Approval and Promulgation of Air Quality Implementation Plans; Commonwealth of Pennsylvania; Approval of Source-Specific RACT for R.R. Donnelley & Sons CompanyEast Plant

ENVIRONMENTAL PROTECTION AGENCY

40 CFR Part 52

[PA078-4042; FRL-5858-8]

Approval and Promulgation of Air Quality Implementation Plans;

Commonwealth of Pennsylvania; Approval of Source-Specific RACT for R.R.

Donnelley & Sons Company--East Plant

AGENCY: Environmental Protection Agency (EPA).

ACTION: Direct final rule.

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SUMMARY: EPA is approving a State Implementation Plan (SIP) revision

submitted by the Commonwealth of Pennsylvania. This revision

establishes and requires reasonably available control technology (RACT)

for R. R. Donnelley & Sons Company--East Plant, and approves a 1990

baseyear VOC emissions change for the facility. The intended effect of

this action is to approve a source-specific determination made by the

Commonwealth which establishes and imposes RACT requirements in

accordance with the Clean Air Act (CAA). This action is being taken

under section 110 of the CAA.

DATES: This final rule is effective September 19, 1997 unless by August

20, 1997, adverse or critical comments are received. If the effective

date is delayed, timely notice will be published in the Federal

Register.

ADDRESSES: Comments may be mailed to David L. Arnold, Chief, Ozone/CO &

Mobile Sources Section, Mailcode 3AT21, U.S. Environmental Protection

Agency, Region III, 841 Chestnut Building, Philadelphia, Pennsylvania

19107. Copies of the documents relevant to this action are available

for public inspection during normal business hours at the Air,

Radiation, and Toxics Division, U.S. Environmental Protection Agency,

Region III, 841 Chestnut Building, Philadelphia, Pennsylvania 19107;

the Air and Radiation Docket and Information Center, U.S. Environmental

Protection Agency, 401 M Street, SW, Washington, DC 20460; and

Pennsylvania Department of Environmental Protection, Bureau of Air

Quality, P.O. Box 8468, 400 Market Street, Harrisburg, Pennsylvania

17105.

FOR FURTHER INFORMATION CONTACT: Jeffrey M. Boylan, (215) 566-2094, at

the EPA Region III office or via e-mail at boylan.jeffrey@

epamail.epa.gov. While information may be requested via e-mail,

comments must be submitted in writing to the above Region III address.

SUPPLEMENTARY INFORMATION:

I. Background

On September 20, 1995, August 15, 1996, and September 13, 1996, the

Commonwealth of Pennsylvania submitted formal revisions to its State

Implementation Plan (SIP). The SIP revision that is the subject of this

rulemaking consists of a RACT determination, and a 1990 baseyear VOC

emission inventory change for R. R. Donnelley & Sons Company located in

Lancaster County Pennsylvania. This rulemaking addresses one operating

permit pertaining to the Company's East Plant. In addition, on April

16, 1997, the Commonwealth of Pennsylvania submitted a letter amending

the September 20, 1995 submittal pertaining to R. R. Donnelley & Sons

Company (East Plant).

Pursuant to section 182(b)(2) and (182(f) of the Clean Air Act

(CAA), Pennsylvania is required to implement RACT for all major VOC and

NOX sources by no later than May 31, 1995. The major source

size is determined by its location, the classification of that area and

whether it is located in the ozone transport region (OTR), which is

established by the CAA. The Pennsylvania portion of the Philadelphia-

Wilmington-Trenton ozone nonattainment area consists of Bucks, Chester,

Delaware, Montgomery, and Philadelphia Counties and is classified as

severe. The remaining counties in Pennsylvania are classified as either

moderate or marginal nonattainment areas or are designated attainment

for ozone. However, under section 184 of the CAA, at a minimum,

moderate ozone nonattainment area requirements (including RACT as

specified in section 182(b)(2) and 182(f)) apply throughout the OTR.

Pennsylvania is included in within the OTR. Therefore, RACT is

applicable statewide in Pennsylvania. The September 20, 1995 (amended

April 16, 1997), August 15, 1996, and September 13, 1996 Pennsylvania

submittals that are the subject of this notice, consist of an operating

permit which was issued to satisfy the RACT requirements for R. R.

Donnelley & Sons Company--East Plant in Lancaster County Pennsylvania.

II. Summary of SIP Revision

The details of the RACT requirements for the source-specific

operating permit can be found in the docket and accompanying Technical

Support Document (TSD), prepared by EPA on this rulemaking. Briefly,

EPA is approving the Commonwealth's RACT determination for R. R.

Donnelley & Sons Company--East Plant as a revision to the Pennsylvania

SIP, and a 1990 baseyear VOC emissions inventory change for the same

facility. The operating permit contains conditions irrelevant to the

determination of VOC RACT. Consequently, these provisions are not being

included in this approval for VOC RACT nor are they being made part of

the SIP.

RACT Determination for R.R. Donnelley & Sons Company (East Plant)

EPA is approving the operating permit (OP#36-2027) for R. R.

Donnelley & Sons Company (East Plant) located in Lancaster County. R.

R. Donnelley & Sons Company (East Plant) is a printing facility and is

considered to be a major source of VOC emissions. Although once

considered to be a major source of NOX emissions, the

Pennsylvania Department of Environmental Protection (PADEP) submitted a

letter on April 16, 1997, withdrawing the NOX RACT

determination portion of OP #36-2027 from its SIP revision request of

September 20, 1995. R. R. Donnelley & Sons Company (East Plant) has

been issued a permit with conditions that limit facility wide

NOX emissions to 99 TPY. Since R. R. Donnelley & Sons

Company (East Plant) has never had

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actual NOX emissions in excess of 100 TPY (from 1990 and

beyond), and has accepted an enforceable NOX emission cap of

less than 100 TPY, the facility is no longer determined to be a major

source of NOX. Pennsylvania issued the permit to R. R.

Donnelley & Sons Company (East Plant) with an enforceable emissions cap

required by a permit issued under Pennsylvania's approved Federally

Enforceable State Operating Permit (FESOP) program.

The six (6) rotogravure presses, and two (2) proof press dryers are

covered by 25 PA Code Section 129.67--Graphics Arts System and 40 CFR,

Part 60, Subpart QQ--Standards of Performance for the Graphics Arts

Industry: Publication Rotogravure Printing.

The six (6) heatset web offset lithographic printing presses ink

and dampening solutions on the webs are dried by evaporation in high

air velocity natural gas fired dryers, with VOC emissions from the

dryers controlled by one (1) regenerative thermal oxidizer (RTO).

Operating Permit, OP #36-2027, will require, among other things, that

destruction removal efficiency (DRE) of the RTO be at least 90% for

VOC's and combustion chamber temperature be maintained at least at

1400 deg.F. Although the permit specifies capture efficiency (CE)

parameters in the permit, no actual site testing has been done nor has

a protocol been established to substantiate the CE figures in condition

#16 (See the discussion of condition #9 below). VOC content of all

heatset inks and fountain solutions are not to exceed 45% and 3% by

weight respectively.

During periods of maintenance to the RTO, a catalytic afterburner

or thermal afterburner are put into operation and the company can only

operate the presses that are associated with these bypass controls.

Conditions in the permit require the bypass controls to be

operationally checked out at least once a year then submitting a report

of overall operating condition to the Lancaster District Supervisor

within thirty days of operational check. Additionally the permit

requires the thermal afterburner to be up to its rated capacity of

10,000 CFM and maintain a chamber temperature of at least 1375 deg.F.

Permit conditions will require cleaning solutions to have a

composite partial vapor pressure not to exceed 10 mm Hg at 20 deg.C or

VOC content not to exceed 30% by weight. The company will limit the use

of higher vapor pressure cleaning solvents to less than 5% by weight of

the total manual cleaning solvents used. In addition, the company must

keep all solvent laden rags in closed containers when not in use and

keep all containers containing VOC's tightly closed when not in use.

Condition #9 requires the facility to keep applicable records and

reports in accordance with 25 PA Code, Section 129.95 such that

compliance with RACT requirements can be determined. Therefore, while

no CE testing is specifically required by the permit, such testing may

be required in order to determine compliance with the applicable RACT

requirements.

1990 Baseyear VOC Emission Inventory Correction

In addition to approving the RACT determination for these sources

at R. R. Donnelley & Sons Company (East Plant), EPA is approving

Pennsylvania's request that the 1990 emissions inventory for the

facility's VOCs be corrected to accurately reflect the 1990 emissions.

The 1990 baseyear VOC emissions inventory will be corrected to 864

tons. Justification for the change in VOC emissions is described as

follows:

--For rotogravure operations, R. R. Donnelley & Sons Company (East

Plant) initially assumed a 5% retention of solvent in the web, and

then revised their assumption to 2% based on the amount of solvent

actually being recovered by the six bed carbon adsorption system.

Based on VOC emissions data submitted to PADEP for the year 1990,

the actual VOC emissions from rotogravure operations was 794.51

tons. The figures were taken from data submitted to PADEP from the

facility dated May 6, 1996 (subsequently submitted to EPA from PADEP

via letter dated December 13, 1996).

--For heatset web offset lithographic operations, boilers, and

associated solvent cleaning equipment, R. R. Donnelley & Sons

Company provided data calculating estimates for actual 1990 VOC

emissions of 69.83 tons. The figures were taken from the facility's

RACT proposal submitted to PADEP dated March 29, 1995.

The source-specific RACT emission limitations that are being

approved into the Pennsylvania SIP are those that were submitted on

September 20, 1995 (amended April 16, 1997), August 15, 1996, and

September 13, 1996, and are the subject of this rulemaking notice.

These emission limitations will remain unless and until they are

replaced pursuant to 40 CFR Part 51 and approved by the EPA.

EPA is approving this SIP revision without prior proposal because

the Agency views this as a noncontroversial amendment and anticipates

no adverse comments. However, in a separate document in this Federal

Register publication, EPA is proposing to approve the SIP revision

should adverse or critical comments be filed. This action will be

effective September 19, 1997 unless, by August 20, 1997, adverse or

critical comments are received.

If EPA receives such comments, this action will be withdrawn before

the effective date by publishing a subsequent document that will

withdraw the final action. All public comments received will then be

addressed in a subsequent final rule based on this action serving as a

proposed rule. EPA will not institute a second comment period on this

action. 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 September 19, 1997.

Final Action

EPA is approving a source-specific RACT determination for R. R.

Donnelley & Sons Company--East Plant submitted by PADEP, and a 1990

baseyear VOC emission inventory correction for the same facility.

Nothing in this action should be construed as permitting or allowing or

establishing a precedent for any future request for revision to any

state implementation plan. Each request for revision to the state

implementation plan shall be considered separately in light of specific

technical, economic, and environmental factors and in relation to

relevant statutory and regulatory requirements.

III. Administrative Requirements

A. Executive Order 12866

This action has been delegated to the Regional Administrator for

decision-making and signature. The Office of Management and Budget

(OMB) has exempted this regulatory action from E.O. 12866 review.

B. Regulatory Flexibility Act

The EPA's actions under section 502 of the Act do not create any

new requirements, but simply address operating permits programs

submitted to satisfy the requirements of 40 CFR part 70. Because this

action does not impose any new requirements, it does not have a

significant impact on a substantial number of small entities.

Under the Regulatory Flexibility Act, 5 U.S.C. 600 et seq., 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, 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.

[[Page 38917]]

SIP approvals under section 110 and subchapter I, part D of the

Clean Air 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, 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 CAA, preparation of a flexibility

analysis would constitute federal inquiry into the economic

reasonableness of state action. The Clean Air Act forbids EPA to base

its actions concerning SIPs on such grounds. Union Electric Co. v. U.S.

EPA, 427 U.S. 246, 255-66 (1976); 42 U.S.C. 7410(a)(2).

C. Unfunded Mandates

Under section 202 of the Unfunded Mandates Reform Act of 1995

(``Unfunded Mandates Act''), signed into law on March 22, 1995, EPA

must prepare a budgetary impact statement to accompany 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

private sector, of $100 million or more. Under section 205, EPA must

select the most cost-effective and least burdensome alternative that

achieves the objectives of the rule and is consistent with statutory

requirements. Section 203 requires EPA to establish a plan for

informing and advising any small governments that may be significantly

or uniquely impacted by the rule.

EPA has determined that the approval action promulgated does not

include a federal mandate that may result in estimated costs of $100

million or more to either state, local, or tribal governments in the

aggregate, or to the private sector. This federal action approves pre-

existing requirements under state or local law, and imposes no new

federal requirements. Accordingly, no additional costs to state, local,

or tribal governments, or to the private sector, result from this

action.

D. Submission to Congress and the General Accounting Office

Under 5 U.S.C. 801(a)(1)(A) as added by the Small Business

Regulatory Enforcement Fairness Act of 1996, EPA submitted a report

containing this rule and other required information to the U.S. Senate,

the U.S. House of Representatives and the Comptroller General of the

General Accounting Office prior to publication of the rule in today's

Federal Register. This rule is not a ``major rule'' as defined by 5

U.S.C. 804(2).

E. Petitions for Judicial Review

Under section 307(b)(1) of the Clean Air Act, petitions for

judicial review of this action, pertaining to the RACT approval for R.

R. Donnelley & Sons--East Plant, must be filed in the United States

Court of Appeals for the appropriate circuit by September 19, 1997.

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).)

List of Subjects in 40 CFR Part 52

Environmental protection, Air pollution control, Hydrocarbons,

Incorporation by reference, Intergovernmental relations, Nitrogen

dioxide, Ozone, Reporting and recordkeeping requirements.

Dated: July 1, 1997.

Thomas Voltaggio,

Acting, Regional Administrator, Region III.

40 CFR part 52 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 NN--Pennsylvania

2. Section 52.2020 is amended by adding paragraph (c)(125) to read

as follows:

Sec. 52.2020 Identification of plan.

* * * * *

(c) * * *

(125) Revisions to the Pennsylvania Regulations Chapter 129.91

through 129.95 pertaining to VOC and NOX RACT, submitted on

September 20, 1995 (amended April 16, 1997), August 15, 1996, and

September 13, 1996 by the Pennsylvania Department of Environmental

Protection:

(i) Incorporation by reference.

(A) Three letters dated September 20, 1995, August 15, 1996, and

September 13, 1996 from the Pennsylvania Department of Environmental

Protection transmitting one source-specific RACT determination and 1990

baseyear VOC emissions inventory change for R.R. Donnelley & Sons

Company (East Plant). One letter dated April 16, 1997 amending the

September 20, 1995 submittal. The source is R.R. Donnelley & Sons

Company, East Plant (Lancaster County)--printing facility.

(B) Operating Permits (OP):

(1) R.R. Donnelley & Sons Company, East Plant--OP #36-2027,

effective July 14, 1995, except for the expiration date of the

operating permit, all conditions pertaining to NOX RACT

determination, and the parts of conditions 8, 12b & 23 pertaining to

Hazardous Air Pollutants (HAP's).

(ii) Additional Material. Remainder of September 20, 1995, August

15, 1996, and September 13, 1996 State submittals pertaining to R.R.

Donnelley & Sons--East Plant.

3. Section 52.2036 is amended by adding paragraph (j) to read as

follows:

Sec. 52.2036 1990 baseyear emission inventory.

* * * * *

(j) EPA is approving Pennsylvania's request that the 1990 emissions

inventory for VOCs from R.R. Donnelley & Sons--East Plant be corrected

to accurately reflect the 1990 emissions. The 1990 baseyear VOC

emissions inventory will be corrected to 864 tons. Justification for

the change in VOC emissions is described as follows:

(1) For rotogravure operations, R.R. Donnelley & Sons Company (East

Plant) initially assumed a 5% retention of solvent in the web, and then

revised their assumption to 2% based on the amount of solvent actually

being recovered by the six bed carbon adsorption system. Based on VOC

emissions data submitted to PADEP for the year 1990, the actual VOC

emissions from rotogravure operations was 794.51 tons. The figures were

taken from data submitted to PADEP from the facility dated May 6, 1996

(subsequently submitted to EPA from PADEP via letter dated December 13,

1996).

(2) For heatset web offset lithographic operations, boilers, and

associated solvent cleaning equipment, R.R. Donnelley & Sons Company

provided data calculating estimates for actual 1990 VOC emissions of

69.83 tons. The figures were taken from the facility's RACT proposal

submitted to PADEP dated March 29, 1995.

[FR Doc. 97-19095 Filed 7-18-97; 8:45 am]

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