposure
limits.
The four compounds will continue to be VOC for purposes of all
record keeping, emissions reporting, and inventory requirements which
apply to VOC. The EPA believes that it is important to continue
collecting data on new exempt organic compound emissions for the
following reasons:
(a) EPA wants to investigate the possibility that some compounds
classified as ``negligibly reactive'' or which are not defined as VOC
for purposes of VOC emissions limitations or VOC content requirements
may, in fact, contribute to ozone formation under certain conditions,
especially if there are large amounts of such emissions;
(b) EPA wants to investigate whether significant aggregate
emissions of ``negligibly reactive'' compounds or of compounds which
are not defined as VOC for purposes of VOC emissions limitations or VOC
content requirements may contribute to multi-day ozone events and to
ozone transport;
(c) EPA believes that in order to have more accurate modeling, it
may be necessary to keep track of exempt compound emissions, especially
if there are large amounts of such emissions;
(d) EPA is now in the process of assessing its VOC policy in
general, and its VOC exemption policy in particular, and data about the
impacts of VOC exemptions on such things as the volume of exempt
compound use, the effects of an exemption on ambient ozone conditions,
and the verification of VOC substitution are critical information that
can only be obtained through continued record keeping and reporting. We
intend to publish a future notice inviting public comment on the VOC
exemption policy and the concept of negligible reactivity as part of a
broader review of overall policy.
Also, we are proposing to make a nomenclature clarification to two
previously exempted compounds. We propose to add the designations HFE-
7100 to 1,1,1,2,2,3,3,4,4-nonafluoro-4-methoxy-butane
(C4F9OH) and HFE-7200 to 1-ethoxy-
1,1,2,2,3,3,4,4,4-nonafluorobutane
(C4F9OCH2H5). These names
are widely accepted alternative designations for the two compounds and
can be found in the book titled, Handbook for Critical Cleaning by
Barbara Kanegsberg and Edward Kanegsberg, CRC Press, 2001, p. 77.
To determine whether your organization is regulated by this action,
you should carefully examine the applicability criteria in Sec. 51.100
of title 40 of the Code of Federal Regulations. If you have questions
regarding the applicability of this action to a particular entity,
consult the person listed in the preceding FOR FURTHER INFORMATION
CONTACT section.
I. Background
Tropospheric ozone, commonly known as smog, occurs when VOCs and
nitrogen oxides (NOX) react in the atmosphere. Because of
the harmful health effects of ozone, EPA and State governments limit
the amount of VOCs and NOX that can be released into the
atmosphere. Volatile organic compounds are those compounds of carbon
(excluding carbon monoxide, carbon dioxide, carbonic acid, metallic
carbides or carbonates, and ammonium carbonate) which form ozone
through atmospheric photochemical reactions. Compounds of carbon (also
known as organic compounds) have different levels of reactivity--that
is, they do not react at the same speed or do not form ozone to the
same extent. It has been EPA's policy that organic compounds with a
negligible level of reactivity need not be regulated to reduce ozone.
The EPA determines whether a given organic compound has ``negligible''
reactivity by comparing the compound's reactivity to the reactivity of
ethane. The EPA lists these compounds in its regulations (at 40 CFR
51.100(s)) and excludes them from the definition of VOCs. The chemicals
on this list are often called ``negligibly reactive'' organic
compounds.
In 1977, EPA published the ``Recommended Policy on Control of
Volatile Organic Compounds'' (42 FR 35314) which established the basic
policy that EPA has used regarding organic chemical photochemical
reactivity since that time. In that statement, EPA identified the
following four compounds as being of negligible photochemical
reactivity and said these should be exempt from regulation under SIPs:
methane; ethane; 1,1,1-trichloroethane (methyl chloroform); 1,1,2-
trichloro-1,2,2-trifluoroethane (CFC-113). That policy statement said
that as new information becomes available, EPA may periodically revise
the list of negligibly reactive compounds to add compounds to or delete
them from the list.
The EPA's decision to exempt certain compounds in its 1977 policy
was heavily influenced by experimental smog chamber work done earlier
in the 1970's. In this experimental work, various compounds were
injected into a smog chamber at a molar concentration that was typical
of the total molar concentration of VOC in Los Angeles ambient air (4
ppmv). As the compound was allowed to react with NOX at
concentrations of 0.2 ppm, the maximum ozone formed in the chamber was
measured. If the compound in the smog chamber did not result in ozone
formation of 0.08 ppm (0.08 ppm was the NAAQS for oxidants at that
time), it was assumed that emissions of the compound would not cause
the oxidant standard to be exceeded. The compound could then be
considered to be negligibly reactive. Ethane was the most reactive
compound tested that did not cause the 0.08 ozone level in the smog
chamber to be met or exceeded. Based on those findings and judgments,
EPA designated ethane as negligibly reactive, and ethane became the
benchmark VOC species separating reactive from negligibly reactive
compounds.
Since 1977, the primary method for comparing the reactivity of a
specific compound to that of ethane has been to compare the
kOH values for ethane and the specific compound of interest.
The kOH value represents the molar rate constant for
reactions between the subject compound (e.g., ethane) and the hydroxyl
radical (i.e., [middot]OH). This reaction is very important since it is
the primary pathway by which most organic compounds initially
participate in atmospheric photochemical reaction processes. The EPA
has exempted 45 compounds or classes of compounds based on a comparison
of kOH values since 1977.
In 1994, in response to a petition to exempt volatile methyl
siloxanes, EPA, for the first time, considered a comparison to ethane
based on incremental reactivity (IR) metrics (59 FR 50693, October 5,
1994). The use of
[[Page 52375]]
IR metrics allowed EPA to take into consideration the ozone forming
potential of other reactions of the compound in addition to the initial
reaction with the hydroxyl radical. Volatile methyl siloxanes proved to
be less reactive than ethane both on a per mole and per gram basis. In
1995, EPA considered another compound, acetone, using IR metrics. After
considering the IR metrics, EPA exempted acetone based on the fact that
acetone was less reactive on the basis of grams of ozone formed per
grams of VOC emitted (60 FR 31635, June 16, 1995). Prior to 1994, all
exemptions had been based on kOH values. Since 1995, EPA has
exempted one additional compound, methyl acetate, based on comparisons
of IR metrics. The reactivity of methyl acetate was found to be
comparable to or less than that for ethane both under a per gram basis
and under a per mole basis.
On February 5, 1999, the Performance Chemicals and Fluid Division
of the 3M Company submitted to EPA a petition requesting that the
compound 1,1,1,2,2,3,3-heptafluoro-3-methoxy-propane be added to the
list of compounds which are considered to be negligibly reactive in the
definition of VOC at 40 CFR 51.100(s). The next year on August 21,
2000, the Performance Chemicals and Fluid Division of the 3M Company
submitted to EPA a petition requesting that the compound 3-ethoxy-
1,1,1,2,3,4,4,5,5,6,6,6-dodecafluoro-2-(trifluoromethyl) hexane be
added to the same list.
Potential uses for these two compounds (and other compounds for
consideration under this proposal) are shown in Table 1. In its
petition, 3M points out that it has requested the compound
1,1,1,2,2,3,3-heptafluoro-3-methoxy-propane be listed as an acceptable
substitute for CFCs and hydrochlorofluorocarbons (HCFCs) in certain
uses and; as such, use of this substance may mitigate depletion of
stratospheric ozone.
Table 1.--Potential Uses of Compounds Addressed in This Proposal
------------------------------------------------------------------------
Compound Potential use
------------------------------------------------------------------------
1,1,1,2,2,3,3-heptafluoro-3-methoxy- --refrigerant
propane. --aerosol propellant
3-ethoxy-1,1,1,2,3,4,4,5,5,6,6,6- --refrigerant
dodecafluoro-2-(trifluoromethyl)hexane.
1,1,1,2,3,3,3-heptafluoropropane....... --fire suppressant
--aerosol propellant
methyl formate......................... --blowing agent
------------------------------------------------------------------------
Although 3-ethoxy-1,1,1,2,3,4,4,5,5,6,6,6-dodecafluoro-2-
(trifluoromethyl)hexane has not been identified as a substitute,
specifically, the SNAP program has identified hydrofluoroethers (HFEs),
as a class, as replacement substitutes for CFCs.
In support of the 1,1,1,2,2,3,3-heptafluoro-3-methoxy-propane and
the 3-ethoxy-1,1,1,2,3,4,4,5,5,6,6,6 -dodecafluoro-2-(trifluoromethyl)
hexane petitions, 3M Company supplied information on their respective
photochemical reactivities. The 3M Company stated that, as
hydrofluoroethers, these compounds are very similar in structure,
toxicity, and atmospheric properties to other compounds such as
C4F9OCH3,
(CH3)2CFCF2OCH3,
C4F9OC2H5,
(CH3)2CFCF2OC2H5
which are exempt from the VOC definition.
Other information submitted by 3M Company consists mainly of a peer
reviewed article entitled ``Atmospheric Chemistry of Some
Fluoroethers,'' Guschin, Molina, Molina: Massachusetts Institute of
Technology, May 1998, which has been submitted to the docket. This
article discusses a study in which the rate constant for the reaction
of the compounds with the hydroxyl (OH) radical is shown to be less
than that for ethane and slightly more than for methane. This rate
constant (kOH value) is commonly used as one measure of the
photochemical reactivity of compounds. The petitioner compared the rate
constants with that of ethane which has already been listed as
photochemically negligibly reactive (ethane is the compound with the
highest kOH value which is currently regarded as negligibly
reactive). The compounds under consideration are listed with their
reported kOH rate constants in Table 2 along with that of
ethane. The scientific information which the petitioner has submitted
in support of the petition has been added to the docket for this
rulemaking. This information includes references for the journal
articles where the rate constant values are published.
Table 2.--Reaction Rate Constants (at 25 [deg]C) With OH Radical
------------------------------------------------------------------------
Compound cm\3\/molecule/sec
------------------------------------------------------------------------
ethane.................................... 2.4 x 10-13
n-C3F7OCH3................................ 1.2 x 10-14
HFE-7500.................................. 2.2 x 10-14
HFC-227ea................................. 1.09 x 10-15
methyl formate............................ 2.27 x 10-13
------------------------------------------------------------------------
Together with 5-day and 28-day inhalation toxicity studies, 3M
Company also has included Material Safety Data Sheets indicating both
their compounds as having very low toxicity. This information has been
placed in the docket.
On February 18, 1998, the Great Lakes Chemical Corporation (``Great
Lakes'') petitioned EPA for the exclusion of 1,1,1,2,3,3,3-
heptafluoropropane (HCF-227ea) from the definition of VOC. The rate
constant for the reaction of HFC-227ea with the OH radical was based on
studies performed at the laboratories of Aerodyne Research, Inc. and
reported by Nelson, Zahniser, and Kolb in the Geophysical Research
Letters., Vol. 20, No. 2, pages 197-200. The rate constant for HFC-
227ea as reported in this paper (Table 2) is 1.09 x 10-15
cm\3\/molecule/sec at 277K (0 [deg]C) which places it well under two
orders of magnitude below ethane's reactivity.
Great Lakes also claims that HFC-227ea is not an ozone depleting
substance. This compound has been approved under EPA's SNAP program as
an acceptable substitute for Halon 1301 and Halon 1211 in various fire
suppression applications. Also, EPA has determined HFC-227ea to have a
GWP at 3800 times that of carbon dioxide, making it a probable
substitute for its competitor fire suppressants which have even higher
GWPs.
On February 12, 2002, Foam Supplies, Inc. submitted a petition to
exclude methyl formate from the definition of VOC. Foam Supplies, Inc.
submitted journal articles showing three separate studies measuring
methyl formate's rate constant with hydroxyl radicals and compared this
to ethane measured in a like manner as a rate constant (cm\3\/molecule/
sec). The highest value tested for methyl formate was that of 2.27 x
10-13 cm\3\/molecule/sec which is slightly below that of
ethane at 2.4 x 10-13 cm\3\/molecule/sec (shown in Table 2).
[[Page 52376]]
Foam Supplies, Inc. also notes that methyl formate has a zero ODP
and a very low or zero GWP.
In addition, Foam Supplies, Inc. notes that this compound has been
approved under SNAP as an acceptable alternative to HCFC-141b and HCFC-
22 in various blowing agent applications.
Because of the closeness in rate constant values attributed to
methyl formate and ethane, in addition to the information on
kOH value submitted by the petitioner for methyl formate,
EPA has examined further evidence of low reactivity for methyl formate.
This evidence, which is desirable when rate constant values are so
close (as in the case of methyl formate and ethane), increases the
confidence level with which EPA can make a final decision on whether to
approve or disapprove of a petition to exempt a compound from the VOC
definition. Dr. William P. L. Carter of the University of California at
Riverside has published ``The SAPRC-99 Chemical Mechanism and Updated
VOC Reactivity Scales'', (revised 11/29/2000) on his Web site at:
http://ftp.cert.ucr.edu/pub/carter/SAPRC99/appndxc.doc. Appendix C of
his report gives maximum incremental reactivity (MIR) values which are
another accepted measure of photochemical reactivity. Dr. Carter's MIR
values are given in grams ozone per gram of organic compound. Also, it
is easy to calculate the MIR on a basis of grams of ozone per mole of
organic compound. On either basis, methyl formate has a reactivity less
than half that of ethane. Sections of the Carter report showing ethane
and methyl formate values have been added to the docket. Also, the data
may be seen on this same website belonging to Dr. Carter.
In a similar action related to a petition to exempt tert-butyl
acetate (TBAC) from the VOC definition (64 FR 52731), EPA raised the
issue of whether the comparison to ethane should be made on a mass (or
gram) basis or a molar basis. In the case of the four compounds
considered here, all four are less reactive than ethane on both mass
and molar bases and would qualify as negligibly reactive under either
test.
While the purpose of exempting negligibly reactive VOCs is to avoid
unnecessary regulation that will not help in the attainment of the
ozone NAAQS, it is possible that exempting specific compounds from
regulation as a VOC could result in significant health risks or other
undesirable environmental impacts. EPA has included available
information about the toxicity of the four compounds under
consideration in the docket. EPA invites public comment on the
potential for significant health or environmental risks that may be
expected as a result of the proposed exemptions, taking into account
the expected uses for the compounds.
II. The EPA Response to the Petitions
For the petitions submitted by the 3M Company, Great Lakes Chemical
Corporation, and Foam Supplies, Inc., the data submitted by the
petitioners support the contention that the reactivities of the
compounds submitted, with respect to reaction with OH radicals in the
atmosphere are lower than that of ethane. There is ample evidence in
the literature that methyl formate and the halogenated paraffinic VOC,
listed above, do not participate in such reactions significantly.
The EPA is responding to the petitions by proposing in this action
to add the compounds in Table 3 to the list of compounds appearing in
40 CFR 51.100(s).
Table 3.--Compounds Proposed To Be Added to the List of Negligibly
Reactive Compounds
------------------------------------------------------------------------
Compound Chemical Name or Formula
------------------------------------------------------------------------
n-C3F7OCH3........................... 1,1,1,2,2,3,3-heptafluoro-3-
methoxy-propane
HFE-7500............................. 3-ethoxy-1,1,1,2,3,4,4,5,5,6,6,6-
dodecafluoro-2-(trifluoromethyl)
hexane
HFC-227ea............................ 1,1,1,2,3,3,3-heptafluoropropane
methyl formate....................... HCOOCH3
------------------------------------------------------------------------
III. Proposed Action
Today's proposed action is based on EPA's review of the material in
Docket No. A-2002-03. The EPA hereby proposes to amend its definition
of VOC at 40 CFR 51.100(s) to exclude the compounds in Table 3 as VOC
for ozone SIP and ozone control purposes. States are not obligated to
exclude from control as a VOC those compounds that EPA has found to be
negligibly reactive. However, if this action is made final, States
should not include these compounds in their VOC emissions inventories
for determining reasonable further progress under the CAA (e.g.,
section 182(b)(1)) and may not take credit for controlling these
compounds in their ozone control strategy.
In prior VOC exemption decisions, EPA has not required continued
record keeping and reporting on the use and emissions of the exempt
compounds. However, more current understanding of the complexities of
ozone formation suggests that most organic compounds which EPA has
exempted as ``negligibly reactive'' do have some photochemcial
reactivity, albeit small. EPA is proposing to retain record keeping and
reporting requirements for all new exempt organic compound emissions.
IV. Statutory and Executive Order Reviews
A. Executive Order 12866: Regulatory Planning and Review
Under Executive Order 12866 (58 FR 51735, October 4, 1993), the
Agency must determine whether a regulatory action is ``significant''
and therefore subject to Office of Management and Budget (OMB) review
and the requirements of this Executive Order. The Order defines
``significant regulatory action'' as one that is likely to result in a
rule that may:
(1) Have an annual effect on the economy of $100 million or more or
adversely affect in a material way the economy, a sector of the
economy, productivity, competition, jobs, the environment, public
health or safety, or State, local, or tribal governments or
communities;
(2) create a serious inconsistency or otherwise interfere with an
action taken or planned by another agency;
(3) materially alter the budgetary impact of entitlements, grants,
user fees, or loan programs, or the rights and obligation of recipients
thereof; or
(4) raise novel legal or policy issues arising out of legal
mandates, the President's priorities, or the principles set forth in
the Executive Order.
Pursuant to the terms of Executive Order 12866, it has been
determined that this rule is not ``significant'' because none of the
listed criteria apply to this action. Consequently, this action is not
submitted to OMB for review under Executive Order 12866.
B. Paperwork Reduction Act
This action does not contain any information collection
requirements subject to OMB review under the
[[Page 52377]]
Paperwork Reduction Act, 44 U.S.C. 3501 et seq. It does not contain any
recordkeeping or reporting requirement burden.
Burden means the total time, effort, or financial resources
expended by persons to generate, maintain, retain, or disclose or
provide information to or for a Federal agency. This includes the time
needed to review instructions; develop, acquire, install, and utilize
technology and systems for the purposes of collecting, validating, and
verifying information, processing and maintaining information, and
disclosing and providing information; adjust the existing ways to
comply, with any previously applicable instructions and requirements;
train personnel to be able to respond to a collection of information;
search data sources; complete and review the collection of information;
and transmit or otherwise disclose the information.
An Agency does not conduct or sponsor, and a person is not required
to respond to a collection of information unless it displays a
currently valid OMB control number. The control numbers for EPA's
regulations are listed in 40 CFR part 9 and 48 CFR chapter 15.
C. Regulatory Flexibility Act
The Regulatory Flexibility Act (RFA), as amended by the Small
Business Regulatory Enforcement Fairness Act of 1996 (SBREFA), 5 U.S.C.
601 et seq. requires the identification of potentially adverse impacts
of Federal regulations upon small business entities. The Act
specifically requires the completion of a RFA analysis in those
instances where the regulation would impose a substantial impact on a
significant number of small entities. Because this proposed rulemaking
imposes no adverse economic impacts, an analysis has not been
conducted.
The RFA generally requires an agency to prepare a regulatory
flexibility analysis of any rule subject to notice and comment
rulemaking requirements under the Administrative Procedure Act or any
other statute unless the agency certifies that the rule will not have a
significant economic impact on a substantial number of small entities.
Small entities include small businesses, small organizations, and small
governmental jurisdictions.
After considering the economic impacts of today's proposed rule on
small entities, I certify that this action will not have a significant
economic impact on a substantial number of small entities. This
proposed rule will not impose any requirements on small entities.
Today's proposed rule concerns only the definition of VOC and does not
directly regulate any entities. The RFA analysis does not consider
impacts on entities which the action in question does not regulate. See
Motor & Equipment Manufacturers Ass'n v. Nichols, 142 F. 3d 449, 467
(D.C. Cir. 1998); United Distribution Cos. v. FERC, 88 F. 3d 1105, 1170
(D.C. Cir. 1996), cert. denied, 520 U.S. 1224 (1997). Pursuant to the
provision of 5 U.S.C. 605(b), I hereby certify that the proposed rule
will not have an impact on small entities.
D. Unfunded Mandates Reform Act
Title II of the Unfunded Mandates Reform Act of 1995 (UMRA), Public
Law 104-4, establishes requirements for Federal agencies to assess the
effects of their regulatory actions on State, local, and tribal
governments and the private sector. Under section 202 of the UMRA, EPA
generally must prepare a written statement, including a cost-benefit
analysis, for proposed and final rules with ``Federal mandates'' that
may result in expenditures to State, local, and tribal governments, in
the aggregate, or to the private sector, of $100 million or more in any
one year. Before promulgating an EPA rule for which a written statement
is needed, section 205 of the UMRA generally requires EPA to identify
and consider a reasonable number of regulatory alternatives and adopt
the least costly, most cost-effective or least burdensome alternative
that achieves the objectives of the rule. The provisions of section 205
do not apply when they are inconsistent with applicable law. Moreover,
section 205 allows EPA to adopt an alternative other than the least
costly, most cost-effective or least burdensome alternative if the
Administrator publishes with the final rule an explanation why that
alternative was not adopted. Before EPA establishes any regulatory
requirements that may significantly or uniquely affect small
governments, including tribal governments, it must have developed under
section 203 of the UMRA a small government agency plan. The plan must
provide for notifying potentially affected small governments, enabling
officials of affected small governments to have meaningful and timely
input in the development of EPA regulatory proposals with significant
Federal intergovernmental mandates, and informing, educating, and
advising small governments on compliance with the regulatory
requirements.
Since this proposed rule is deregulatory in nature and does not
impose a mandate upon any source, this rule is not estimated to result
in the expenditure by State, local and tribal governments or the
private sector of $100 million in any 1 year. Therefore, the Agency has
not prepared a budgetary impact statement or specifically addressed the
selection of the least costly, most cost-effective, or least burdensome
alternative. Because small governments will not be significantly or
uniquely affected by this rule, the Agency is not required to develop a
plan with regard to small governments.
E. Executive Order 13132: Federalism
Executive Order 13132, entitled ``Federalism'' (64 FR 43255, August
10, 1999), requires EPA to develop an accountable process to ensure
``meaningful and timely input by State and local officials in the
development of regulatory policies that have federalism implications.''
``Policies that have federalism implications'' is defined in the
Executive Order to include regulations that have ``substantial direct
effects on the States, on the relationship between the National
government and the States, or on the distribution of power and
responsibilities among the various levels of government.''
This proposed action addressing the exemption of four chemical
compounds from the VOC definition does not have federalism
implications. It will not have substantial direct effects on the
States, on the relationship between the national government and the
States, or on the distribution of power and responsibilities among the
various levels of government, as specified in Executive Order 13132.
This action does not impose any new mandates on State or local
governments. Thus, Executive Order 13132 does not apply to this rule.
In the spirit of Executive Order 13132, and consistent with EPA policy
to promote communications between EPA and State and local governments,
EPA specifically solicits comment on this proposed rule from State and
local officials.
F. Executive Order 13175: Consultation and Coordination With Indian
Tribal Governments
Executive Order 13175, entitled ``Consultation and Coordination
with Indian Tribal Governments'' (65 FR 67249, November 6, 2000),
requires EPA to develop an accountable process to ensure ``meaningful
and timely input by tribal officials in the development of regulatory
policies that have tribal implications.'' ``Policies that have tribal
implications'' is defined in the Executive Order to include regulations
that have ``substantial direct effects on one or more Indian tribes, on
the relationship between the Federal government and the Indian tribes,
or on
[[Page 52378]]
the distribution of power and responsibilities between the Federal
government and Indian tribes.''
This proposed rule does not have tribal implications. It will not
have substantial direct effects on tribal governments, on the
relationship between the Federal government and Indian tribes, or on
the distribution of power and responsibilities between the Federal
government and Indian tribes, as specified in Executive Order 13175.
Today's action does not have any direct effects on Indian tribes. Thus,
Executive Order 13175 does not apply to this rule. In the spirit of
Executive Order 13175, and consistent with EPA policy to promote
communications between EPA and tribal governments, EPA specifically
solicits additional comment on this proposed rule from tribal
officials.
G. Executive Order 13045: Protection of Children From Environmental
Health and Safety Risks
Executive Order 13045: ``Protection of Children from Environmental
Health Risks and Safety Risks'' (62 FR 19885, April 23, 1997) applies
to any rule that: (1) is determined to be ``economically significant''
as defined under Executive Order 12866, and (2) concerns an
environmental health or safety risk that EPA has reason to believe may
have a disproportionate effect on children. If the regulatory action
meets both criteria, the Agency must evaluate the environmental health
or safety effects of the planned rule on children, and explain why the
planned regulation is preferable to other potentially effective and
reasonably feasible alternatives considered by the Agency.
While this proposed rule is not subject to the Executive Order
because it is not economically significant as defined in Executive
Order 12866, EPA has reason to believe that ozone has a
disproportionate effect on active children who play outdoors (62 FR
38856; 38859 July 18, 1997). The EPA has not identified any specific
studies on whether or to what extent the four above listed chemical
compounds affect children's health. The EPA has placed the available
data regarding the health effects of these four chemical compounds in
docket no. A-2002-03. The EPA invites the public to submit or identify
peer-reviewed studies and data, of which EPA may not be aware, that
assess results of early life exposure to any of the four above listed
chemical compounds.
H. Executive Order 13211: Actions That Significantly Affect Energy
Supply, Distribution, or Use
This rule is not subject to Executive Order 13211, ``Actions
Concerning Regulations That Significantly Affect Energy Supply,
Distribution, or Use'' (66 FR 28355, May 22, 2001), because it is not a
significant regulatory action under Executive Order 12866.
I. National Technology Transfer Advancement Act
Section 12(d) of the National Technology Transfer and Advancement
Act of 1995 (``NTTAA''), Public Law 104-113, section 12(d), (15 U.S.C.
272 note), directs EPA to use voluntary consensus standards in its
regulatory activities unless to do so would be inconsistent with
applicable law or otherwise impractical. Voluntary consensus standards
are technical standards (e.g., materials specifications, test methods,
sampling procedures, and business practices) that are developed or
adopted by voluntary consensus standards bodies. The NTTAA directs EPA
to provide Congress, through OMB, explanations when the Agency decides
not to use available and applicable voluntary consensus standards.
This proposed rulemaking does not involve technical standards.
Therefore, EPA is not considering the use of any voluntary consensus
standards.
List of Subjects in 40 CFR Part 51
Environmental protection, Administrative practice and procedure,
Air pollution control, Ozone, Reporting and recordkeeping requirements,
Volatile organic compounds.
Dated: August 27, 2003.
Marianne Lamont Horinko,
Acting Administrator.
For reasons set forth in the preamble, part 51 of chapter I of
title 40 of the Code of Federal Regulations is proposed to be amended
as follows:
PART 51--REQUIREMENTS FOR PREPARATION, ADOPTION, AND SUBMITTAL OF
IMPLEMENTATION PLANS
1. The authority citation for part 51 continues to read as follows:
Authority: 42 U.S.C. 7401-7641q.
2. Section 51.100 is proposed to be amended by adding paragraph
(s)(5) as follows:
Sec. 51.100 Definitions.
* * * * *
(s) * * *
(5) The following compounds are VOC for purposes of all
recordkeeping, emissions reporting, and inventory requirements which
apply to VOC, but are not VOC for purposes of VOC emissions limitations
or VOC content requirements:
1,1,1,2,2,3,3-heptafluoro-3-methoxy-propane (n-
C3F7OCH3), 3-ethoxy-
1,1,1,2,3,4,4,5,5,6,6,6-dodecafluoro-2-(trifluoromethyl) hexane (HFE-
7500), 1,1,1,2,3,3,3-heptafluoropropane (HFC 227ea), and methyl formate
(HCOOCH3).
[FR Doc. 03-22449 Filed 9-2-03; 8:45 am]
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