National Emission Standards for Hazardous Air Pollutants: Paint Stripping and Miscellaneous Surface Coating Operations at Area Sources, 1738-1768 [E7-24718]
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Federal Register / Vol. 73, No. 6 / Wednesday, January 9, 2008 / Rules and Regulations
ENVIRONMENTAL PROTECTION
AGENCY
40 CFR Part 63
[EPA–HQ–OAR–2005–0526; FRL–8508–6]
RIN 2060–AN21
National Emission Standards for
Hazardous Air Pollutants: Paint
Stripping and Miscellaneous Surface
Coating Operations at Area Sources
Environmental Protection
Agency (EPA).
ACTION: Final rule.
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AGENCY:
SUMMARY: This action promulgates
national emission standards for
hazardous air pollutants (NESHAP) for
area sources engaged in paint stripping,
surface coating of motor vehicles and
mobile equipment, and miscellaneous
surface coating operations. EPA has
listed ‘‘Paint Stripping,’’ ‘‘Plastic Parts
and Products (Surface Coating),’’ and
‘‘Autobody Refinishing Paint Shops’’ as
area sources of hazardous air pollutants
(HAP) that contribute to the risk to
public health in urban areas under the
Integrated Urban Air Toxics Strategy.
This final rule includes emissions
standards that reflect the generally
available control technology or
management practices in each of these
area source categories. ‘‘Plastic Parts
and Products (Surface Coating)’’ has
been renamed ‘‘Miscellaneous Surface
Coating,’’ and ‘‘Autobody Refinishing
Paint Shops’’ has been renamed ‘‘Motor
Vehicle and Mobile Equipment Surface
Coating’’ to more accurately reflect the
scope of these source categories.
DATES: This final rule is effective on
January 9, 2008. The incorporation by
reference of certain publications listed
in this rule is approved by the Director
of the Federal Register as of January 9,
2008.
ADDRESSES: The EPA has established a
docket for this action under Docket ID
No. EPA–HQ–OAR–2005–0526. All
documents in the docket are listed in
the Federal Docket Management System
index at https://www.regulations.gov.
Although listed in the index, some
information is not publicly available,
e.g., confidential business information
or other information whose disclosure is
restricted by statute. Certain other
material, such as copyrighted material,
is not placed on the Internet and will be
publicly available only in hard copy
form. Publicly available docket
materials are available either
electronically through
www.regulations.gov or in hard copy at
the EPA Docket Center, Public Reading
Room, EPA West, Room 3334, 1301
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Constitution Ave., NW., Washington,
DC. The Public Reading Room is open
from 8:30 a.m. to 4:30 p.m., Monday
through Friday, excluding legal
holidays. The telephone number for the
Public Reading Room is (202) 566–1744,
and the telephone number for the Air
Docket is (202) 566–1742.
FOR FURTHER INFORMATION CONTACT: For
technical information concerning the
paint stripping standards, contact Mr.
Warren Johnson, Office of Air Quality
Planning and Standards, Sector Policies
and Programs Division, Natural
Resources and Commerce Group (E143–
03), U.S. Environmental Protection
Agency, Research Triangle Park, North
Carolina 27711, telephone (919) 541–
5124, or e-mail at
Johnson.warren@epa.gov. For technical
information concerning the surface
coating standards, contact Ms. Kim Teal,
Office of Air Quality Planning and
Standards, Sector Policies and Programs
Division, Natural Resources and
Commerce Group (E143–03), U.S.
Environmental Protection Agency,
Research Triangle Park, North Carolina
27711, telephone (919) 541–5580, or email at teal.kim@epa.gov.
SUPPLEMENTARY INFORMATION:
K. Reporting, Recordkeeping, and
Compliance
L. Cost and Economic Impacts
VI. Summary of Environmental, Energy, and
Economic Impacts
A. What are the air impacts?
B. What are the cost impacts?
C. What are the economic impacts?
D. What are the non-air health,
environmental, and energy impacts?
VII. Statutory and Executive Order Reviews
A. Executive Order 12866: Regulatory
Planning and Review
B. Paperwork Reduction Act
C. Regulatory Flexibility Act
D. Unfunded Mandates Reform Act
E. Executive Order 13132: Federalism
F. Executive Order 13175: Consultation
and Coordination With Indian Tribal
Governments
G. Executive Order 13045: Protection of
Children From Environmental Health
and Safety Risks
H. Executive Order 13211: Actions
Concerning Regulations That
Significantly Affect Energy Supply,
Distribution, or Use
I. National Technology Transfer
Advancement Act
J. Executive Order 12898: Federal Actions
to Address Environmental Justice in
Minority Populations and Low-Income
Populations
K. Congressional Review Act
Outline
The information presented in this
preamble is organized as follows:
A. Does this action apply to me?
Categories and entities potentially
affected by the rule are paint stripping
operations using methylene chloride
(MeCl)-containing paint strippers, motor
vehicle and mobile equipment surface
coating operations, and miscellaneous
surface coating operations located at
area sources. An area source is defined
in the Clean Air Act (CAA) section
112(a) as any stationary source of HAP
that is not a major source, and a major
source is defined as any stationary
source or group of stationary sources
located within a contiguous area and
under common control that emits, or
has the potential to emit, considering
controls, in the aggregate, 10 tons per
year (tpy) or more of any single HAP or
25 tpy or more of any combination of
HAP.
For the purposes of this rule, paint
stripping operations are those that
perform paint stripping using MeCl for
the removal of dried paint (including,
but not limited to, paint, enamel,
varnish, shellac, and lacquer) from
wood, metal, plastic, and other
substrates at area sources as either:
(1) an independent activity where
paint stripping is the principal activity
at the source, or
(2) an activity incidental to the
principal activity (e.g., surface coating,
inspection, maintenance, etc.) at the
source.
I. General Information
A. Does This Action Apply to Me?
B. Where Can I Get a Copy of This
Document?
C. Judicial Review
II. Background Information for Final Area
Source Standards
III. Summary of Final Rule
A. Applicability
B. Compliance Dates
C. Requirements for Paint Stripping
Operations
D. Surface Coating Requirements
E. Notifications, Recordkeeping, and
Reporting
IV. Summary of Changes Since Proposal
A. Applicability
B. Compliance Dates
C. Requirements for Paint Stripping
Operations
D. Requirements for Surface Coating
Operations
E. Notifications, Recordkeeping, and
Reporting
V. Summary of Comments and Responses
A. Applicability
B. Compliance date
C. Requirements for Paint Stripping
Operations
D. Authority to Regulate Miscellaneous
Surface Coating Operations
E. Basis of Surface Coating Standards
F. Training Requirements
G. Spray Gun Requirements
H. Spray Booths
I. Spray Booth Filters
J. Spray Gun Washers
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I. General Information
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For co-located operations, EPA
considers paint stripping activities that
use one ton or less to be incidental to
the principal activity and those using
more than one ton to be performing
paint stripping as a principal activity.
Motor vehicle and mobile equipment
surface coating operations involve the
spray application of coatings at area
sources to automobiles, light trucks,
heavy duty trucks, buses, construction
equipment, self-propelled vehicles and
equipment that may be drawn and/or
driven on a roadway.
Miscellaneous surface coating
operations are those that involve the
spray application of coatings that
contain compounds of chromium (Cr),
lead (Pb), manganese (Mn), nickel (Ni),
or cadmium (Cd), herein after referred to
as target HAP, to miscellaneous parts
and/or products made of metal or
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plastic, or combinations of metal and
plastic.
In general, the facilities and entities
potentially affected by some or all of the
rule are covered under the North
American Industrial Classification
System (NAICS) codes listed in the
following table. However, facilities
classified under other NAICS codes may
be subject to the standards if they meet
the applicability criteria.
Category
NAICS
Examples of potentially regulated entities
Aerospace Equipment .....................
Automobiles and Automobile Parts
336413, 336414, 336415, 54171 ..
336111, 336211, 336312, 33632,
33633, 33634, 33637, 336399,
441110, 441120, 811121.
Chemical Manufacturing and Product Preparation.
325110, 325120, 325131, 325188,
325192,
325193,
325199,
325998.
Extruded Aluminum .........................
Government .....................................
331316, 331524, 332321, 332323
Not Applicable ...............................
Heavy Equipment ............................
Job Shops .......................................
33312, 333611 ...............................
332722, 332813, 332991, 334119,
336413, 339999.
33612, 336211 ...............................
332311 ...........................................
Aircraft engines, aircraft parts, aerospace ground equipment.
Engine parts, vehicle parts and accessories, brakes, axles, etc. Motor
vehicle body manufacturing and automobile assembly plants. New
and used car dealers. Automotive body, paint, and interior repair
and maintenance.
Petrochemicals, Industrial Gases, Inorganic Dyes and Pigments,
Basic Inorganic and Organic Chemicals, Cyclic Crude and Intermediates, Ethyl Alcohol, Miscellaneous Chemical Production and
Preparation.
Extruded aluminum, architectural components, coils, rod, and tubes.
Government entities, besides Department of Defense, that maintain
vehicles, such as school buses, police and emergency vehicles,
transit buses, or highway maintenance vehicles.
Tractors, earth moving machinery.
Manufacturing industries not elsewhere classified (e.g., bezels, consoles, panels, lenses).
Large trucks and buses.
Prefabricated metal buildings, carports, docks, dwellings, greenhouses, panels for buildings.
Drums, kegs, pails, shipping containers.
Plate, tube, rods, nails, etc.
Large Trucks and Buses .................
Metal Buildings ................................
Metal Containers .............................
Metal Pipe and Foundry ..................
Rail Transportation ..........................
Recreational Vehicles and Other
Transportation Equipment.
Rubber-to-Metal Products ...............
Structural Steel ................................
Waste Treatment, Disposal, and
Materials Recovery.
Other Industrial and Commercial ....
33242, 81131, 322214, 331513 ....
331111, 331513, 33121, 331221,
331511.
33651, 336611, 482111 ................
321991, 3369, 331316, 336991,
336211,
336112,
336212,
336213,
336214,
336399,
336999, 33635, 56121, 8111,
56211.
326291, 326299 .............................
332311, 332312 .............................
562211, 562212, 562213, 562219,
562920.
211112 ...........................................
311942 ...........................................
331311 ...........................................
337214, 811420 .............................
325211 ...........................................
325510 ...........................................
32614, 32615 .................................
326199 ...........................................
333313 ...........................................
33422 .............................................
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339111, 339112 .............................
33992 .............................................
33995 .............................................
336612 ...........................................
713930 ...........................................
This table is not intended to be
exhaustive, but rather provides a guide
for readers regarding entities likely to be
regulated by the rule. Many types of
entities that perform stripping and/or
coating that are not listed in this table
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Brakes, engines, freight cars, locomotives.
Mobile Homes. Motorcycles, motor homes, semi trailers, truck trailers. Miscellaneous transportation related equipment and parts.
Travel trailer and camper manufacturing.
Engine mounts, rubberized tank tread, harmonic balancers.
Joists, railway bridge sections, highway bridge sections.
Hazardous Waste Treatment and Disposal, Solid Waste Landfill,
Solid Waste Combustors and Incinerators, Other Nonhazardous
Waste Treatment and Disposal, Materials Recovery.
Natural Gas Liquid Extraction.
Spices and Extracts.
Alumina Refining.
Office furniture, except wood. Reupholstery and Furniture Repair.
Plastics Material Synthetic Resins, and Nonvulcanizable Elastomers.
Paint and Coating Manufacturing.
Plastic foam products (e.g., pool floats, wrestling mats, life jackets).
Plastic products not elsewhere classified (e.g., name plates, coin
holders, storage boxes, license plate housings, cosmetic caps, cup
holders).
Office machines.
Radio and television broadcasting and communications equipment
(e.g., cellular telephones).
Medical equipment and supplies.
Sporting and athletic goods.
Signs and advertising specialties.
Boat building.
Marinas, including boat repair yards.
would be potentially affected by the
rule. Additionally, some entities that are
classified under the NAICS codes in the
table may not be subject if they are not
performing the operations described in
the applicability criteria in §§ 63.11169
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and 63.11170 of the rule. To determine
whether your facility, company,
business, organization, etc., is subject to
this action, you should examine the
applicability criteria in §§ 63.11169 and
63.11170 of the rule. If you have any
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questions regarding the applicability of
this action to a particular entity, consult
the person listed in the preceding FOR
FURTHER INFORMATION CONTACT section.
B. Where can I get a copy of this
document?
In addition to being available in the
docket, an electronic copy of this final
action will also be available on the
Worldwide Web (WWW) through the
Technology Transfer Network (TTN). A
copy of this final action will be posted
on the TTN’s policy and guidance page
for newly proposed or promulgated
rules at the following address: https://
www.epa.gov/ttn/oarpg/. The TTN
provides information and technology
exchange in various areas of air
pollution control.
C. Judicial Review
Under section 307(b)(1) of the CAA,
judicial review of this final rule is
available only by filing a petition for
review in the U.S. Court of Appeals for
the District of Columbia Circuit by
March 10, 2008. Under section
307(d)(7)(B) of the CAA, only an
objection to the rule that was raised
with reasonable specificity during the
period for public comment can be raised
during judicial review. Moreover, under
section 307(b)(2) of the CAA, the
requirements established by this final
rule may not be challenged separately in
any civil or criminal proceedings
brought by EPA to enforce these
requirements.
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II. Background Information for Final
Area Source Standards
Section 112(k)(3)(B) of the CAA
requires EPA to identify at least 30 HAP,
which, as the result of emissions of area
sources, pose the greatest threat to
public health in urban areas. Consistent
with this provision, EPA identified the
30 HAP that pose the greatest potential
health threat in urban areas in 1999.
These HAP are referred to as the ‘‘Urban
HAP’’ as part of the Integrated Urban
Air Toxics Strategy. See 64 FR 38715,
July 19, 1999. Section 112(c)(3) requires
EPA to list sufficient categories or
subcategories of area sources to ensure
that area sources representing 90
percent of the emissions of the 30 Urban
HAP are subject to regulation. EPA
listed the source categories that account
for 90 percent of the Urban HAP
emissions in the Integrated Urban Air
Toxics Strategy.1 Sierra Club sued EPA,
alleging a failure to complete standards
for the area source categories listed
1 Since its publication in the Integrated Urban Air
Toxics Strategy in 1999, EPA has revised the area
source category list several times.
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pursuant to CAA sections 112(c)(3) and
(k)(3)(B) within the time frame specified
by the statute. See Sierra Club v.
Johnson, No. 01–1537, (D.D.C.). On
March 31, 2006, the court issued an
order requiring EPA to promulgate
standards under CAA section 112(d) for
those area source categories listed
pursuant to CAA section 112(c)(3).
Among other things, the order as
amended on October 15, 2007, requires
that, by December 15, 2007, EPA
complete standards for nine area source
categories. On September 17, 2007, EPA
proposed NESHAP for Paint Stripping
and Miscellaneous Surface Coating
Operations at Area Sources. The
proposal covered the following three
listed area source categories that were
selected to meet the December 15, 2007,
deadline: (1) Paint Stripping, (2) Plastic
Parts and Products (Surface Coating),
and (3) Autobody Refinishing Paint
Shops. See 72 FR 52958. This final
NESHAP completes the required
regulatory action for three area source
categories.
Under CAA section 112(d)(5), the
Administrator may, in lieu of standards
requiring maximum achievable control
technology (MACT) under section
112(d)(2), elect to promulgate standards
or requirements for area sources ‘‘which
provide for the use of generally
available control technologies (GACT)
or management practices by such
sources to reduce emissions of
hazardous air pollutants.’’ As explained
in the proposed NESHAP, EPA is setting
standards for these area source
categories pursuant to section 112(d)(5).
See 72 FR 52958, September 17, 2007.
III. Summary of Final Rule
A. Applicability
We have revised the rule since
proposal to clarify the sources to which
it applies. In order to clarify the
applicability of the final rule and the
standards that apply, §§ 63.11169 and
63.11170 of the final rule distinguish
among the three separate area source
categories: paint stripping, motor
vehicle and mobile equipment surface
coating, and miscellaneous surface
coating. The rule contains separate
provisions describing the requirements
for each category.
The final subpart does not apply to
any of the following activities listed in
§ 63.11169:
(1) Surface coating or paint stripping
performed on site at installations owned
or operated by the Armed Forces of the
United States (including the Coast
Guard and the National Guard of any
State), the National Aeronautics and
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Space Administration, or the National
Nuclear Security Administration.
(2) Surface coating or paint stripping
of military munitions, as defined in
§ 63.11180, manufactured by or for the
Armed Forces of the United States
(including the Coast Guard and the
National Guard of any State) or
equipment directly and exclusively
used for the purposes of transporting
military munitions.
(3) Surface coating or paint stripping
performed by individuals on their
personal vehicles, possessions, or
property, either as a hobby or for
maintenance of their personal vehicles,
possessions, or property. This subpart
also does not apply when these
operations are performed by individuals
for others without compensation. An
individual who spray applies surface
coating of more than two motor vehicles
or pieces of mobile equipment per year
is subject to the requirements in this
subpart that pertain to motor vehicle
and mobile equipment surface coating
regardless of whether compensation is
received.
(4) Surface coating or paint stripping
that meets the definition of ‘‘research
and laboratory activities’’ in § 63.11180
of the final rule.
(5) Surface coating or paint stripping
that meets the definition of ‘‘quality
control activities’’ in § 63.11180 of the
final rule.
(6) Surface coating or paint stripping
that is specifically covered by another
area source NESHAP.
Section 63.11170 specifies the
operations that are subject to the final
standards. For paint stripping, the final
rule applies to you if you use chemical
strippers that contain MeCl to remove
dried paint (including, but not limited
to, paint, enamel, varnish, shellac, and
lacquer) from wood, metal, plastic, and
other substrates.
The final rule also applies to you if
you spray apply coatings to motor
vehicles or mobile equipment for the
purposes of finishing or refinishing, and
clarifies that the standards apply to all
sources performing these operations
using spray-applied coatings, including
mobile refinishing operations, except
those operations that meet the definition
of facility maintenance in § 63.11180.
Finally, the rule applies if you spray
apply coatings that contain the target
HAP to plastic or metal parts and
products (other than motor vehicles and
mobile equipment), except those
operations that meet the definition of
facility maintenance or that are surface
coating of a space vehicle. If you
perform miscellaneous surface coating
operations, but do not use any coatings
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that contain the target HAP, the rule
does not apply.
The final rule applies to all motor
vehicle and mobile equipment surface
coating operations. However, if you are
the owner or operator of a motor vehicle
or mobile equipment surface coating
operation, you may petition the
Administrator for an exemption from
this subpart if you can demonstrate, to
the satisfaction of the Administrator,
that you spray apply no coatings that
contain the target HAP. Petitions must
include a description of the coatings
that you spray apply and your
certification that you do not spray apply
any coatings containing the target HAP.
If circumstances change such that you
intend to spray apply coatings
containing the target HAP, you must
submit the initial notification required
by 63.11175 and comply with the
requirements of this subpart.
Coatings are considered to contain the
target HAP if they contain any
individual target HAP that is an
Occupational Safety and Health
Administration (OSHA)–defined
carcinogen as specified in 29 CFR
1910.1200(d)(4) at a concentration
greater than 0.1 percent by mass or
greater than 1.0 percent by mass for any
other individual target HAP. For the
purpose of determining whether
materials you use contain the target
HAP (that is, compounds of chromium
(Cr), lead (Pb), manganese (Mn), nickel
(Ni), or cadmium (Cd)), you may rely on
formulation data provided by the
manufacturer or supplier, such as the
material safety data sheet (MSDS), as
long as it represents each target HAP
compound in the material that is
present at 0.1 percent by mass or more
for OSHA-defined carcinogens and at
1.0 percent by mass or more for other
target HAP compounds.
The final rule also includes in
§ 63.11180 definitions of
‘‘administrator,’’ ‘‘coating,’’ ‘‘facility
maintenance,’’ ‘‘quality control
activities,’’ ‘‘research and laboratory
activities,’’ ‘‘space vehicle,’’ and ‘‘spray
application of coatings’’ related to these
applicability provisions.
‘‘Administrator’’ means the
Administrator of the U.S.
Environmental Protection Agency or the
State or local agency that is granted
delegation for implementation of this
subpart.
‘‘Coating’’ is defined as a material
spray-applied to a substrate for
decorative, protective, or functional
purposes. As specified in the definition
in the final rule, ‘‘coating’’ does not
include the following materials:
(1) Decorative, protective, or
functional materials that consist only of
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protective oils for metal, acids, bases, or
any combination of these substances.
(2) Paper film or plastic film that may
be pre-coated with an adhesive by the
film manufacturer.
(3) Adhesives, sealants, maskants, or
caulking materials.
(4) Temporary protective coatings,
lubricants, or surface preparation
materials.
(5) In-mold coatings that are sprayapplied in the manufacture of reinforced
plastic composite parts.
‘‘Facility maintenance’’ is defined to
include architectural surface coating
activities on stationary structures and
process equipment. It is also defined to
include the surface coating of mobile
equipment in the field, such as farming
or mining equipment, or mobile
equipment coated at a site where it is
used, such as a fork truck coated at a
manufacturing facility. The definition of
facility maintenance specifically
excludes surface coating of motor
vehicles, mobile equipment, or items
that routinely leave and return to the
facility, such as delivery trucks, rental
equipment, or containers used to
transport or deliver products to
customers, such as compressed gas
canisters. The surface coating of these
items (e.g., courier vehicles or
compressed gas canisters) that routinely
leave and return to the facility will be
subject to the standards.
‘‘Quality control activities’’ has been
defined to mean surface coating or paint
stripping activities that meet all of the
following criteria:
(1) The activities, associated with a
surface coating or paint stripping
operation, to detect and correct defects
in the final product through selection of
limited samples from the operation, and
comparison of the samples against
specific performance criteria.
(2) The activities do not include the
production of an intermediate or final
product for sale or exchange for
commercial profit; for example, parts
that are surface coated or stripped are
not sold.
(3) The activities are not a normal part
of the miscellaneous surface coating or
paint stripping operation, e.g., they do
not include color matching activities
performed on motor vehicles as part of
collision repair activities.
(4) The activities do not involve
surface coating or stripping of the tools,
equipment, machinery, and structures
that comprise the infrastructure of the
affected facility and that are necessary
for the facility to function in its
intended capacity, e.g., the activities are
not facility maintenance.
‘‘Research and laboratory activities’’
has been defined to mean surface
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coating or paint stripping activities
whose primary purpose is to conduct
research and development into new
processes and products, that are
performed under the close supervision
of technically trained personnel and do
not include the manufacture of
intermediate or final products for
commercial sale in commerce. Such
activities are ordinarily conducted in a
dedicated area of a facility (such as a
dedicated room or paint booth), or in a
separate facility. Research and
laboratory activities include, but are not
limited to the following:
(1) Activities conducted to develop
more efficient production processes,
including alternative paint stripping or
surface coating materials or application
methods, or methods for preventing or
reducing adverse environmental
impacts.
(2) Activities conducted at a
laboratory to analyze air, soil, water,
waste, or product samples for
contaminants or environmental impact
or to develop revised production
processes to limit environmental effects.
‘‘Space Vehicle’’ has been defined to
mean vehicles designed to travel beyond
the limit of the earth’s atmosphere, such
as satellites, space stations, and the
Space Shuttle System (including orbiter,
external tanks, and solid rocket
boosters).
‘‘Spray-applied coating operations’’
has been defined to mean coatings that
are applied using a hand-held device
that creates an atomized mist of coating
and deposits the coating on a substrate.
As specified in the definition in the
final rule, the following materials or
activities are not considered sprayapplied coatings:
(1) Coatings applied from a hand-held
device with a paint cup capacity that is
equal to or less than 3.0 fluid ounces (89
cubic centimeters (cc)).
(2) Surface coating application using
powder coating, hand-held, nonrefillable aerosol containers, or nonatomizing application technology,
including, but not limited to, paint
brushes, rollers, hand wiping, flow
coating, dip coating, electrodeposition
coating, web coating, coil coating,
touch-up markers, or marking pens.
(3) Thermal spray operations (also
known as metallizing, flame spray,
plasma arc spray, and electric arc spray,
among other names) in which solid
metallic or non-metallic material is
heated to a molten or semi-molten state
and propelled to the work piece or
substrate by compressed air or other gas,
where a bond is produced upon impact.
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B. Compliance Dates
New sources must comply with the
requirements of the final rule upon
startup of operations, but no earlier than
the effective date of this notice. Existing
sources must comply no later than three
years from the effective date of this
notice.
C. Requirements for Paint Stripping
Operations
All owners and operators of regulated
sources conducting paint stripping and
using MeCl-containing paint stripper
must implement management practices
that reduce emissions of MeCl by
minimizing evaporative losses of MeCl.
The MeCl management practices
involve only using a MeCl-containing
paint stripper when an alternative on
site stripping method or material is
incapable of accomplishing the work as
determined by the operator. Alternative
methods to reduce MeCl usage may
include:
(1) Non- or low-MeCl-containing
chemical strippers;
(2) Mechanical stripping;
(3) Blasting (including dry or wet
media); or
(4) Thermal and cryogenic
decomposition.
The management practices required
also include optimizing stripper
application conditions, reducing
exposure of stripper to the air, and
practicing proper storage and disposal
of materials containing MeCl. Owners
and operators must also maintain
records of annual usage of strippers
containing MeCl.
In addition to the management
practices, sources that use more than
one ton of MeCl per year need to
develop and implement a MeCl
minimization plan. This must be a
written plan including criteria to
evaluate the necessity of MeCl in the
stripping operations and whether
alternatives are feasible. It must also
describe the management techniques
that will be used to minimize MeCl
emissions when MeCl is needed in the
paint stripping operation.
The MeCl minimization plan
evaluation criteria involves only using a
MeCl-containing paint stripper when an
alternative on site stripping method or
material is incapable of accomplishing
the work as determined by the operator.
Alternative methods to reduce MeCl
usage may include:
(1) Non- or low-MeCl-containing
chemical strippers;
(2) Mechanical stripping;
(3) Blasting (including dry or wet
media); or
(4) Thermal and cryogenic
decomposition.
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The management practices required to
be contained in the plan include
optimizing stripper application
conditions, reducing exposure of
stripper to the air, and practicing proper
storage and disposal of materials
containing MeCl. Sources are required
to notify either EPA or the delegated
State permit authority that they have
developed a MeCl minimization plan,
keep a written copy of the plan on site
and post a placard or sign outlining the
evaluation criteria and management
techniques in each area where MeClcontaining paint stripping operations
occur. They are also required to review
the plan annually and update it based
on the experiences of the previous year
or the availability of new methods of
stripping and to keep a record of the
review and changes made to the plan on
file.
D. Requirements for Surface Coating
Operations
All motor vehicle and mobile
equipment surface coating operations
and those miscellaneous surface coating
operations that spray apply coatings
containing the target HAP must apply
the coatings with a high volume, low
pressure (HVLP) spray gun, electrostatic
spray gun, airless spray gun, air-assisted
airless spray gun, or a gun demonstrated
to be equal in transfer efficiency to an
HVLP spray gun. All spray-applied
coatings must be applied in a prep
station or spray booth. For motor
vehicle and mobile equipment surface
coating, prep stations and spray booths
that are large enough to hold a complete
vehicle must have four complete side
walls or curtains and a complete roof.
For motor vehicle and mobile
equipment subassemblies and for
miscellaneous surface coating, coatings
must be spray applied in a booth with
a full roof and at least three walls or side
curtains. Openings are allowed in the
sidewalls and roof of booths used for
miscellaneous surface coating to allow
for parts conveyors, if needed. The
exhaust from the prep station or spray
booth must be fitted with filters
demonstrated to achieve at least 98
percent filter efficiency of paint
overspray.
Additionally, surface coating sources
subject to the standards are required to
comply with management practices by
demonstrating that:
(1) All painters that spray apply
coatings have completed training in
techniques to minimize paint overspray,
and
(2) That no spray gun cleaning is
performed by spraying solvent through
the gun creating an atomized mist (i.e.,
spray guns are cleaned in an enclosed
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spray gun cleaner or by cleaning the
disassembled gun parts by hand).
Initial painter training will be valid
for a period of five years, and refresher
training must be repeated at least once
every five years. Painters that completed
training in the last five years before the
compliance date will be able to use that
training to satisfy this requirement. To
comply with the painter training
requirements, all spray painters at new
sources must complete training no later
than 180 days after hiring or 180 days
from the date of this notice, whichever
is later. All spray painters at existing
sources must complete training no later
than three years from the date of this
notice or no later than 180 days after
hiring, whichever is later.
The initial and refresher training must
address the following topics to reduce
coating overspray and emissions:
(1) Spray gun equipment selection, set
up, and operation, including measuring
coating viscosity, selecting the proper
fluid tip or nozzle, and achieving the
proper spray pattern, air pressure and
volume, and fluid delivery rate.
(2) Spray technique for different types
of coatings to improve transfer
efficiency and minimize coating usage
and overspray, including maintaining
the correct spray gun distance and angle
to the part, using proper banding and
overlap, and reducing lead and lag
spraying at the beginning and end of
each stroke.
(3) Routine spray booth and filter
maintenance, including filter selection
and installation.
(4) Environmental compliance with
the requirements of this subpart.
E. Notifications, Recordkeeping, and
Reporting
All sources must submit an initial
notification to the EPA or to their State
or local air pollution control agency, if
the EPA has delegated authority for
implementing this rule to that agency,
with a copy sent to EPA, unless the EPA
regional office has waived the dual
reporting requirements. New sources
need to submit the initial notification no
later than 180 days after initial startup,
or no later than 180 days after the date
of this notice, whichever is later.
Existing sources need to submit the
initial notification no later than one year
before their compliance date. For new
sources, the initial notification will also
serve as a notification on whether the
source is in compliance. For existing
sources, the initial notification must
indicate whether the source is already
in compliance or that it will be brought
into compliance by the existing source
compliance date.
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Additionally, all existing sources that
did not state in their initial notification
that they were already in compliance
with the management practices and
equipment requirements prescribed in
the final rule must also submit a
notification of compliance status. The
notification of compliance status must
be submitted no later than 60 days after
the compliance date for existing
sources. The notification of compliance
status must certify that the source is in
compliance with the applicable
requirements for the activities being
performed.
The initial notification must include
the following information:
(1) The name, address, phone number
and e-mail address (if available) of the
owner and operator.
(2) The address (physical location) of
the affected source. If the source is a
motor vehicle or mobile equipment
surface coating operation that repairs
vehicles at the customer’s location,
rather than at a fixed collision repair
shop, the notification should state this
and indicate the physical location
where records are kept to demonstrate
compliance.
(3) A statement that the source is
subject to this standard, 40 CFR part 63,
subpart HHHHHH.
(4) A brief description of the type of
operation, including which types of
activities are performed at the source
(miscellaneous surface coating, motor
vehicle and mobile equipment surface
coating, or paint stripping). For surface
coating operations, identify the number
of spray booths and the number of
painters usually employed at the
operation. For paint stripping, identify
the method(s) of paint stripping
employed (e.g., chemical, mechanical)
and the substrates stripped (e.g., wood,
plastic, metal).
(5) Each paint stripping operation
must indicate whether they plan to
annually use more than one ton of MeCl
after the compliance date.
Sources are only required to submit
an annual report to the EPA or to their
State or local air pollution control
agency if any information in the initial
notification, notification of compliance
status report, or in a previous annual
report has changed in the previous
calendar year. If an annual report is
needed, it must be submitted no later
than 60 days after the yearly anniversary
of the compliance date.
All sources must keep records
sufficient to demonstrate that they are in
compliance at all times. These include
the following:
(1) Records that each spray painter
has completed the training, with the
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date of the initial training and the most
recent refresher training.
(2) Documentation of the filter
efficiency of any spray booth exhaust
filter material, such as data from the
filter manufacturer.
(3) Documentation from the spray gun
manufacturer that each spray gun that
does not meet the definition of an HVLP
spray gun, electrostatic spray gun,
airless spray gun, or air-assisted airless
spray gun has been demonstrated to
achieve a transfer efficiency equal to
one of the other allowed types of spray
gun.
(4) Copies of any notifications or
reports that were submitted.
(5) Records of paint strippers
containing MeCl used for paint
stripping operations, including the
MeCl content of the paint stripper used,
and annual usage.
(6) If you are a paint stripping source
that annually uses more than one ton of
MeCl, a record of your current MeCl
minimization plan, and records of your
annual review of, and updates to, your
MeCl minimization plan.
(7) Records of any deviation from the
requirements in the final rule, including
the date and time period of the
deviation, and a description of the
nature of the deviation and the actions
taken to correct the deviation.
(8) Records of any assessments of
source compliance performed in
support of the initial notification,
notification of compliance status, or
annual notification of changes report.
Under the final rule, owners and
operators will not be required to obtain
a Title V operating permit under 40 CFR
part 70 or 71, provided they are not
required to obtain a permit for another
reason, even though the source is an
area source.
IV. Summary of Changes Since
Proposal
A. Applicability
We have revised the rule since
proposal to clarify the scope of the
source category to which it applies, and
to clearly identify the sources subject to
the requirements of the rule. These
revisions make clear that the affected
source category is not as broad as could
have been interpreted based on the
language of the proposed rule. These
changes were made in both the
applicability sections (§§ 63.11169 to
63.11171) and to the definitions in
§ 63.11180 that describe particular
operations that are subject to the
standards.
We have revised § 63.11169 to specify
that compounds of chromium (Cr), lead
(Pb), manganese (Mn), nickel (Ni), and
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cadmium (Cd) are the HAP for which
the surface coating standards for
miscellaneous surface coating
operations category was listed and
which the standards are designed to
control. In subsequent sections of the
rule, certain provisions apply only to
surface coating operations that are
sources of these target HAP.
We have revised § 63.11170 to
separate and more clearly explain how
the rule applies to paint stripping,
motor vehicle and mobile equipment
surface coating, and miscellaneous
surface coating. In particular, motor
vehicle and mobile equipment surface
coating has been separated from the
larger category of miscellaneous surface
coating and is treated separately in the
rest of the rule. In the proposed rule, all
surface coating was included under a
single set of requirements that made no
distinction between motor vehicle and
mobile equipment surface coating and
all other miscellaneous surface coating.
The National Nuclear Security
Administration (NNSA) has been added
to the list of installations to which this
subpart does not apply. This list is
found in § 63.11169. Surface coating
and paint stripping at NNSA
installations would be regulated by the
military surface coating NESHAP that is
under development.
Section 63.11169 has also been
revised to specify that these standards
do not apply to paint stripping and
surface coating performed by
individuals as part of a hobby, or for
maintenance of their personal vehicles,
possessions, and property, or when they
perform these activities for others
without compensation.
For motor vehicle and mobile
equipment surface coating, all sources
and individuals that spray finish more
than two motor vehicles or pieces of
mobile equipment per year are subject
to the requirements in the final rule that
pertain to motor vehicle and mobile
equipment surface coating regardless of
whether compensation is received.
However, we have included a provision
in the final rule that allows an owner or
operator of a motor vehicle or mobile
equipment surface coating operation to
petition the Administrator for an
exemption from this subpart if the
owner or operator can demonstrate that
they spray apply no coatings that
contain the target HAP. Petitions must
include a description of the coatings
that they spray apply and certification
that they do not spray apply any
coatings containing the target HAP. If
circumstances change such that the
owner or operator intends to spray
apply coatings containing the target
HAP, the owner or operator must submit
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the initial notification required by
63.11175 and comply with the
requirements of this subpart. While the
proposed rule would have required all
motor vehicle and mobile equipment
surface coating operations to comply
with the requirements of the rule,
because the category was listed for the
target HAP, it is appropriate to allow
operations that do not use products
containing the target HAP to request
that the rule not apply to them based on
an adequate demonstration that they do
not use such products. EPA’s
understanding, based on site visits and
communications with the industry, is
that many shops, especially smaller
ones, purchase coatings ‘‘over the
counter’’ on a retail basis and usually do
not receive composition data, such as a
material safety data sheet (MSDS), with
these coatings. In addition, when a
specific color is needed for refinishing
a vehicle, it is usually custom-mixed
from any number of about 50 different
toners, either by the painter at the shop,
or by the coating retailer. Therefore, it
will likely be very difficult to determine
whether any particular coating being
sprayed contains the target HAP, unless
the HAP composition of all coatings
within the shop is known. For this
reason, and because we received
comments from industry supporting the
proposed requirements, we expect that
few, if any, petitions will be received.
We hope to encourage reformulation
where possible through this provision.
The applicability language in
§ 63.11169 in the final rule has been
revised to exclude paint stripping and
surface coating that meets the definition
of research and laboratory activities, and
quality control activities, as defined in
§ 63.11180.
The applicability language in
§ 63.11170 for motor vehicle and mobile
equipment surface coating operations
has been revised to clarify that the
standards apply to all sources that spray
apply these coatings, including mobile
refinishing operations, except when
they qualify as facility maintenance, as
defined in § 63.11180.
The applicability language for
miscellaneous surface coating
operations has been revised to clarify
the scope of the source category subject
to regulation. First, the standards apply
to the spray application of only coatings
that contain the target HAP at
miscellaneous surface coating
operations. Second, language has been
added to clarify that the standards apply
only to plastic and metal substrates.
Third, the rule has been revised to also
exclude miscellaneous surface coating
that meets the definition of ‘‘facility
maintenance.’’ Finally, surface coating
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on space vehicles has been specifically
excluded so as to parallel the
applicability of subpart GG, the major
source NESHAP for Aerospace
Manufacturing and Rework Facilities.
The applicability of the final rule has
been further clarified by revising or
adding definitions to § 63.11180 that
better explain the operations that are
covered. The definition of ‘‘coating’’
was revised to clarify that the following
are not coatings subject to this rule:
(a) Adhesives, sealants, maskants, or
caulking materials.
(b) Temporary protective coatings,
lubricants, or surface preparation
materials.
(c) In-mold coatings that are sprayapplied in the manufacture of reinforced
plastic composite parts.
New definitions were added for
‘‘facility maintenance’’, ‘‘quality control
activities’’, ‘‘research and laboratory
activities’’, and ‘‘spray-applied coating.’’
These definitions were fully described
in section III.A of this preamble.
B. Compliance Dates
The compliance date for existing
sources has been extended from two
years to three years after the effective
date of today’s final rule notice.
C. Requirements for Paint Stripping
Operations
The format of the MeCl minimization
plan threshold for the paint stripping
portion of the rule has been revised
from total stripper volume usage to
MeCl mass usage for several reasons.
First, EPA believes it is more
appropriate to address the emissions
directly, when possible, in lieu of using
a surrogate that may or may not
accomplish the goal. Additionally, a
mass usage format may serve as an
incentive for sources to evaluate the
appropriate MeCl content of their
chemical strippers and also provide the
sources with greater flexibility. The rule
sets the MeCl minimization plan
threshold at one ton per year of MeCl
contained in paint strippers.
D. Requirements for Surface Coating
Operations
The rule has been revised to create
separate categories for motor vehicle
and mobile equipment surface coating
and for miscellaneous surface coating.
For motor vehicle and mobile
equipment surface coating, the
requirements for painter training, high
efficiency spray guns (e.g., HVLP or
equivalent), spray booths with filters,
and gun washing still apply to all
sources as described in the applicability
section of the rule.
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For miscellaneous surface coating
operations, the rule has been revised so
that it applies only to those surface
coating operations that spray apply
coatings that contain the target HAP;
other surface coating operations do not
need to comply with those
requirements. Miscellaneous surface
coating operations that spray apply
coatings that contain the target HAP
must meet the same requirements as
motor vehicle and mobile equipment
surface coating operations.
The spray painter training
requirements have been revised so that
training is not required on those topics
that do not have a direct effect on
emissions reductions. More detail has
been added on the topics that impact
emissions reductions (e.g., transfer
efficiency) and for which training is
required. The training requirements
have also been revised to allow an
owner or operator to certify that their
employees have completed training to
facilitate the use of in-house training
programs. Spray painters will also have
180 days to complete training after
hiring or transferring to a surface
coating job, instead of 60 days.
The requirements for spray guns have
been revised to allow the use of airless
or air-assisted airless spray guns
without having to demonstrate that they
are equivalent to HVLP spray guns in
transfer efficiency.
The requirements for spray booth
filters have been revised so that all
spray booth exhaust filters must achieve
98 percent paint overspray filter
efficiency (also referred to as
‘‘arrestance’’), and details have been
added on the method that must be used
to measure that efficiency. The final rule
also clarifies that compliance with the
filter efficiency standard can be
demonstrated through data provided by
the filter manufacturer.
The booth requirements have been
revised to allow for openings in side
walls and roofs for part conveyors. They
have also been revised to allow for
booths that are operated at up to 0.05
inches water gauge positive pressure, if
they have sealed doors and other
openings and use a pressure balancing
system.
The rule language related to spray gun
washing has been revised to clarify that
atomized spraying of gun cleaning
solvent is prohibited, and allowable
means of washing spray guns include
hand cleaning disassembled spray guns,
manually flushing solvent through the
gun (without atomizing it) and
capturing the spent solvent, and using
an enclosed gun washer, but an
enclosed gun washer is not required.
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E. Notifications, Recordkeeping, and
Reporting
The notification and reporting
requirements of the rule have been
simplified and reduced. All sources will
still need to submit an initial
notification, but in that initial
notification, sources will be asked to
state whether they are already in
compliance with the requirements of the
rule or whether they plan to be in
compliance by the compliance date. For
new sources, the initial notification will
also serve as the notification of
compliance status since they would
otherwise be due by the same date. If
existing sources are already in
compliance by the time they submit the
initial notification and certify that they
are in compliance in their initial
notification, they do not need to submit
a separate notification of compliance
status. The need for regular annual
compliance reports has also been
removed. Sources will need to submit
an annual compliance report only if
there is a change in any of the
information contained in the initial
notification, the notification of
compliance status (if one was needed),
or in a previous annual compliance
report (if one was needed).
The rule has been revised to remove
the requirement for paint stripping
sources to submit MeCl minimization
plans to permitting authorities.
Facilities will be required to submit
either an initial notification or a
notification of compliance status that
says they have prepared and
implemented the plan. Instead of
submitting the plan, sources are only
required to keep the plan on site. The
facility has to review and update their
plan annually and keep records of the
review and changes made on site rather
than submitting an annual compliance
report to EPA or a State permitting
authority.
For paint stripping, motor vehicle and
mobile equipment surface coating
operations, and miscellaneous surface
coating operations, the rule has been
revised so that these sources will only
have to keep the records needed to
demonstrate compliance instead of
submitting annual compliance reports.
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V. Summary of Comments and
Responses
A. Applicability
Comment: Several commenters argued
that the miscellaneous surface coating
rule should apply only to surface
coating facilities that emit the target
HAP, and that target HAP should be
defined as the HAP for which the
miscellaneous surface coating source
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category was listed. These are
specifically compounds of Cr, Pb, Mn,
Ni, and Cd.
Response: The EPA agrees with the
commenters and recognizes that many
miscellaneous surface coating
operations exist that do not spray apply
coatings containing the target HAP.
Therefore, the applicability sections
have been revised so that the final rule
will apply to only miscellaneous surface
coating sources that spray apply
coatings containing the target HAP. If
your miscellaneous surface coating
operations do not spray apply any
coatings containing the target HAP, then
you are not subject to this rule and do
not need to comply with the
requirements for operator training, spray
guns, or spray booths. This change in
the language of the applicability
provision accurately reflects the sources
for which the miscellaneous surface
coating source category was listed,
because sources that do not spray apply
coatings containing the target HAP will
have no target HAP emissions and were
therefore not part of the inventory on
which the source category listing was
based. It will also create an incentive for
all miscellaneous surface coating
sources to review the coatings they are
spray applying and find substitutes for
those that contain the target HAP or to
switch to non-spray methods to apply
those coatings. Although some contract
coaters and ‘‘job shops’’ may use a large
number of different coatings, most
miscellaneous surface coating
operations use only a small number of
coatings and the composition data for
these can be reviewed to identify
whether these coatings contain the
target HAP.
However, based on the overwhelming
support of the commenters for the
applicability criteria and scope of the
motor vehicle and mobile equipment
source category, we are not narrowing
the applicability to only the target HAP
for the motor vehicle and mobile
equipment source category. The EPA’s
understanding, based on site visits and
communications with the industry, is
that these requirements are consistent
with current good environmental and
worker protection practices. (See other
comment responses for additional
clarifications on applicability that
exclude coating of personal property
and vehicles, facility maintenance
coating, etc.) The final rule applies to all
motor vehicle and mobile equipment
surface coating operations. However, if
you are the owner or operator of a motor
vehicle or mobile equipment surface
coating operation, you may petition the
Administrator for an exemption from
this subpart if you can demonstrate, to
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the satisfaction of the Administrator,
that you spray apply no coatings that
contain the target HAP. Petitions must
include a description of the coatings
that you spray apply and your
certification that you do not spray apply
any coatings containing the target HAP.
If circumstances change such that you
intend to spray apply coatings
containing the target HAP, you must
submit the initial notification required
by 63.11175 and comply with the
requirements of this subpart.
Comment: One commenter suggested
that the rule should be revised to add
the NNSA to the list of installations to
which this subpart does not apply. The
commenter noted that EPA is planning
that surface coating and paint stripping
at NNSA installations would be
addressed by the military surface
coating NESHAP that is under
development.
Response: The EPA agrees and has
added NNSA installations to the list of
installations to which this subpart does
not apply. These installations will be
addressed by the military surface
coating NESHAP that is under
development.
Comment: Several comments noted
that the applicability of the proposed
rule, as written, could be interpreted to
apply to all paint stripping and surface
coating operations, and included no
exemptions for automobile hobbyists or
homeowners stripping and painting
their own property or vehicles. Nearly
all commenters felt that paint stripping
and surface coating by hobbyists and
homeowners should be exempt from the
rule. Several commenters suggested that
EPA establish a de minimis usage
threshold, based on either major source
surface coating rules or state volatile
organic compounds (VOC) rules, to
exclude noncommercial paint stripping
or surface coating operations. The
commenters noted that hobbyist and
homeowner activities are difficult to
locate because they are located in
residential areas and are intermittent.
However, one commenter suggested that
the rule should have no exemptions and
any individual painting vehicles should
be subject to the proposed equipment
and training requirements.
Response: EPA re-examined the scope
of the source categories that we listed
based on the 1990 national emissions
inventory. The analyses that were the
basis for the source category listing for
paint stripping, miscellaneous surface
coating, and motor vehicle and mobile
equipment surface coating focused on
commercial operations, along with some
government and institutional
operations, such as municipal garages
that service fleet vehicles. Homeowners
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and hobbyists were not part of these
analyses and were not intended to be
part of the listed source categories.
Therefore, the final rule has been
revised to clarify that it does not cover
paint stripping and surface coating
performed by individuals on their
personal vehicles, possessions, or
property, either as a hobby or for
maintenance. This subpart also does not
apply when these operations are
performed by individuals for others
without compensation, which is akin to
the hobbyist and homeowner activities
not considered in the baseline inventory
that formed the basis for the listing of
the source categories at issue here.
However, for motor vehicle and
mobile equipment surface coating
operations, an individual surface
coating more than two vehicles per year
will be covered by the rule. This limit
on the number of vehicles coated per
year was included so that commercial
automobile surface coating shops could
not avoid compliance by claiming to be
a hobby shop. The limit was based on
information collected from automobile
hobbyists during the rule development.
The hobbyists that provided information
to the EPA suggested that a legitimate
hobbyist would complete no more than
two automobile restorations or
customizations per year.
The EPA is not including a volumetric
coating usage threshold in the final rule
for either motor vehicle and mobile
equipment surface coating operations,
or for miscellaneous surface coating
operations, as suggested by some
commenters, because the threshold is
not supported by the baseline inventory
on which we based our listing decision.
CAA section 112(c)(3) requires that EPA
list sufficient categories and
subcategories to ensure that area sources
representing 90 percent of the emissions
of the 30 listed urban HAP are subject
to regulation. The CAA contains no
exemption from the statutory
requirement to regulate sources
accounting for 90 percent of the
emissions of an urban HAP. The
inventory does not indicate that in
listing the categories at issue here EPA
included only those sources that use
coatings above a certain threshold
amount. Moreover, the commenter’s
reliance on the use of thresholds in
certain major source HAP rules and
State VOC rules is misplaced. EPA
listed the area source categories at issue
in this rule because the categories
accounted for a certain percentage of the
emissions necessary to meet the 90
percent requirement for the target urban
HAP; therefore, regulation of the
categories as listed is necessary for EPA
to attain the 90 percent reduction of
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those HAP and comply with the
requirements of section 112(c)(3) and
112(k). The rules on which the
commenters rely were not issued under
these provisions.
Comment: Three commenters
suggested EPA exempt from the
proposed rule operations that use less
than 150 gallons per year of paint
stripper that contains MeCl. A
commenter justified the exemption as
allowing minor paint stripping
operations to continue, and let the
regulating authorities focus on the more
significant operations and facilities.
Response: EPA is required by the
CAA to regulate emissions from area
sources, which are, by definition, small
sources. Based on baseline emission
estimates updated with additional
information provided by commenters,
we estimate that 150 gallons of MeCl
equates to approximately one ton of
MeCl emissions per year from each of
these small sources. This represents
around five percent of the total area
source MeCl emissions considered in
the original section 112(k) inventory.
While we appreciate the opinions of the
commenters to focus on the more
significant emitters, we cannot justify
ignoring this level of MeCl emissions.
We have minimized the requirements
and burden on these low level users by
not requiring them to develop MeCl
minimization plans. We do not feel that
asking them to consider alternatives to
using MeCl-based strippers is overly
burdensome. The reporting
requirements for these low level users
are also minimal. They must submit an
initial notification letter and keep MeClbased stripper purchase or use records,
which we believe would be maintained
for tax purposes already. We do not
believe that receiving one letter per
facility would be overly burdensome for
permitting agencies. In conclusion, we
feel that our approach has adequately
balanced the requirements of the CAA
without unduly burdening small
businesses in this source category or
permitting agencies.
Comment: One commenter noted that
while basing the threshold level that
triggers development of a written MeCl
minimization plan on the total quantity
of stripper used may simplify
compliance, it does not consider the
MeCl content of the stripper
formulation, and thus may create a
disincentive for facilities to explore
formulations with lower MeCl content.
They stated that, although the MeClbased products commonly used in paint
stripping operations contain 75 to 90
percent MeCl, products containing 40 to
50 percent of the solvent are also
available. However, they pointed out
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that facilities may need to use more
stripper to compensate for the lower
MeCl content, resulting in the need for
higher volumes. The commenter
indicated that they did not believe that
specifying a use threshold based on the
MeCl content was appropriate. They
indicated that a higher gallon-per-year
limit would allow many paint stripping
firms to explore the applicability of
lower MeCl-content formulations to
their operations. The commenter stated
that discussions with member
companies that formulate MeCl-based
strippers for commercial operations
indicated that a threshold of 500 to 600
gallons also would better distinguish
between operations that perform paint
stripping as a regular part of their
business and those that conduct
stripping on an as-needed (incidental)
basis.
Another commenter said that to be
cost effective, shops buy MeCl based
strippers in 55 gallon drums, which
makes the 150 gallon per year minimum
unrealistic. They suggested that a 220
gallon per year threshold would be a
more realistic number and would reflect
a factor of cost-effective bulk purchases.
Response: As discussed in the
proposal preamble (72 FR 52966), a
subcategory of paint strippers was
created to distinguish those sources that
were assumed to have alternative on site
paint stripping technologies available.
The threshold level to define this
subcategory was proposed as a volume
of MeCl-based stripper used (150
gallons per year). Given the large
number of small businesses that will be
impacted by this rule, we thought that
this volume-based threshold would
lessen the burden when compared with
a threshold based on the mass of MeCl
in the stripper.
However, we do recognize the
relevant points made by the commenter.
If owners and operators performing
paint stripping cannot find non-MeCl
alternatives, we certainly want to
encourage them to consider strippers
with lower MeCl contents. We
understand that basing this threshold on
volume may provide a disincentive to
the use of these low-MeCl content
strippers.
Like the commenter, we do not
believe that specifying a use threshold
based on the MeCl content is
appropriate. However, we believe that
simply raising the volume-based
threshold would remove all incentive to
use lower MeCl content strippers, rather
than encourage their usage. Increasing
the volume-based threshold from the
proposed 150 gallons per year to the
suggested 500 to 600 gallons per year
would increase the emissions of
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facilities required to develop a written
MeCl minimization plan three or fourfold, assuming that they utilize a
stripper with the same MeCl content.
Further, sources using these levels of
MeCl strippers could emit as much as
three to four tons of MeCl if using highMeCl content strippers. We do not
believe it is unreasonable to require
sources with the potential to emit MeCl
at these levels to develop a formal plan
for reducing these emissions and
evaluating the feasibility of alternative
paint stripping technology.
We considered including both a
volume-based and mass-based threshold
in the final rule. However, the
complexity of such provisions defeated
the purpose of using a simple volumebased threshold in the first place.
Therefore, in the final rule, the
threshold that defines the subcategory of
paint strippers that is required to
develop a written MeCl minimization
plan is on a mass basis. Specifically, the
final rule requires paint strippers that
use more than one ton per year of MeCl
in paint strippers to develop a written
MeCl minimization plant to implement
the management practices in the rule.
As noted in the proposal preamble, a
major criterion in the selection of the
proposed 150 gallons per year threshold
was our model plant impacts analysis.
The 150 gallons per year level was
selected for the model plant
representing stripping operations that
use between 100 and 250 gallons of
MeCl paint strippers. Facilities
represented by this model plant would
be using around one ton of MeCl per
year for their paint stripping operations,
depending on the density of the stripper
and the percent of MeCl in the stripper
(assuming the higher range of MeCl
contents confirmed by the commenter).
Therefore, as described elsewhere in the
record for this rulemaking, any level
selected within this range would still be
consistent with our proposed threshold.
In addition to being consistent with
our proposed intention, the one ton
MeCl per year threshold is also
relatively compatible with the requested
volume-based levels requested by the
commenter, assuming that lowercontent MeCl strippers are used. For
example, between 450 and 500 gallons
of paint stripper containing 40 percent
MeCl could be used and still remain
below the one ton per year MeCl
threshold.
Finally, while we appreciate the
practicality of a threshold based on the
purchase of 55-gallon drums, as
discussed above, we have concluded
that any volume-based threshold is not
ideal. If owners and operators of paint
stripping operators wish to remain
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below the threshold and avoid the
requirement to develop a written MeCl
minimization plan, we would suggest
that they calculate the number of 55gallon drums of stripper that they can
utilize and still remain below the one
ton level and plan accordingly.
Comment: Two commenters felt the
number of affected paint stripping
sources used to assess impacts in the
proposed rule was too low. A
commenter extrapolated information
from California, Canada, and other
sources to develop an estimate of
sources affected by the proposed rule
and commented that EPA’s estimate of
3,000 sources was an underestimate.
Using two methods to extrapolate from
estimates of furniture stripping
operations using MeCl-based strippers
in California, one based on population
and the other based on business
statistics, they estimated that nationally,
approximately 4,000 sources were
involved in furniture stripping with
MeCl-based strippers. Factoring in
autobody shops use of MeCl-based
strippers, the number of facilities
affected is two to three times EPA’s
estimate of 3,000 firms. Additionally, a
significantly larger number of firms
would exceed the proposed 150 gallon
threshold. As a result, the total cost of
EPA’s proposal would be significantly
higher than estimated.
Response: Developing an estimate of
the number of affected sources was a
difficult portion of the analyses
conducted, to arrive at the proposed
rule and to estimate its impacts. Unlike
source categories with large facilities,
emission inventories were not as useful
in arriving at an estimate of facility
numbers. Further, this source category
does not have an industrial trade
organization to turn to for further
information about the source category.
We appreciate the additional
information on number of affected
facilities provided by the commenters
and considered the impacts of revising
the population in the final rule.
However, since little documentation
was provided in support of the
population estimate we have decided
not to revise the estimate of sources.
Finally, a change in the population
totals affects the impacts proportionally
and since we received no adverse
comments on the assumptions and basis
for our proposed impacts, which
indicated a cost savings, we have
decided not to revise the impacts and
just rely on those at proposal as a worstcase analysis.
Comment: Several commenters asked
for clarification on whether the rule
applies to mobile automobile refinishers
that perform spot repairs and other
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refinishing, such as fender and bumper
repairs, at the customer’s location,
rather than in a conventional collision
repair shop. Several other commenters
also asked for clarification on whether
motor vehicle refinishing coating
operations (primarily refinishing of car
bumpers and fenders) using ‘‘miniature’’
spray guns would be subject to the same
standards as other motor vehicle
refinishing operations. The commenters
felt that surface coating with these
miniature spray guns should be subject
to the proposed standards, but felt that
the final rule should clarify this
applicability relative to operations done
with air brushes. One commenter asked
the EPA to increase the size of the spray
cup allowed on air brushes that would
be exempt from the standards.
Response: The proposed and final
rule is intended to cover mobile motor
vehicle refinishing operations that bring
the coating equipment and supplies to
the repaired vehicle, as well as those in
which the vehicle is brought to a
conventional collision repair shop. In
the final rule, these mobile refinishers
are subject to the rule requirements for
training, spray equipment, and the use
of a spray booth or other ventilated and
filtered enclosure if they spray apply
coatings from a spray gun with a cup
size greater than 3.0 fluid ounces (89
cc). If they use a cup size equal to or
smaller than 3.0 fluid ounces, they do
not need to comply with the
requirements for training, spray guns,
and ventilated and filtered enclosures.
The proposed rule would not have
applied to spray-applied coatings using
an airbrush or spray gun with a cup size
of 1.0 fluid ounce (30 cc) or less, and
this was intended, in part, to address
mobile repair and refinishing operations
that performed repairs of small stone
chips and scratches, and graphic artists
and others using these small spray guns
to paint motor vehicles, signs, or other
items that are potentially subject to the
rule. These touch up and repair
operations, and graphic arts painting on
vehicles, were not part of the original
inventory that focused on collision
repair shops and other types of motor
vehicle and mobile equipment surface
coating, so the source category does not
include surface coating with small
airbrushes, and such operations are not
subject to this rule.
However, during the development of
this rule, the EPA learned that more
motor vehicle and mobile equipment
surface coating that was formerly done
by collision repair shops (and as such,
was reflected in the source category
listing) is now being done by mobile
operators. Since this practice is
becoming more common, the EPA has
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decided that this source of emissions
should be regulated on the same basis
as motor vehicle and mobile equipment
surface coating that takes place at a
fixed location. Even so, the EPA felt it
was not necessary to regulate in this
rule small touch up and spot repair
operations done with an airbrush,
because these operations were not
reflected in the original inventory and
source category listing.
Since the EPA could identify no
single characteristic or group of
characteristics to clearly differentiate a
larger spray gun from an ‘‘air brush’’ we
have decided to define applicability
based on the cup size of the spray
equipment. In the final rule, all motor
vehicle and mobile equipment spray
coating operations and miscellaneous
surface coating operations with a cup
size greater than 3.0 ounces (89 cc)
would be subject to the applicable
standards for painter training and
equipment. Surface coating operations
with a smaller cup size would not be
subject to the standards for sprayapplied surface coating operations since
these are typically just touch up and
repair surface coating.
This size (3.0 ounces or 89 cc) was
selected based on a review of vendor
literature for miniature spray guns and
air brushes, and discussions with
collision repair shop owners that
commented on the proposed rule. This
cup size is less than the minimum
practical amount of coating that could
be used to refinish a bumper or fender.
Therefore, it helps distinguish those
sources that are doing small scratch and
spot repairs from those that are doing
work that is more typically done at a
collision repair shop.
Comment: Many commenters stated
that the proposed requirements for
miscellaneous surface coating
operations, as written, could be
interpreted to potentially apply to all
surface coating operations beyond those
associated with the manufacture of
plastic and metal parts and products.
Examples cited by the commenters
included the spray application of
adhesives that do not include any of the
target HAP, the spray application of
coatings in the manufacture of leather
shoes, and the spray application of
coatings in the restoration of wood
furniture.
Several commenters also asked that
the rule should specifically exclude
surface coating operations that do not
involve the use of spray-applied liquid
coatings, since these operations have
little potential for the target HAP
emissions.
Other commenters noted that the
proposed rule could also be interpreted
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to apply to the surface coating of
buildings and other stationary
structures, such as bridges, water
towers, and stationary equipment at
manufacturing and processing facilities.
The commenters recommended that the
rule include an exemption for facility
maintenance surface coating, and for
research and development activities, as
is found in the major source surface
coating rules. Other commenters added
that quality control activities should
also be exempt since these are often of
the same scale as research and
development activities and are
conducted at coating manufacturing
facilities that do not produce surface
coated parts for sale.
Some commenters noted that it may
be impractical to perform surface
coating of large pieces of mobile
equipment, such as some types of
mining and farm equipment, in a spray
booth or similar enclosure. The
commenters suggested an exemption for
these types of equipment that are
generally coated in the field since it is
not practical to move them to a
dedicated facility for surface coating.
Response: The EPA agrees with the
commenters that the rule was intended
to only apply to surface coating on
plastic and metal substrates and
language has been added to clarify that
the standards do not apply to other
substrates, such as wood, leather, fabric,
rubber, masonry, ceramics, concrete, or
stone. Spray coating of these other
substrates was not considered in the
inventory on which the surface coating
source category listing was based.
The rule has also been revised to
specifically exclude surface coating that
meets the definitions of ‘‘facility
maintenance’’, ‘‘research and laboratory
activities’’, and ‘‘quality control
activities’’ in § 63.11180. Paint stripping
and surface coating associated with
these research and laboratory activities
and quality control activities will not be
subject to the standards as long as the
items that are the subject of the surface
coating or paint stripping are not
products for commerce or for a function
outside the facility, and do not leave the
facility. For example, surface coating of
test coupons in the manufacture of a
coating to verify the final color of the
coating is a quality control activity that
is exempt from the rule because the test
coupons are not products for commerce
and are not intended to leave the
facility. However, surface coating that is
done to correct a defect or repair
damage on a product that was detected
as part of a final quality control check
before the product leaves the factory is
potentially subject to the rule.
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‘‘Facility maintenance’’ is defined to
include architectural surface coating
activities on stationary structures and
process equipment. It is also defined to
include the surface coating of mobile
equipment in the field, such as farming
or mining equipment, or mobile
equipment coated at a site where it is
used, such as a fork truck coated at a
manufacturing facility. The surface
coating of stationary structures in the
field was not intended to be part of the
miscellaneous surface coating source
category and was not included in EPA’s
analysis in the development of the
proposed rule. Similarly, the surface
coating of process equipment including,
for example, farming and mining
equipment that is coated in the field,
was also not intended to be part of the
source category and was not included in
EPA’s analyses.
The definition of facility maintenance
specifically excludes surface coating of
motor vehicles, mobile equipment, or
other items that routinely leave and
return to the facility, such as delivery
trucks, rental equipment, or containers
used to transport or deliver products to
customers. The paint stripping and
surface coating of these latter items that
routinely leave and return to the facility
are subject to the standards for surface
coating operations. Facility maintenance
is limited to the paint stripping and
surface coating of the infrastructure or
process equipment of the facility. Items
that routinely leave and return to a
facility are not considered part of the
facility’s infrastructure or process
equipment.
The final rule includes definitions of
‘‘coating’’ and ‘‘spray-applied coating
operations’’ that include lists of
materials and activities that are not
subject to the final standards for either
motor vehicle and mobile equipment
surface coating, or for miscellaneous
surface coating operations.
The definition of ‘‘coating’’ excludes
the following materials because they
either do not contain the target HAP,
they are not spray-applied,or, if they are
spray-applied, they are applied in larger
particles that settle near the source and
are not emitted and are not sources of
the target HAP for which the surface
coating categories were listed:
• Decorative, protective, or functional
materials that consist only of protective
oils for metal, acids, bases, or any
combination of these substances.
• Paper film or plastic film that may
be pre-coated with an adhesive by the
film manufacturer.
• Adhesives, sealants, maskants, or
caulking materials.
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• Temporary protective coatings,
lubricants, or surface preparation
materials.
The definition of ‘‘coating’’ also
excludes in-mold coatings, typically gel
coatings, that are spray-applied in the
manufacture of reinforced plastic
composite parts. Gel coats are part of the
fabrication process for reinforced plastic
composites, and were considered in
separate processes when the EPA
developed the inventory which served
as the basis for the source category
listing.
The definition of ‘‘spray-applied
coating operations’’ excludes several
operations that were not considered part
of the inventory that was the basis for
the source category listing. These
excluded operations are not subject to
the rule. As described earlier in this
section, coatings applied from a spray
gun or air brush with a paint cup
capacity that is equal to or less than 3.0
fluid ounces (89 cc) are not included
because they are primarily used for
touch up and repair operations.
Surface coating application using
powder coating, hand-held, nonrefillable aerosol containers, or nonatomizing application technology,
including, for example, paint brushes,
rollers, hand wiping, flow coating, dip
coating, electrodeposition coating, web
coating, coil coating, touch-up markers,
and marking pens are not included
because they do not atomize coating, so
they are not sources of the target HAP
emissions from the spray application of
coating.
The definition of spray-applied
surface coating operation does not
include thermal spray operations (also
known as metallizing, flame spray,
plasma arc spray, and electric arc spray,
among other names). In these
operations, solid metallic or nonmetallic material is heated to a molten
or semi-molten state and propelled to
the work piece or substrate by
compressed air or other gas, where a
bond is produced upon impact. These
are inorganic coatings (conductive
metals) that were not considered part of
the source category. In addition,
although they are metals (usually zinc
or aluminum), they do not contain the
target HAP of concern for which the
miscellaneous surface coating category
was listed. In addition, the metal
particles created are larger than those
created in spraying liquid organic
coatings and are less likely to be
emitted.
Comment: One commenter asked that
the applicability be revised to
specifically exclude surface coating
operations on space vehicles so as to
parallel the applicability of subpart GG,
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the major source NESHAP for Aerospace
Manufacturing and Rework Facilities.
Response: The EPA agrees with the
commenter and has revised § 63.11170
to specifically exclude surface coating
on space vehicles from the standards for
miscellaneous surface coating in the
final rule. However, paint stripping
operations on space vehicles using MeCl
would still be subject to the standards
in the final rule. Paint stripping on
space vehicles is regulated at major
sources by subpart GG.
B. Compliance Date
Comment: Several State agency
commenters requested existing sources
be given three years to comply rather
than two years. They contend that more
time is needed for State and local
agencies to identify all subject sources
and perform the needed outreach
activities, and for the sources to have
time to get all of their painters trained
and to purchase and install any needed
equipment. Sources may be difficult to
identify and unfamiliarity with the rules
is likely to be widespread because the
sources are small businesses, with
frequent employee turnover and
changes in ownership. Commenters
added that most other air toxics
regulations allow existing sources three
years to comply and this rule should be
consistent to allow time for outreach.
Response: EPA has revised the
proposed rule to allow existing sources
three years to comply. EPA agrees that
the State agencies and other
commenters have provided sufficient
justification that three years is needed.
There is a lack of readily available
information to identify all of the area
sources that are subject to the rule.
Many of the area sources covered by the
rule are small and have not previously
been subject to air pollution control
rules. Therefore, implementing agencies
will need time to widely publicize these
rules, develop outreach materials, and
perform outreach though a variety of
channels in order to inform sources that
they are subject to the rule. In addition,
many small sources are likely to require
assistance in determining applicability,
identifying the necessary steps to
achieve compliance including, but not
limited to locating and registering for
painter training. Section 112 of the CAA
allows up to three years for existing
sources to comply, and given the
characteristics of the source category,
three years is a reasonable compliance
time for this rule.
C. Requirements for Paint Stripping
Operations
Comment: Two commenters provided
positive feedback on the proposal of
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Generally Available Management
Practices as GACT, agreeing that
development of a MeCl minimization
plan is a good idea. They added that the
plan would make sources more aware of
the impacts of certain practices and
require them to develop alternate ways
to perform paint stripping operations
without the use of MeCl. Another
supported the EPA’s focus on
management practices to reduce
emissions of MeCl from paint stripping
operations rather than on what they
termed inappropriate technology
requirements or alternative stripping
techniques.
Response: Like the commenters, we
believed that it was most appropriate to
place the decisions on the feasibility of
alternatives to MeCl strippers at the feet
of those who know their business best.
Therefore, the final rule retains the
proposed requirements that owners and
operators institute management
practices to reduce MeCl emissions from
paint stripping.
Comment: There were several
comments received that discussed the
need for MeCl for stripping and
expressed doubt at the plausibility of
alternative technologies. A commenter
remarked that in many cases, products
containing MeCl are the only effective
means of removing certain finishes,
such as polyurethanes and most paints,
for commercial operations. Another
stated that, in their department’s
experience, most chemical paint
stripping operations were dedicated to
stripping paint from wooden furniture.
They noted that the proposed
management practice of recoating
without stripping or substituting
alternative stripping technologies was
not a possibility for painted wood.
Owners of a small business dedicated to
restoring furniture, commented that for
furniture restoration shops to reduce
their MeCl use, there would have to be
better alternative chemical strippers
available. MeCl strippers are not
flammable, but the current alternative
chemical strippers are highly flammable
and explosive. In addition, the current
alternative chemical strippers cost two
to three times those containing MeCl,
and take two to five hours to work
versus 15 to 20 minutes for those
containing MeCl. Another commenter
supported the EPA’s proposal to allow
the facility to determine whether a
MeCl-based product was appropriate for
the particular paint stripping task. They
provided a comment that quotes from
the preamble to the proposed rule that
the evaluation criteria in the
management plan would involve ‘‘only
using MeCl-containing paint stripper
when an alternative on site stripper
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method or material is incapable of
accomplishing the work as determined
by the operator.’’
Response: The rule does not limit or
ban the use of MeCl-based paint
strippers. The rule also does not say
when a facility can use or cannot use
MeCl-based paint strippers. Instead, the
rule encourages operations to think of
ideas specific to their operation where
alternative stripping technologies can be
employed. The facility has the
obligation to determine whether and
when it can most effectively substitute
alternative technologies for MeClcontaining stripper. In some cases a
facility may find that MeCl strippers
may currently be the only feasible
choice; however, in other cases these
strippers may currently be used as a
matter of routine and suitable
alternatives can be used instead.
The basis of the rule is to consider,
and when possible, to use alternative
stripping techniques. There are
situations where alternative stripping
methods can be employed successfully.
Examples of alternative techniques for
wood include sanding off the top layers
of paint and using a smaller amount of
MeCl-containing stripper to remove the
remaining paint. Another would be to
sand the flat surfaces and use the MeClcontaining stripper to remove the paint
from only certain areas such as carvings
or joinings.
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D. Authority To Regulate Miscellaneous
Surface Coating Operations
Comment: A commenter argued that
plastic parts and product surface coating
should not be listed as an area source
of the specific heavy metals in urban
areas. The commenter stated that the
major source rule for plastic parts
surface coating (40 CFR Part 63 subpart
PPPP) did not regulate heavy metal
emissions and did not require the use of
spray booths. The commenter also
stated that heavy metals were not
mentioned in the proposed or final
major source rule. The commenter also
contended that the listing of plastic
parts and products was not consistent
with EPA’s stated policy for listing
sources of HAP (64 FR 38720, July 19,
1999) and heavy metal HAP (64 FR
38722). The commenter further stated
that the analysis in the preamble to the
proposed area source rule indicates that
plastic part surface coating sources
account for only about 700 pounds a
year, or between 0.15 percent and 0.33
percent of total area source heavy metal
emissions. The commenter requested
EPA to change the listing decision and
remove plastic parts coating operations
from the rule.
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Response: The listing and regulation
of plastic parts and products (surface
coating) for the targeted metal HAP is
consistent with CAA requirements.
Sections 112(c) and 112(k) of the CAA
instruct EPA to identify and list area
source categories accounting for at least
90 percent of the emissions of the 30
listed HAP (referred to as ‘‘urban HAP’’)
(64 FR 38706, July 19, 1999). One of the
listed area source categories is plastic
parts and products (surface coatings).
The commenter provides no information
indicating that this listing was
inappropriate.
In the 1999 final urban air toxics
strategy notice, we listed 16 area source
categories including paint stripping.
Each of these categories accounted for at
least 15 percent of at least one of the 30
urban HAP. See 64 FR at 38720. But, as
indicated in that notice, the initial list
of area source categories did not account
for 90 percent of several of the HAP,
including six metal HAP (64 FR 38722,
July 19, 1999). That notice announced
EPA’s intent to study additional area
source categories and complete the list
of area source categories by 2003.
In June 2002, we listed several
additional area source categories
including autobody refinishing (67 FR
43122, June 26, 2002). That listing,
however, still did not meet the
requirement to list area sources
representing 90 percent of the area
source emissions of each of the 30 HAP.
In the urban air toxics strategy, EPA
indicated we would be adding
additional area source categories as
necessary to meet the 90 percent
requirement.
Consequently, in November 2002, we
listed 23 additional area source
categories including plastic parts and
products (surface coating) (67 FR 70428,
November 22, 2002). Each of these listed
categories contributes some percentage
of emissions of one or more of the 30
urban HAP. The plastic parts and
products (surface coating) area source
category was listed for cadmium,
chromium, lead compounds,
manganese, and nickel compounds. In
order to meet the 90 percent
requirement for each of the 30 urban
HAP, we had to list many categories that
individually contributed only a small
percent of the target HAP.
This history and the CAA
requirements for area sources explain
why the metal urban HAP are the target
of the surface coating portion of this
area source rule. We are required during
rule development to regulate emissions
of the target urban HAP from surface
coating area sources. Under section
112(d) area source regulations may be
based on GACT rather than MACT,
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which is required for major sources. In
this rule we have established emissions
standards that represent GACT for the
source categories. The commenter has
provided no information questioning
the GACT determination in the
proposed rule.
Comment: One commenter stated that
the rule should not regulate surface
coating on metal parts and products as
part of the miscellaneous surface
coating source category because it was
not listed as an area source category.
The commenter noted that the category
included in the final notice for the list
of source categories in November 20022
was ‘‘plastic parts and products (surface
coating).’’ The commenter also noted
that the description of this source
category in supporting documents for
that listing includes industrial
classification codes only for plastic
parts and products. However, the
commenter notes that the standard
industrial classification code for
miscellaneous metal surface coating
(SIC 3479) was included in the source
category description for ‘‘autobody
refinishing paint shops.’’
Response: The EPA’s decision to list
plastic parts and product (surface
coating) as an area source category was
based on analysis of emissions data
from over 20 different SIC codes that
represent manufacturers of parts and
products that contain both metal and
plastic substrates. These included, for
example, architectural metal work;
games, toys, and childrens’ vehicles;
motor homes; motor vehicle parts and
accessories; motor cycles, bicycles, and
parts; musical instruments;
transportation equipment not elsewhere
classified; and truck and bus bodies.
These analyses were documented in
‘‘1990 EMISSIONS INVENTORY OF
FORTY POTENTIAL § 112(k)
POLLUTANTS, SUPPORTING DATA
FOR EPA’S § 112(k) REGULATORY
STRATEGY, Final Report’’ (May 21,
1999). A copy of the relevant portions
of this document has been included in
the docket for this final rulemaking.
Since the analysis of the inventory
included a broad sampling of both metal
and plastic surface coating that were
identified as sources of the target HAP,
the EPA is regulating both metal and
plastic surface coating operations in the
final rule. To more accurately reflect the
scope of the regulated operation, we
refer to them in the final rule as
‘‘miscellaneous surface coating
operations’’ and describe them more
completely in the applicability section
of the final rule.
2 67
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E. Basis of Surface Coating Standards
Comment: Some commenters believed
that the requirements for spray booths
and painter training, particularly
applied to very small miscellaneous
surface coating operations and those
that apply coatings to large parts or
subassemblies, are beyond GACT. Some
commenters suggested that EPA should
collect additional information on the
types of spray equipment and practices
being used, coatings being employed,
and product rates at small sources. They
claim that the requirements for spraying
automotive coatings do not necessarily
carry over well to the miscellaneous
surface coating operations. Other
commenters supported the proposed
standards as GACT.
Response: The EPA disagrees that
spray booths and painter training are
beyond GACT for sources using coatings
containing the target HAP. The analyses
performed in support of the proposed
rule demonstrate that painter training
and filtered spray booths are both
commonly employed by miscellaneous
surface coating sources of all sizes.
However, the EPA has revised the
proposed rule such that painter training
and spray booths are only required for
miscellaneous surface coating
operations that spray apply coatings that
contain the target HAP. Miscellaneous
surface coating operations that do not
use coatings that contain the target HAP
will not be subject to these
requirements. However, all motor
vehicle and mobile equipment surface
coating operations would still be subject
to the requirements of the final rule.
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F. Training Requirements
Comment: Several commenters felt
that the training standards could be
interpreted to apply to all painters, and
those standards should only apply to
spray coating operations. Painters in
non-spray coating operations should not
be required to complete training. Other
commenters noted that training would
not benefit the operators of automated
or robotic surface coating operations,
and these operations should be exempt
from the training requirements.
Response: The rule has been clarified,
as suggested by several commenters, to
clearly apply only to painters that spray
apply coatings using hand-held devices.
Painters using brushes and rollers, and
other non-spray application methods,
are not subject to the training
requirements. In addition, all automated
and robotic surface coating operations
are not required to meet these
requirements since these operations are
not considered part of the intended
source category. Automated operations
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are typically performed in a booth, are
part of a production line operation with
similar, if not identical, parts, and often
result in high transfer efficiency.
Comment: One commenter suggested
that painting is an art form not
possessed by everyone and a test and
certification should not be used to
dictate who works as a painter. Another
painter asked whether the rule would
include a grandfather clause that would
exempt experienced painters based on
their length of time in the business or
years experience painting. One
commenter suggested that retraining
every five years is not needed because
of the daily experience of painting.
Response: The EPA agrees that spray
painting is a skill that is not easily
mastered, and that shop owners will
avoid hiring and keeping poorly
performing spray painters. However,
information collected by EPA in
development of the proposed rule has
shown that even experienced spray
painters can improve their transfer
efficiency and reduce emissions and
paint consumption through appropriate
training. Therefore, the final rule retains
the training requirement for all spray
painters at motor vehicle and mobile
equipment surface coating operations,
and for all spray painters that use
coatings containing the target HAP at
miscellaneous surface coating facilities.
The final rule will allow painters who
have completed formal training in the
past five years to use that training to
demonstrate compliance. Refresher
training is retained in the final rule
since it is important to ensure that
painter techniques do not revert back to
those that were used before training,
and also so painters can be brought up
to date on current technologies.
Comment: One commenter suggested
that the rule should allow 180 days after
hiring for new painters to be trained,
instead of 60 days, as well as for new
painters at existing facilities.
Response: The EPA agrees and the
rule has been revised to allow 180 days
after hiring, or after completing a
transfer within a facility to a painting
job, for new painters to complete the
prescribed training.
Comment: Several commenters were
concerned about the availability of
training and the suitability of training
for the particular type of surface coating
that they perform, or the type of
workforce they have. Some commenters
noted that their painters may not speak
English, or be able to perform well in a
typical classroom setting or in a testing
environment. In these cases, a formal
certification may be difficult for their
painters to achieve. One commenter
noted that inmates participating in
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1751
prison industries could not be sent to
outside training. Other commenters
were concerned that training should not
be limited to any one type of program
or it could create a limited market of
providers and costs may not be
affordable for small shops. They
suggested that the rule language should
be more specific about the criteria that
would indicate a training program meets
the minimum requirements.
Response: The EPA agrees that
training should not be limited to any
one provider or a small number of
providers, and should be available and
affordable for all sizes and types of
shops. The final rule includes
additional detail on the training
requirements so that alternative training
programs can be developed that meet
the minimum requirements and meet
the particular needs of different types of
shops. For example, the EPA recognizes
that some larger employers may wish to
develop in-house training programs that
are focused on the materials, products,
and procedures used at a particular
facility.
The final rule does not specify that
any one training provider or program
must be used. The final rule allows
flexibility for the best training
environment and certification process
that an owner or operator can identify
for their particular work site that meets
the requirements in the final rule. The
training requirements have been revised
to allow for in-house training programs
and for successful completion of a
training program to be certified by the
owner of the facility.
Comment: Several commenters
suggested that if the EPA is expecting
industry to provide certification or
training programs, the rule should make
provisions for a certifying agency or
program certification procedures. One
commenter asked whether training
programs would need to meet a set of
standards, and whether a manufacturer,
trade school, or consultant would be
required to submit curriculum to EPA
for prior approval. Another commenter
recommended that training programs
used to meet this regulation should be
validated or certified by an independent
clearinghouse. The commenter
suggested that EPA should delegate this
responsibility to a proven program that
has a history of developing and
providing paint technician training,
since the EPA does not have the
necessary painting experience to do
this.
Response: The EPA does not believe
that it is necessary to establish or
designate a body to certify or approve
training programs to comply with the
requirements in the final rule. The final
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rule includes sufficient detail on the
training requirements so that training
programs can be developed that meet
the minimum requirements. The EPA
feels that painters and the shops that
employ them are the most appropriate
judge of different training programs, due
primarily to the economic benefit they
can realize through good training. Since
the shop owner or the painter will need
to absorb the initial cost of training
(even though it should represent a
coating cost savings in the long run), it
will be up to painters and shops to
identify and evaluate training programs
that best meet the requirements of the
final rule and which seem to be the best
investment of their time and resources.
To the extent that additional guidance
on the training requirements in the final
rule is needed, the EPA will work with
all affected parties to develop that
guidance.
G. Spray Gun Requirements
Comment: Several commenters state
that a number of spray coating
applications cannot be accomplished
using HVLP, electrostatic guns, or
equivalent techniques. Two commenters
stated that EPA determined during the
development of the NESHAP for
Aerospace Manufacturing and Rework
Facilities (40 CFR 63, subpart GG) and
other major NESHAP rules that high
solids coatings cannot be applied using
HVLP, or equivalent methods.
Response: The final rule includes the
same exemptions from the HVLP
requirements for aerospace
manufacturing and rework facilities as
subpart GG. The rule was revised to
exempt any situation that normally
requires the use of an airbrush or an
extension on the spray gun to properly
reach limited access spaces; the
application of coatings that contain
fillers that adversely affect atomization
with HVLP spray guns, and the
application of coatings that normally
have a dried film thickness of less than
0.0013 centimeter (0.0005 in.). The
technical basis for these allowances for
aerospace surface coating operations
was established in the development of
subpart GG. Since there is no technical
difference between these aerospace
surface coating operations at area and
major sources (aside from the relative
size of these operations), the EPA is
including the same allowance in the
final rule as found in subpart GG.
Comment: Several commenters
requested that airless and air-assisted
airless spray guns should be considered
equally efficient and equivalent to
HVLP, and requested that EPA treat
airless spray equivalent to HVLP for the
purpose of this rule. One commenter
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stated that airless spray operations are
very common for most miscellaneous
parts surface coating operations and
should be considered as a viable and
authorized option.
Another commenter provided an
example of a structural steel facility that
uses a high viscosity, high solids coating
as being an operation that could not
employ HVLP spray guns. The
commenter stated that such operations
generally use airless spray guns to apply
high-viscosity, high solids primers.
Another commenter stated that while
HVLP spray guns and gravity fed supply
lines are well suited for the automotive
refinishing industry, pressure fed
application equipment is best suited
and typically used in other
miscellaneous sectors. Other sectors use
coatings that have characteristics much
different from automotive coatings.
Quite often, these coatings are higher in
viscosity because of higher solids
content, compared to automotive
coatings.
Response: The final rule requires that
miscellaneous surface coating
operations are only required to employ
HVLP, or equivalent, spray guns if they
are spraying coatings that contain the
target HAP. Motor vehicle and mobile
equipment surface coating operations
must use HVLP or equivalent spray guns
for all surface coating. The rule was also
revised to allow airless and air-assisted
airless spray guns as alternatives to
HVLP. Airless and air-assisted airless
spray guns are used in some
applications instead of HVLP spray guns
because they are more suited to spraying
higher solids coating, such as in the
fabrication of large structural steel
components, and in applying coatings to
ships and other marine items. In these
cases, HVLP spray guns are not feasible
because of the viscosity of the coating,
and airless and air assisted airless spray
guns are the most efficient means to
spray apply these coatings.
H. Spray Booths
Comment: Several commenters stated
that requiring spray booths is not
practical, realistic, or economically
feasible for some facilities performing
coating on work pieces that are too large
to fit in a booth such as large structural
metal work pieces, fixed equipment,
structural steel, and large mobile
equipment.
Several commenters also stated that
requiring spray booths for these types of
operations would make the rule more
stringent than the MACT rules for the
corresponding industries. One
commenter provides an offshore drilling
rig as an example of mobile equipment
that is too large for a spray booth. Two
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commenters requested that the rule
include an exemption for the surface
coating of oversized parts.
Response: The proposed rule was
revised so that it does not apply to
miscellaneous surface coating
operations that do not spray apply
coatings that contain the target HAP.
The proposed rule was also revised to
clarify that it does not apply to facility
maintenance of fixed equipment and
architectural surface coating of
stationary structures.
The final rule has not been revised to
specifically exempt the surface coating
of large objects from the spray booth
requirement. However, the surface
coating of large objects would not be
subject to the requirements of the final
rule if the coatings that are spray
applied do not contain the target HAP,
the surface coating operation of the
object met the definition of facility
maintenance, or the surface coating was
done using non-spray application
methods. The EPA believes that the
surface coating situations described by
the commenters involving large objects
all fall into at least one of these
categories. Therefore, they would not be
subject to the requirement to use a spray
booth and an exemption for large objects
is not specifically required by the
information provided by the
commenters.
Comment: Three commenters
expressed concern regarding the
language requiring negative pressure
paint booths. The reason for this
concern is that for critical finishes, such
as automotive surface coating, negative
pressure may cause airborne dust and
dirt to be drawn into the booth and mar
the finish. As a result, downdraft paint
booths used for automotive surface
coating are usually ventilated at slight
positive pressure so that contaminants
are kept out of the booth, although door
seals and filtration systems are still used
to protect air quality. One commenter
suggested that in applications that
require a dust/dirt free finish, and
where the spray booth is totally sealed
and the booth control system utilizes an
automatic pressure balance system,
spray booths should be allowed to
operate at up to, but not more than, 0.05
inches water gauge positive pressure.
Response: The final rule was revised
to allow for downdraft spray booths that
are balanced at slight positive air
pressure and incorporates the
recommended language. The EPA
observed several spray booths of this
configuration during site visits in the
development of this rule and agrees that
with appropriate door seals and
filtration systems these booths are as
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protective of the environment as booths
operated at negative pressure.
Comment: Several commenters stated
that the EPA has understated the
impacts of the proposed requirement to
use a spray booth for all spray finishing
operations. The commenters noted that
EPA did not assign any costs to the
requirement to use a spray booth
because the EPA had assumed that
spray booths would already be required
in order to comply with OSHA
standards for spray finishing operations
under 29 CFR 1910.94(c). The
commenters argued that OSHA
standards require a spray booth only if
certain exposure conditions are met,
and these exposure conditions can be
avoided with, for example, the use of
waterborne coatings or outdoor spraying
operations. Other examples of spray
coating operations that can be
conducted outside of a filtered spray
booth in compliance with OSHA
include automotive undercoating, areas
of low coating use with adequate
ventilation, powder coating, waterborne
products, and touch-up and repair
coating.
Response: The EPA acknowledges
that there are situations in which OSHA
does not require surface coating to be
performed in a filtered spray booth.
That being noted, the rule was revised
to clarify that the scope of the source
category does not include miscellaneous
surface coating operations if the coating
being used does not contain the target
HAP, facility maintenance surface
coating and other architectural surface
coating of stationary structures, powder
coating and the spray application of
coatings from a spray gun with a cup
size equal to or less than 3.0 fluid
ounces (89 cc). Given the clarified scope
of the surface coating operations that are
subject to the spray booth requirements
in the final rule, the EPA believes that
there is a substantial overlap between
the operations that would be performed
in a spray booth to comply with OSHA
standards for spray finishing operations
and those that would be required to do
so by this rule. Therefore, the EPA does
not believe that we have substantially
underestimated the cost of the final rule.
Comment: Two commenters pointed
out that EPA did not address enclosing
automated or robotic spray systems in a
spray booth. One commenter stated that
the costs for doing so could be very high
and requested that EPA exempt all fixed
point automatic spray installations from
this rule.
Another commenter stated that the
proposed rule did not include language
that addressed spray booth
configurations with openings for
conveyor lines that carry parts through
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a booth. The commenter suggested that
the openings for conveyors would be
equal to no more than the area of the
open face of a three-sided spray booth.
Response: The rule was revised to
clarify that automated or robotic spray
operations were not considered within
the scope of the source category, as the
source categories for surface coating
were intended to cover coating that is
spray applied using hand-held devices.
The EPA acknowledges that
miscellaneous surface coating
operations may be spray applying
coatings that contain the target HAP
using conveyor line configurations, and
the rule was revised to account for
openings needed on side walls and roofs
of spray booths to accommodate the
conveyor lines.
Comment: One commenter noted that
spot repairs on automobiles can be
performed using commercially available
portable extraction systems. One such
system consists of a ring that is placed
around the area to be repaired. The ring
is hollow and is attached to a
ventilation system so that air and
overspray are drawn into the ring placed
around the area being repaired. The
commenter asked whether this would be
an acceptable alternative to a spray
booth for small spot repairs.
Response: The EPA reviewed the
product information cited by the
commenter and agrees that portable or
mobile enclosures and extraction
systems such as the one cited by the
commenter are reasonable alternatives
to a full size paint booth for small
repairs. The paint booth requirements in
the final rule have been revised to allow
for the use of portable enclosures and
extraction systems that can be used to
enclose only the area being refinished in
a spot repair. The enclosure would still
need to be ventilated so that air is
drawn into and paint overspray is
captured by the enclosure, and it would
also need to meet the same requirements
for spray booth filters as full size spray
booths.
I. Spray Booth Filters
Comment: Several commenters stated
that requiring facilities to demonstrate
compliance by testing for filter
efficiency places an undue burden on
any facility attempting to use a more
efficient filter. Vendor guarantees or
specifications should be sufficient for
compliance.
Response: It was the intent of EPA
that filter specifications or filter
performance data provided by the filter
manufacturer would suffice for the
purpose of compliance in the proposed
rule. The final rule clarifies that records
of manufacturer specifications or vendor
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1753
supplied or published data are sufficient
for demonstrating compliance with the
filter efficiency requirement. Operators
are not expected to have to perform the
test since it is usually done by the filter
vendors.
Comment: One commenter stated that
waterwash filters were not discussed in
the proposed rule. The commenter
requested that EPA assess the
acceptability of water wash booths as a
control technology for overspray.
Response: The final rule was revised
to state that waterwash spray booths
will be acceptable for the purposes of
complying with the rule as long as they
are used and maintained according to
manufacturer specifications and
consistent with good air pollution
control practices. Although many
waterwash spray booths have been
replaced or retrofitted with dry filters,
there are some applications where
waterwash spray booths are still the
most practical technology to control
paint overspray. Since EPA believes that
properly operated and maintained
waterwash spray booths are nearly as
efficient as required by this rule for dry
filters and it would not be cost-effective
to require retrofitting with dry filters,
considering the potential limited
increase in capture efficiency, the final
rule provides for the use of waterwash
spray booths, but requires that they be
operated and maintained according to
the manufacturer’s specifications.
Comment: One commenter stated that
the paint overspray filter criteria are
inconsistent. The commenter requests
that if 98 percent overspray filter
efficiency is the criteria, then it should
be required for all paint overspray
filters. The commenter speculated that
by stating in the regulation that any
fiberglass or polyester filter is
acceptable, the practice of using cheap,
low efficiency furnace filters could
grow. The commenter suggested that
specifying a minimum filter efficiency
of any medium would be more effective
at reducing particulate emissions.
Response: The final rule was revised
so all spray booth dry filters, regardless
of media, are required to meet the 98
percent efficiency standard. The rule
was also revised to clarify that records
of manufacturer’s specifications or filter
performance data are sufficient for
demonstrating compliance with this
performance level.
J. Spray Gun Washers
Comment: One commenter stated that
the need for enclosed spray gun washers
may be over emphasized since the
intent of the rule is to prohibit the
atomization of solvent through the gun
into the air. Although the proposed rule
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indicates that spray equipment may be
dismantled and cleaned in lieu of a gun
washer system, this alternative seems
overshadowed by the gun wash option
and may be lost in the rule
interpretation. Other commenters
reported that some commercially
available enclosed gun washers were
less efficient and more difficult to use
and maintain than simply disassembling
a spray gun and cleaning it by hand in
a container of solvent.
Two commenters stated that the rule
should allow for equipment to be
cleaned by spraying a non-HAP
containing solvent through the
applicator outside of an enclosed gun
washer.
Response: The final rule was revised
to clarify that if washing a gun, an
affected facility is prohibited from
spraying cleaning solvent through the
gun in a way that creates an atomized
mist that is not captured. The intent of
this requirement is to prevent the
emission of the target HAP that is in the
paint residue that remains in the spray
gun. The EPA agrees that an enclosed
gun washer is not needed to meet this
objective. To comply, you may, for
example, clean a disassembled gun by
hand in a bucket or vat, flush solvent
through the gun without atomizing it
and capturing the solvent in an enclosed
container, or use an enclosed manual or
automatic gun washer. The final rule
does not require the use of an enclosed
gun washer, but identifies an enclosed
gun washer as one compliance option in
addition to the other options suggested
by the commenters.
K. Reporting, Recordkeeping, and
Compliance
Comment: A commenter felt that it
would be more suitable for sources to
keep the MeCl minimization plan for
paint stripping operations on site rather
than submitting it to the State and EPA.
They stated that States and EPA would
not have the time or resources necessary
to review the plans, and that they were
unsure what kind of review/approval
process should be used. Another
commenter stated that since the
proposed standard imposes
management practices rather than
emissions limits, it is not clear what
aspect of their compliance activity
sources would need to report. They
suggest that beyond the initial report,
the only reporting that should be
necessary would be a change in status
relative to the threshold level for
developing a MeCl minimization plan.
Response: The development and
implementation of the MeCl
minimization plan is designed to reduce
MeCl usage and emissions at the facility
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level. In the proposed rule, the
requirement to submit the MeCl
minimization plan was included to
ensure that there would be oversight of
facilities’ plans. However, EPA
understands the commenter’s point that
the value of submitting them to the State
or EPA would likely not offset the
burden of time and resources for
submittal and review. As a result, the
final rule was revised so that it does not
require facilities to submit their plans to
State or local agencies, or the EPA. The
final rule requires them to keep their
plans on site and to include a statement
in their initial notification or
notification of compliance that they
have developed their plans and met the
requirements associated with the MeCl
minimization plan. The final rule also
includes a requirement for facilities to
review their plans annually and to make
changes as appropriate based on their
experiences in the previous year.
Documentation of this review will also
replace the proposed rule requirement
to submit annual compliance reports to
the permitting authority. While the final
rule does not require submission of the
MeCl minimization plan, facilities that
are required to develop plans must still
submit an initial notification and a
notification of compliance, and meet
annual MeCl minimization plan review,
revision, and recordkeeping
requirements.
Comment: One commenter indicated
the annual reporting time and costs
appeared to be underestimated unless
simple materials are developed to help
streamline the efforts of small
businesses to complete this reporting.
The commenter predicted that small
businesses would spend closer to 15
hours or more to develop something on
their own and to compile all the
information alone would probably take
six to eight hours. If a small business
owner tries to minimize his or her time
spent on the report, they would have to
hire a consultant at $100 per hour or
more. The consultant may take just six
hours to complete the work, but that
total cost would be $600 instead of
$219, according to the commenter.
Other commenters also indicated that
the reporting burden had been
underestimated.
Some commenters questioned
whether EPA had considered the cost to
EPA, State, and local implementing
agencies to perform outreach and assist
sources to comply, receive initial
notifications, conduct field inspections,
and process annual certifications.
Some commenters also said that
initial notifications, compliance status
notifications, and annual compliance
reports would place an undue burden
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on facilities and State agencies. One
commenter suggested allowing sources
to maintain records of compliance on
site and make them available upon
request for local, State, or Federal
inspection without submission of
annual reports. Another suggested the
following for autobody refinishing
shops: Combine the initial notification
with the notification of compliance
status, eliminate the annual reports,
keep file copies of training certifications
for currently employed painters,
eliminate some other records including
records of deviations, and possibly the
requirement to keep records for five
years.
Response: The EPA has revised the
rule to reduce the notification and
reporting burden to sources and the
burden to State and local agencies
receiving the notifications and reports,
while still retaining information needed
to implement and enforce the rule. In
particular, the final rule does not
require facilities to submit annual
compliance reports. Therefore, after the
one-time initial notification and
notification of compliance status (if
needed), there will be no regular annual
reporting burden to sources, and the
implementing agencies will not need to
review and track thousands of annual
compliance reports. Sources will only
need to submit a report if there is a
change in the information contained in
the initial notification, notification of
compliance status, or a previous annual
notification of changes report. This is a
reasonable approach that reduces the
burden on regulated sources, but
provides EPA and delegated States with
necessary compliance information. If
there are no changes in a given year, the
report would be identical to what was
previously submitted, either in an
earlier annual report, in the initial
notification, or in the notification of
compliance status. Therefore, EPA
believes it is appropriate to require a
report only if the relevant information
has changed.
Sources will still be required to
submit an initial notification that they
are subject to the rule. The notification
contains a very brief description of the
operation that is subject to the rule;
however, the type of information that
should be included is minimal, clearly
explained in the rule, and should be
readily available to the owners and
operators of motor vehicle and mobile
equipment surface coating shops, or
miscellaneous surface coating
operations.
The initial notification is needed so
that implementing agencies will have a
list of sources that are subject to the rule
and will know with which part of the
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rules each source must comply (e.g.,
surface coating or paint stripping). This
is necessary so that implementing
agencies can target outreach, inspection,
and enforcement efforts.
In addition, sources will continue to
be required to keep the proposed
records to demonstrate compliance.
These records are limited to painter
certification records, documentation of
spray booth filter efficiencies (which are
expected to be supplied by the
manufacturer), documentation from
spray gun manufacturers (only if the
source is using a spray gun other than
the types listed in the rule), records of
usage of paint strippers containing
MeCl, and records of deviations from
the rule requirements. The content of
the required records is clearly explained
in the rule, and the records can be kept
in whatever format is easiest for the
shop (hard copies or electronic). These
records are the minimum level of
information needed for an inspector to
determine if a source is complying with
the rules.
The EPA has not reduced the amount
of time that records must be retained.
The records that must be retained are
minimal and reducing the time they are
kept from five years to two years would
not affect the burden of storing these
minimal records. In addition, the longer
record period is the minimum needed to
verify compliance with the training
requirements since refresher training is
needed every five years. The longer
record period is also needed to ensure
that paint stripping sources that have to
complete a MeCl minimization plan are
consistently reviewing and updating the
plan on an annual basis.
Response: The EPA agrees that the
number of sources that could have been
affected by the proposed rule, if
interpreted to apply to all miscellaneous
surface coating operations, was higher
than estimated at proposal. However,
the EPA has revised the final rule to
clarify the intended sources to which it
would apply, and to reduce the actual
number of affected sources subject to
the rule. Miscellaneous surface coating
facilities that do not spray apply
coatings that contain the target HAP will
not be subject to the final rule.
The EPA believes that these changes
in the final rule will more accurately
reflect the number of sources that are
potentially subject to the rule, and for
which the proposed economic impacts
were based, since only a fraction of
miscellaneous surface coating sources
use coatings that contain the target HAP.
Based on the datasets available to EPA
for the miscellaneous surface coating
source category and additional
information submitted by several
commenters, EPA estimates that less
than 10 percent of the total population
of sources are spray applying coatings
that contain the target HAP. In addition,
many miscellaneous surface coating
sources that are currently using coatings
that contain the target HAP may be able
to avoid being subject to the rule by
either switching to coatings that do not
contain the target HAP, or switching to
non-spray application technology.
Based on these changes, the EPA
believes that the rule will not have an
adverse impact on those facilities.
3,300 tpy is estimated to be emitted by
the approximately 1,000 paint strippers
that annually use paint strippers
containing more than one ton of MeCl
and who would be required to develop
a MeCl minimization plan.
VI. Summary of Environmental, Energy,
and Economic Impacts
L. Cost and Economic Impacts
Comment: Several commenters said
that the number of area sources that
perform miscellaneous surface coating
is much larger than EPA estimated.
These estimates were based on the
number of miscellaneous surface
coating sources known to regulatory
agencies in different States. The
commenters estimated that the total
number of sources subject to the rule
could be about 200,000 nationwide, and
many of these could be small
businesses. Another commenter
believed that EPA has not met the
criteria needed to certify that there will
not be a ‘‘significant impact on a
substantial number of small entities’’
(SISNOSE) as needed under the
Regulatory Flexibility Act (RFA) and
has underestimated the cost and
economic impacts because the rule
would require many sources to install
spray booths and obtain operator
training.
The EPA estimates that about 39,000
establishments performing paint
stripping, motor vehicle and mobile
equipment, or miscellaneous surface
coating operations would be subject to
the final rule. We estimate that about
3,000 of these establishments are paint
stripping facilities and 36,000
establishments are surface coating
operations. The majority of these surface
coating establishments (about 35,000)
are involved in motor vehicle and
mobile equipment refinishing, and
employ about 263,000 people, of which
about one-third are painters.
We estimate that the final standards
for paint stripping operations will result
in an initial cost of around $1,500,000
and a net savings in annual costs. This
includes an estimated initial cost of
$490,000 and annual costs of $80,000
for the nearly 2,000 paint strippers who
annually use paint stripper containing
one ton of MeCl or less. Initial costs for
the approximately 1,000 paint strippers
who annually use paint strippers
containing more than one ton of MeCl,
who would be required to develop MeCl
minimization plans, are estimated to be
just over $1 million. The annual costs
for those plants are estimated to be a net
savings of $910,000.
For the nearly 2,000 paint strippers
who annually use paint strippers
containing one ton of MeCl or less,
switching to alternative non-MeCl paint
stripping methods comprise most of the
costs.
The costs for the approximately 1,000
paint strippers who are required to
develop MeCl minimization plans are
attributable to the development and
implementation of the MeCl
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A. What are the air impacts?
Paint Stripping Operations
The baseline MeCl emissions from
paint stripping operations are estimated
to be 3,800 tpy. Around 500 tpy is
estimated to be emitted from the
approximately 2,000 facilities that
annually use paint stripper containing
one ton of MeCl or less. The remaining
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Miscellaneous Coating Operations
The baseline emissions from the
surface coating operations are estimated
to be about 38,000 tpy of HAP,
including 12.4 tpy of inorganic HAP
(e.g. Pb and Cr-VI compounds). In
addition to the HAP, baseline emissions
of criteria pollutants are estimated to be
3,100 tpy of particulate matter (PM)
from paint overspray and 120,400 tpy of
volatile organic compounds (VOC) from
coating and solvent evaporation.
Implementation of the final standards
would achieve a reduction of 6,900 tpy
of HAP from surface coating operations,
including about 11.4 tpy of inorganic
HAP. In addition to the HAP, we
estimate PM reductions of about 2,900
tpy and VOC reductions of about 20,900
tpy. These reductions would occur as a
result of reduced use of HAP-containing
solvents and coatings, increased use of
filtered spray booths to capture
overspray, increased spray painter
training, and use of HVLP or equivalent
guns to improve transfer efficiency and
to reduce coating overspray and paint
consumption. Additional detail on these
calculations are included in the public
docket for this rulemaking.
B. What are the cost impacts?
Paint Stripping Operations
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minimization plan. Annual costs will
include an estimated $400,000 for the
development and implementation of the
MeCl minimization plan and an
estimated $450,000 associated with
switching paint stripping technologies.
Annual savings resulting from the
implementation of the MeCl
minimization plan include an estimated
$420,000 from the elimination of
unnecessary stripping operations and
$1,320,000 in management practice
savings from the reduced use of MeClcontaining strippers. Additional detail
on these calculations are included in the
public docket for this rulemaking.
Miscellaneous Coating Operations
We estimate that the final standards
for surface coating operations will have
no net annual cost to surface coating
operations. The initial cost of complying
with the final standards would be off-set
and recovered over time by cost savings
as a result of more efficient use of labor
and materials by surface coating
operations. The initial costs for surface
coating operations are for purchasing
improved spray booth filters, HVLP or
equivalent spray guns, and painter
training, if needed to comply with the
final standards.
Spray finishing operations are already
required by OSHA standards to perform
spray painting in a spray booth or
similar enclosure. However, the final
standards specify that certain types of
filters have to be used on the spray
booth exhaust to minimize HAP
emissions, and these filters are not
addressed by OSHA standards. Some
surface coating sources may need to
replace their current filters for ones with
higher paint overspray capture
efficiency, but the higher efficiency
filters are readily available and will not
result in an additional cost.
The estimated cost for training is
$1,000 per painter, which covers tuition
cost and labor cost for 16 hours of
training time. Based on the United
States census data collected to estimate
new sources for this source category the
number of refinishing shops in the
United States remain constant (i.e., for
every new shop, a shop closes) and it is
expected that this trend will continue in
the future. This reflects on the number
of new painters that would need
training. We assumed that training
certification would be valid for five
years, so about one-fifth of painters (20
percent) would receive training every
year. We estimate that about 18,000
painters would be trained per year at an
annual cost of $18 million per year.
However, EPA believes that these
training costs could be over-stated for at
least two reasons. First, many facilities
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already send their painters to training
sponsored by paint companies and trade
organizations. Paint companies sponsor
painter training so that the paint
company can reduce warranty claims on
their paint products. These training
courses already cover much of the same
material required by the final rule.
Therefore, the rule would not impose
new training costs on these facilities
that already participate in training.
Second, the estimated training cost
could be offset by reduced coating costs
if the training results in reduced coating
consumption. Data from the STAR
training programs indicate that painters
who complete this training can decrease
the amount of coating sprayed by about
20 percent per job. We estimate that if
a typical facility reduced their coating
consumption and costs by about four
percent per year, the cost savings would
equalize the increased cost of training
after one year, and there would be no
net cost in training. To recover the cost
of training over five years, a typical
facility would need to reduce their
coating consumption by slightly less
than one percent.
In summary, EPA estimates that the
final requirements for surface coating
operations would not result in any net
increase in annual costs from the
control requirements for surface coating
operations. We estimated that the
annual cost for recordkeeping and
reporting for surface coating operations
would be $7.8 million for about 36,000
surface coating operations, or an average
of about $220 per facility. Cost estimates
are based on the information available
to the Administrator and presented in
the economic analysis of this rule.
Additional detail is included in the
public docket for this rulemaking.
C. What are the economic impacts?
The economic impact analysis focuses
on changes in market prices and output
levels. A more detailed discussion of the
economic impacts is presented in the
economic impact analysis memorandum
that is included in the docket.
Both the magnitude of control costs
needed to comply with the rule and the
distribution of these costs among
affected facilities can have a role in
determining how the market prices and
quantities will change in response to the
rule. In this case, we have so many
facilities that model facilities must be
used in the cost analysis. The cost
analysis estimates that there will be no
net increase in annual costs from the
control requirements from the final
regulation for surface coating
operations. The record keeping and
reporting costs are estimated to range
from $76 to $95 per facility per year.
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These costs are too small to have any
significant market impact. Whether the
costs are absorbed by the affected
facilities or passed on to the purchaser
in the form of higher prices, the impacts
would be quite small.
The cost analysis estimates that there
will be a net cost savings from the
control requirements, recordkeeping,
and reporting from the final regulation
for paint stripping for all but the
smallest model plant. The cost for the
smallest model plant is estimated to be
$11 a year.
Again, these costs are too small to
have any significant market impact.
Whether the costs are absorbed by the
affected facilities or passed on to the
purchaser in the form of higher prices,
the impacts would be quite small.
While most of these facilities are
small, the very small costs are not
expected to be even a tenth of a percent
of revenues. Thus a significant impact is
not expected for a substantial number of
small entities.
D. What are the non-air health,
environmental, and energy impacts?
Paint Stripping Operations
We estimate that there will be a
reduction in non-air health and
environmental impacts resulting from
the paint stripping area source
NESHAP. Reduced usage of MeClcontaining chemical strippers will result
in reduction in waste water generated
from rinsing chemically stripped pieces.
Additionally, reduced chemical
stripping activity will result in a
reduction in the generation of hazardous
wastes composed of rags and other
chemical stripper applicators and
removal equipment.
EPA expects some increase in the
need for energy resulting from switching
away from MeCl-containing chemical
strippers to other paint stripping
methods. There would be a slight
increase in energy usage associated with
switching to other chemical strippers
that do not contain MeCl because they
often need to be heated above room
temperature to be most effective. There
is also some increase in energy usage
associated with non-manual mechanical
stripping and blasting with both dry and
wet media.
The energy usage increase would be
somewhat more for thermal
decomposition or cryogenic paint
stripping technologies. Thermal
decomposition basically uses natural
gas heated ovens to bake the paint off
the substrate. Cryogenic paint stripping
methods have increased electricity
demands associated with the production
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of liquid nitrogen or liquid carbon
dioxide.
Surface Coating Operations
We estimated that about 5,000 surface
coating operations, primarily motor
vehicle refinishing operations, would
need to install spray booths to comply
with the final standards. Spray booths
would need electricity to run fans and
natural gas to heat make-up air to
maintain facility temperatures in colder
weather. We estimate that this would
lead to an increased electricity
consumption of 9.8 million kilowatt
hours per year and increased natural gas
consumption of 724 million cubic feet
per year. However, spray booths are
already required for spray finishing
operations to comply with OSHA
standards, so these impacts would not
be assigned to these final standards.
Facilities that install spray booths
would also need to dispose of used
spray booth filters. These are often
placed in a sealed drum to prevent
spontaneous combustion and disposed
of as hazardous waste. We estimate that
5,000 new spray booths could generate
used filters equal to about 8,000 drums
per year.
We expect no increase in generation
of wastewater or other water quality
impacts. None of the control measures
considered for this rule generates a
wastewater stream.
The installation of spray booths and
increased worker training in the proper
use and handling of coating materials
should reduce worker exposure to
harmful chemicals in the workplace.
This should have a positive benefit on
worker health, but this benefit cannot be
quantified in the scope of this
rulemaking.
VII. Statutory and Executive Order
Reviews
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A. Executive Order 12866: Regulatory
Planning and Review
Under Executive Order (EO) 12866
(58 FR 51735, October 4, 1993), this
action is a ‘‘significant regulatory
action.’’ Accordingly, EPA submitted
this action to the Office of Management
and Budget (OMB) for review under EO
12866 and any changes made in
response to OMB recommendations
have been documented in the docket for
this action.
B. Paperwork Reduction Act
The information collection
requirements in this rule have been
submitted for approval to the OMB
under the Paperwork Reduction Act, 44
U.S.C. 3501 et seq. The information
collection requirements are not
enforceable until OMB approves them.
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The information collection
requirements are based on notification,
recordkeeping, and reporting
requirements in the NESHAP General
Provisions (40 CFR part 63, subpart A),
which are mandatory for all operators
subject to national emission standards.
These recordkeeping and reporting
requirements are specifically authorized
by CAA section 114 (42 U.S.C. 7414).
All information submitted to EPA
pursuant to the recordkeeping and
reporting requirements for which a
claim of confidentiality is made is
safeguarded according to Agency
policies set forth in 40 CFR part 2,
subpart B.
The standards would require sources
to submit an initial notification that
they are subject to the standards, submit
a notification of whether or not the
source is in compliance (the notification
of compliance status) and keep records
needed to demonstrate compliance.
These requirements would be the
minimum needed to ensure that sources
were complying with the requirements
of the rule.
EPA estimates that about 40,000
existing area sources would be subject
to the standards. EPA also estimates that
about 1,600 new facilities would open
per year in the three years following
promulgation of the standards, but that
the total number of facilities would
remain constant as new facilities replace
facilities that have closed.
New and existing sources would have
no capital costs associated with the
information collection requirements in
the standards.
The estimated recordkeeping and
reporting burden in the third year after
the effective date of the promulgated
rule is estimated to be 62,877 labor
hours at a cost of $2.2 million. This
estimate includes, depending on the
type of source, the cost of keeping
records of paint stripping solvent
consumption, painter training, spray
booth filter efficiency, and spray gun
transfer efficiency. The average hours
and cost per facility would be 6.4 hours
and $219.
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
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1757
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 may 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 OMB control
numbers for EPA’s regulations in 40
CFR are listed in 40 CFR part 9. When
this ICR is approved by OMB, the
Agency will publish a technical
amendment to 40 CFR part 9 in the
Federal Register to display the OMB
control number for the approved
information collection requirements
contained in this final rule.
C. Regulatory Flexibility Act
The Regulatory Flexibility Act (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 would not have a
significant economic impact on a
substantial number of small entities.
Small entities include small businesses,
small not-for-profit enterprises, and
small governmental jurisdictions.
For the purposes of assessing the
impacts of this rule on small entities,
small entity is defined as: (1) A small
business that meets the Small Business
Administration size standards for small
businesses found at 13 CFR 121.201; (2)
a small governmental jurisdiction that is
a government of a city, county, town,
school district, or special district with a
population of less than 50,000; and (3)
a small organization that is any not-forprofit enterprise which is independently
owned and operated and is not
dominant in its field.
After considering the economic
impacts of this final rule on small
entities, I certify that this action will not
have a significant economic impact on
a substantial number of small entities.
The small entities directly regulated by
this final rule are small businesses,
small governmental jurisdictions and
small non-profits. There will not be
significant adverse impacts on existing
area sources in any of the three source
categories because the rule creates
minimal burden for existing sources
associated primarily with notification
and reporting requirements, as the best
management or equipment practices are
designed to recover initial cost. EPA has
determined that the cost of these
requirements (estimated at less than
$100 per year per facility) would not
result in a significant adverse economic
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impact on any facility, large or small
(i.e., the cost is less than one percent of
total revenues, even for small
businesses).
Although this final rule will not have
a significant economic impact on a
substantial number of small entities,
EPA nonetheless, has tried to reduce the
impact of this rule on small entities. The
standards represent practices and
controls that are common throughout
the sources engaged in paint stripping
and surface coating. The standards also
require minimal amount of
recordkeeping and reporting needed to
demonstrate and verify compliance.
These standards were developed in
consultation with numerous individual
small businesses and their
representative trade associations.
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D. Unfunded Mandates Reform Act
Title II of the Unfunded Mandates
Reform Act of 1995 (UMRA), Public
Law 104–4, established 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 the proposed and final rule
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 a 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 costeffective 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
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small governments on compliance with
the regulatory requirements.
EPA has determined that this rule
does not contain a Federal mandate that
may result in expenditures of $100
million or more for State, local, and
tribal governments, in the aggregate, or
the private sector in any one year. This
decision is based on discussions with
State, local, and tribal governments
during site visits. Thus, this rule is not
subject to the requirements of sections
202 and 205 of the UMRA.
EPA has determined that this rule
contains no regulatory requirements that
might significantly or uniquely affect
small governments. Some State, local, or
tribal governments have paint stripping
and/or surface coating operations (e.g.,
municipal fleet vehicle maintenance
garages) that may be subject to the
requirements of this rule. However, EPA
does not believe that any of them are
operated by small government entities.
Small government entities are expected
to contract for vehicle refinishing
services when these services are needed,
rather than doing this work in-house. In
addition, total expenditures for all
entities to comply with the rule are
estimated to be less than $100 million
in any year.
E. Executive Order 13132: Federalism
Executive Order (EO) 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 EO 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 rule 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 EO
13132. The EPA is required by CAA
section 112, to establish the standards in
the rule. The rule primarily affects
private industry, and does not impose
significant economic costs on State or
local governments. In the spirit of
Executive Order 13132, and consistent
with EPA policy to promote
communications between EPA and State
and local governments, EPA specifically
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solicited comment on the proposed rule
from State and local officials.
F. Executive Order 13175: Consultation
and Coordination With Indian Tribal
Governments
Executive Order (EO) 13175, entitled
‘‘Consultation and Coordination with
Indian Tribal Governments’’ (65 FR
67249, November 9, 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.’’ This final rule does not
have tribal implications, as specified in
EO 13175. It will not have substantial
direct effects on tribal governments, or
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 EO 13175. Thus, EO 13175
does not apply to this rule.
G. Executive Order 13045: Protection of
Children From Environmental Health
and Safety Risks
Executive Order (EO) 13045:
‘‘Protection of Children From
Environmental Health and Safety Risks’’
(62 FR 19885, April 23, 1997) applies to
any rule that: (1) Is determined to be
‘‘economically significant’’ as defined
under EO 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.
EPA interprets EO 13045 as applying
only to those regulatory actions that are
based on health or safety risks, such that
the analysis required under section 5–
501 of the Order has the potential to
influence the regulation. This rule is not
subject to EO 13045 because it is based
on technology performance and not on
health or safety risks.
H. Executive Order 13211: Actions
Concerning Regulations That
Significantly Affect Energy Supply,
Distribution, or Use
This rule is not a ‘‘significant energy
action’’ as defined in Executive Order
13211, ‘‘Actions Concerning Regulations
That Significantly Affect Energy Supply,
Distribution, or Use’’ (66 FR 28355,
(May 22, 2001)) because it is not likely
to have a significant adverse effect on
the supply, distribution, or use of
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energy. Some of the affected sources
would be expected to install and operate
spray booths to comply with the rule
and these would require electricity and
natural gas to operate. However the
increased use of energy by these sources
would not have a significant effect on
the supply, distribution, or use of
energy.
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I. National Technology Transfer
Advancement Act
As noted in the proposed rule, section
12(d) of the National Technology
Transfer and Advancement Act of 1995
(NTTAA) (Pub. L. 104–113, 12(d), (15
U.S.C. 272 note) directs EPA to use
voluntary consensus standards (VCS) in
its regulatory activities, unless to do so
would be inconsistent with applicable
law or otherwise impractical. The VCS
are technical standards (e.g., materials
specifications, test methods, sampling
procedures, and business practices) that
are developed or adopted by VCS
bodies. The NTTAA directs EPA to
provide Congress, through OMB,
explanations when the Agency decides
not to use available and applicable VCS.
This rulemaking involves technical
standards. Therefore the EPA conducted
searches to identify potential voluntary
consensus standards. However, we
identified no such standards and none
were brought to our attention in
comments. The search and review
results are in the docket for this rule.
Therefore EPA has decided to use the
following:
(1) the American Society of Heating,
Refrigerating, and Air-Conditioning
Engineers (ASHRAE) Method 52.1,
‘‘Gravimetric and Dust-Spot Procedures
for Testing Air-Cleaning Devices Used
in General Ventilation for Removing
Particulate Matter, June 4, 1992,’’ to
measure paint booth filter efficiency to
measure the capture efficiency of paint
overspray arrestors with spray-applied
coatings
(2) California South Coast Air Quality
Management District’s (SCAQMD)
methods: ‘‘Spray Equipment Transfer
Efficiency Test Procedure For
Equipment User, May 24, 1989’’ and
‘‘Guidelines for Demonstrating
Equivalency with District Approved
Transfer Efficient Spray Guns,
September 26, 2002’’ as methods to
demonstrate the equivalency of spray
gun transfer efficiency for spray guns
that do not meet the definition of HVLP
or electrostatic spray.
Under § 63.7(f) and § 63.8(f) of subpart
A of the General Provisions, a source
may apply to EPA for permission to use
alternative test methods or alternative
monitoring requirements in place of any
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required testing methods, performance
specifications, or procedures.
J. Executive Order 12898: Federal
Actions To Address Environmental
Justice in Minority Populations and
Low-Income Populations
Executive Order 12898 (59 FR 7629
(Feb. 16, 1994)) establishes Federal
executive policy on environmental
justice. Its main provision directs
Federal agencies, to the greatest extent
practicable and permitted by law, to
make environmental justice part of their
mission by identifying and addressing,
as appropriate, disproportionately high
and adverse human health or
environmental effects of their programs,
policies, and activities on minority
populations and low-income
populations in the United States.
EPA has determined that this final
rule will not have disproportionately
high and adverse human health or
environmental effects on minority or
low-income populations because it
increases the level of environmental
protection for all affected populations
without having any disproportionately
high and adverse human health or
environmental effects on any
population, including any minority or
low-income population. The rule
establishes national standards for air
quality that apply equally to all affected
sources, whether or not they are located
in or near minority or low-income
populations. Hence there are no
requirements in this rule that would
disproportionately affect these
populations.
K. Congressional Review Act
The Congressional Review Act, 5
U.S.C. 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 the
Congress and to the Comptroller General
of the United States. The EPA will
submit a report containing this final rule
and other required information to the
U.S. Senate, the U.S. House of
Representatives, and the Comptroller
General of the United States prior to
publication of the final rule in the
Federal Register. A major rule cannot
take effect until 60 days after it is
published in the Federal Register. This
action is not a ‘‘major rule’’ as defined
by 5 U.S.C. 804(2). This final rule will
be effective on January 9, 2008.
List of Subjects in 40 CFR Part 63
Environmental protection, Air
pollution control, Hazardous
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1759
substances, Incorporation by reference,
Reporting and recordkeeping
requirements.
Dated: December 14, 2007.
Stephen L. Johnson,
Administrator.
For the reasons stated in the preamble,
title 40, chapter I of the Code of Federal
Regulations is amended as follows:
I
PART 63—[AMENDED]
1. The authority citation for part 63
continues to read as follows:
I
Authority: 42 U.S.C. 7401, et seq.
Subpart A—[Amended]
2. Section 63.14 is amended by
revising paragraph (d) introductory text
and adding new paragraphs (d)(7) and
(d)(8) and (l)(1) to read as follows:
I
§ 63.14
Incorporations by reference.
*
*
*
*
*
(d) State and Local Requirements. The
materials listed below are available at
the Air and Radiation Docket and
Information Center, U.S. EPA, 401 M
St., SW., Washington, DC. Additionally,
the California South Coast Air Quality
Management District materials are
available at https://www.aqmd.gov/
permit/spraytransferefficiency.html.
*
*
*
*
*
(7) California South Coast Air Quality
Management District’s ‘‘Spray
Equipment Transfer Efficiency Test
Procedure for Equipment User, May 24,
1989’’, IBR approved for
§ 63.11173(e)(3).
(8) California South Coast Air Quality
Management District’s ‘‘Guidelines for
Demonstrating Equivalency with
District Approved Transfer Efficient
Spray Guns, September 26, 2002’’, IBR
approved for § 63.11173(e)(3).
*
*
*
*
*
(l) The following materials are
available for purchase from the
American Society of Heating,
Refrigerating, and Air-Conditioning
Engineers at 1791 Tullie Circle, NE.,
Atlanta, GA 30329 or by electronic mail
at orders@ashrae.org:
(1) American Society of Heating,
Refrigerating, and Air-Conditioning
Engineers Method 52.1, ‘‘Gravimetric
and Dust-Spot Procedures for Testing
Air-Cleaning Devices Used in General
Ventilation for Removing Particulate
Matter, June 4, 1992’’, IBR approved for
§ 63.11173(e)(2)(i).
*
*
*
*
*
I 3. Part 63 is amended by adding
subpart HHHHHH consisting of
§§ 63.11169 through 63.11180 and table
1 to read as follows:
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Subpart HHHHHH National Emission
Standards for Hazardous Air
Pollutants: Paint Stripping and
Miscellaneous Surface Coating
Operations at Area Sources
What This Subpart Covers
Sec.
63.11169 What is the purpose of this
subpart?
63.11170 Am I subject to this subpart?
63.11171 How do I know if my source is
considered a new source or an existing
source?
General Compliance Requirements
63.11172 When do I have to comply with
this subpart?
63.11173 What are my general requirements
for complying with this subpart?
63.11174 What parts of the General
Provisions apply to me?
Notifications, Reports, and Records
63.11175 What notifications must I submit?
63.11176 What reports must I submit?
63.11177 What records must I keep?
63.11178 In what form and for how long
must I keep my records?
Other Requirements and Information
63.11179 Who implements and enforces
this subpart?
63.11180 What definitions do I need to
know?
Table to Subpart HHHHHH of Part 63
Table 1 to Subpart HHHHHH of Part 63—
Applicability of General Provisions to
Subpart HHHHHH of Part 63
Subpart HHHHHH—National Emission
Standards for Hazardous Air
Pollutants: Paint Stripping and
Miscellaneous Surface Coating
Operations at Area Sources
What This Subpart Covers
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§ 63.11169
subpart?
What is the purpose of this
Except as provided in paragraph (d) of
this section, this subpart establishes
national emission standards for
hazardous air pollutants (HAP) for area
sources involved in any of the activities
in paragraphs (a) through (c) of this
section. This subpart also establishes
requirements to demonstrate initial and
continuous compliance with the
emission standards contained herein.
(a) Paint stripping operations that
involve the use of chemical strippers
that contain methylene chloride (MeCl),
Chemical Abstract Service number
75092, in paint removal processes;
(b) Autobody refinishing operations
that encompass motor vehicle and
mobile equipment spray-applied surface
coating operations;
(c) Spray application of coatings
containing compounds of chromium
(Cr), lead (Pb), manganese (Mn), nickel
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(Ni), or cadmium (Cd), collectively
referred to as the target HAP to any part
or product made of metal or plastic, or
combinations of metal and plastic that
are not motor vehicles or mobile
equipment.
(d) This subpart does not apply to any
of the activities described in paragraph
(d)(1) through (6) of this section.
(1) Surface coating or paint stripping
performed on site at installations owned
or operated by the Armed Forces of the
United States (including the Coast
Guard and the National Guard of any
such State), the National Aeronautics
and Space Administration, or the
National Nuclear Security
Administration.
(2) Surface coating or paint stripping
of military munitions, as defined in
§ 63.11180, manufactured by or for the
Armed Forces of the United States
(including the Coast Guard and the
National Guard of any such State) or
equipment directly and exclusively
used for the purposes of transporting
military munitions.
(3) Surface coating or paint stripping
performed by individuals on their
personal vehicles, possessions, or
property, either as a hobby or for
maintenance of their personal vehicles,
possessions, or property. This subpart
also does not apply when these
operations are performed by individuals
for others without compensation. An
individual who spray applies surface
coating to more than two motor vehicles
or pieces of mobile equipment per year
is subject to the requirements in this
subpart that pertain to motor vehicle
and mobile equipment surface coating
regardless of whether compensation is
received.
(4) Surface coating or paint stripping
that meets the definition of ‘‘research
and laboratory activities’’ in § 63.11180.
(5) Surface coating or paint stripping
that meets the definition of ‘‘quality
control activities’’ in § 63.11180.
(6) Surface coating or paint stripping
activities that are covered under another
area source NESHAP.
§ 63.11170
Am I subject to this subpart?
(a) You are subject to this subpart if
you operate an area source of HAP as
defined in paragraph (b) of this section,
including sources that are part of a
tribal, local, State, or Federal facility
and you perform one or more of the
activities in paragraphs (a)(1) through
(3) of this section:
(1) Perform paint stripping using
MeCl for the removal of dried paint
(including, but not limited to, paint,
enamel, varnish, shellac, and lacquer)
from wood, metal, plastic, and other
substrates.
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(2) Perform spray application of
coatings, as defined in § 63.11180, to
motor vehicles and mobile equipment
including operations that are located in
stationary structures at fixed locations,
and mobile repair and refinishing
operations that travel to the customer’s
location, except spray coating
applications that meet the definition of
facility maintenance in § 63.11180.
However, if you are the owner or
operator of a motor vehicle or mobile
equipment surface coating operation,
you may petition the Administrator for
an exemption from this subpart if you
can demonstrate, to the satisfaction of
the Administrator, that you spray apply
no coatings that contain the target HAP,
as defined in § 63.11180. Petitions must
include a description of the coatings
that you spray apply and your
certification that you do not spray apply
any coatings containing the target HAP.
If circumstances change such that you
intend to spray apply coatings
containing the target HAP, you must
submit the initial notification required
by 63.11175 and comply with the
requirements of this subpart.
(3) Perform spray application of
coatings that contain the target HAP, as
defined in § 63.11180, to a plastic and/
or metal substrate on a part or product,
except spray coating applications that
meet the definition of facility
maintenance or space vehicle in
§ 63.11180.
(b) An area source of HAP is a source
of HAP that is not a major source of
HAP, is not located at a major source,
and is not part of a major source of HAP
emissions. A major source of HAP
emissions is any stationary source or
group of stationary sources located
within a contiguous area and under
common control that emits or has the
potential to emit any single HAP at a
rate of 9.07 megagrams (Mg) (10 tons) or
more per year, or emit any combination
of HAP at a rate of 22.68 Mg (25 tons)
or more per year.
§ 63.11171 How do I know if my source is
considered a new source or an existing
source?
(a) This subpart applies to each new
and existing affected area source
engaged in the activities listed in
§ 63.11170, with the exception of those
activities listed in § 63.11169(d) of this
subpart.
(b) The affected source is the
collection of all of the items listed in
paragraphs (b)(1) through (6) of this
section. Not all affected sources will
have all of the items listed in paragraphs
(b)(1) through (6) of this section.
(1) Mixing rooms and equipment;
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(2) Spray booths, ventilated prep
stations, curing ovens, and associated
equipment;
(3) Spray guns and associated
equipment;
(4) Spray gun cleaning equipment;
(5) Equipment used for storage,
handling, recovery, or recycling of
cleaning solvent or waste paint; and
(6) Equipment used for paint stripping
at paint stripping facilities using paint
strippers containing MeCl.
(c) An affected source is a new source
if it meets the criteria in paragraphs
(c)(1) and (c)(2) of this section.
(1) You commenced the construction
of the source after September 17, 2007
by installing new paint stripping or
surface coating equipment. If you
purchase and install spray booths,
enclosed spray gun cleaners, paint
stripping equipment to reduce MeCl
emissions, or purchase new spray guns
to comply with this subpart at an
existing source, these actions would not
make your existing source a new source.
(2) The new paint stripping or surface
coating equipment is used at a source
that was not actively engaged in paint
stripping and/or miscellaneous surface
coating prior to September 17, 2007.
(d) An affected source is
reconstructed if it meets the definition
of reconstruction in § 63.2.
(e) An affected source is an existing
source if it is not a new source or a
reconstructed source.
General Compliance Requirements
§ 63.11172 When do I have to comply with
this subpart?
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The date by which you must comply
with this subpart is called the
compliance date. The compliance date
for each type of affected source is
specified in paragraphs (a) and (b) of
this section.
(a) For a new or reconstructed affected
source, the compliance date is the
applicable date in paragraph (a)(1) or (2)
of this section:
(1) If the initial startup of your new
or reconstructed affected source is after
September 17, 2007, the compliance
date is January 9, 2008.
(2) If the initial startup of your new
or reconstructed affected source occurs
after January 9, 2008, the compliance
date is the date of initial startup of your
affected source.
(b) For an existing affected source, the
compliance date is January 10, 2011.
§ 63.11173 What are my general
requirements for complying with this
subpart?
(a) Each paint stripping operation that
is an affected area source must
implement management practices to
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minimize the evaporative emissions of
MeCl. The management practices must
address, at a minimum, the practices in
paragraphs (a)(1) through (5) of this
section, as applicable, for your
operations.
(1) Evaluate each application to
ensure there is a need for paint stripping
(e.g., evaluate whether it is possible to
re-coat the piece without removing the
existing coating).
(2) Evaluate each application where a
paint stripper containing MeCl is used
to ensure that there is no alternative
paint stripping technology that can be
used.
(3) Reduce exposure of all paint
strippers containing MeCl to the air.
(4) Optimize application conditions
when using paint strippers containing
MeCl to reduce MeCl evaporation (e.g.,
if the stripper must be heated, make
sure that the temperature is kept as low
as possible to reduce evaporation).
(5) Practice proper storage and
disposal of paint strippers containing
MeCl (e.g., store stripper in closed, airtight containers).
(b) Each paint stripping operation that
has annual usage of more than one ton
of MeCl must develop and implement a
written MeCl minimization plan to
minimize the use and emissions of
MeCl. The MeCl minimization plan
must address, at a minimum, the
management practices specified in
paragraphs (a)(1) through (5) of this
section, as applicable, for your
operations. Each operation must post a
placard or sign outlining the MeCl
minimization plan in each area where
paint stripping operations subject to this
subpart occur. Paint stripping
operations with annual usage of more
than one ton of MeCl, must comply with
the management practices in paragraphs
(a)(1) through (5) of this section, as
applicable, but are not required to
develop and implement a written MeCl
minimization plan.
(c) Each paint stripping operation
must maintain copies of annual usage of
paint strippers containing MeCl on site
at all times.
(d) Each paint stripping operation
with annual usage of more than one ton
of MeCl must maintain a copy of their
current MeCl minimization plan on site
at all times.
(e) Each motor vehicle and mobile
equipment surface coating operation
and each miscellaneous surface coating
operation must meet the requirements
in paragraphs (e)(1) through (e)(5) of this
section.
(1) All painters must be certified that
they have completed training in the
proper spray application of surface
coatings and the proper setup and
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1761
maintenance of spray equipment. The
minimum requirements for training and
certification are described in paragraph
(f) of this section. The spray application
of surface coatings is prohibited by
persons who are not certified as having
completed the training described in
paragraph (f) of this section. The
requirements of this paragraph do not
apply to the students of an accredited
surface coating training program who
are under the direct supervision of an
instructor who meets the requirements
of this paragraph.
(2) All spray-applied coatings must be
applied in a spray booth, preparation
station, or mobile enclosure that meets
the requirements of paragraph (e)(2)(i) of
this section and either paragraph
(e)(2)(ii), (e)(2)(iii), or (e)(2)(iv) of this
section.
(i) All spray booths, preparation
stations, and mobile enclosures must be
fitted with a type of filter technology
that is demonstrated to achieve at least
98-percent capture of paint overspray.
The procedure used to demonstrate
filter efficiency must be consistent with
the American Society of Heating,
Refrigerating, and Air-Conditioning
Engineers (ASHRAE) Method 52.1,
‘‘Gravimetric and Dust-Spot Procedures
for Testing Air-Cleaning Devices Used
in General Ventilation for Removing
Particulate Matter, June 4, 1992’’
(incorporated by reference, see § 63.14
of subpart A of this part). The test
coating for measuring filter efficiency
shall be a high solids bake enamel
delivered at a rate of at least 135 grams
per minute from a conventional (nonHVLP) air-atomized spray gun operating
at 40 pounds per square inch (psi) air
pressure; the air flow rate across the
filter shall be 150 feet per minute.
Owners and operators may use
published filter efficiency data provided
by filter vendors to demonstrate
compliance with this requirement and
are not required to perform this
measurement. The requirements of this
paragraph do not apply to waterwash
spray booths that are operated and
maintained according to the
manufacturer’s specifications.
(ii) Spray booths and preparation
stations used to refinish complete motor
vehicles or mobile equipment must be
fully enclosed with a full roof, and four
complete walls or complete side
curtains, and must be ventilated at
negative pressure so that air is drawn
into any openings in the booth walls or
preparation station curtains. However, if
a spray booth is fully enclosed and has
seals on all doors and other openings
and has an automatic pressure balancing
system, it may be operated at up to, but
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not more than, 0.05 inches water gauge
positive pressure.
(iii) Spray booths and preparation
stations that are used to coat
miscellaneous parts and products or
vehicle subassemblies must have a full
roof, at least three complete walls or
complete side curtains, and must be
ventilated so that air is drawn into the
booth. The walls and roof of a booth
may have openings, if needed, to allow
for conveyors and parts to pass through
the booth during the coating process.
(iv) Mobile ventilated enclosures that
are used to perform spot repairs must
enclose and, if necessary, seal against
the surface around the area being coated
such that paint overspray is retained
within the enclosure and directed to a
filter to capture paint overspray.
(3) All spray-applied coatings must be
applied with a high volume, low
pressure (HVLP) spray gun, electrostatic
application, airless spray gun, airassisted airless spray gun, or an
equivalent technology that is
demonstrated by the spray gun
manufacturer to achieve transfer
efficiency comparable to one of the
spray gun technologies listed above for
a comparable operation, and for which
written approval has been obtained from
the Administrator. The procedure used
to demonstrate that spray gun transfer
efficiency is equivalent to that of an
HVLP spray gun must be equivalent to
the California South Coast Air Quality
Management District’s ‘‘Spray
Equipment Transfer Efficiency Test
Procedure for Equipment User, May 24,
1989’’ and ‘‘Guidelines for
Demonstrating Equivalency with
District Approved Transfer Efficient
Spray Guns, September 26, 2002’’
(incorporated by reference, see § 63.14
of subpart A of this part). The
requirements of this paragraph do not
apply to painting performed by students
and instructors at paint training centers.
The requirements of this paragraph do
not apply to the surface coating of
aerospace vehicles that involves the
coating of components that normally
require the use of an airbrush or an
extension on the spray gun to properly
reach limited access spaces; to the
application of coatings on aerospace
vehicles that contain fillers that
adversely affect atomization with HVLP
spray guns; or to the application of
coatings on aerospace vehicles that
normally have a dried film thickness of
less than 0.0013 centimeter (0.0005 in.).
(4) All paint spray gun cleaning must
be done so that an atomized mist or
spray of gun cleaning solvent and paint
residue is not created outside of a
container that collects used gun
cleaning solvent. Spray gun cleaning
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may be done with, for example, hand
cleaning of parts of the disassembled
gun in a container of solvent, by
flushing solvent through the gun
without atomizing the solvent and paint
residue, or by using a fully enclosed
spray gun washer. A combination of
non-atomizing methods may also be
used.
(5) As provided in § 63.6(g), we, the
U.S. Environmental Protection Agency,
may choose to grant you permission to
use an alternative to the emission
standards in this section after you have
requested approval to do so according to
§ 63.6(g)(2).
(f) Each owner or operator of an
affected miscellaneous surface coating
source must ensure and certify that all
new and existing personnel, including
contract personnel, who spray apply
surface coatings, as defined in
§ 63.11180, are trained in the proper
application of surface coatings as
required by paragraph (e)(1) of this
section. The training program must
include, at a minimum, the items listed
in paragraphs (f)(1) through (f)(3) of this
section.
(1) A list of all current personnel by
name and job description who are
required to be trained;
(2) Hands-on and classroom
instruction that addresses, at a
minimum, initial and refresher training
in the topics listed in paragraphs (f)(2)(i)
through (2)(iv) of this section.
(i) Spray gun equipment selection, set
up, and operation, including measuring
coating viscosity, selecting the proper
fluid tip or nozzle, and achieving the
proper spray pattern, air pressure and
volume, and fluid delivery rate.
(ii) Spray technique for different types
of coatings to improve transfer
efficiency and minimize coating usage
and overspray, including maintaining
the correct spray gun distance and angle
to the part, using proper banding and
overlap, and reducing lead and lag
spraying at the beginning and end of
each stroke.
(iii) Routine spray booth and filter
maintenance, including filter selection
and installation.
(iv) Environmental compliance with
the requirements of this subpart.
(3) A description of the methods to be
used at the completion of initial or
refresher training to demonstrate,
document, and provide certification of
successful completion of the required
training. Owners and operators who can
show by documentation or certification
that a painter’s work experience and/or
training has resulted in training
equivalent to the training required in
paragraph (f)(2) of this section are not
required to provide the initial training
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required by that paragraph to these
painters.
(g) As required by paragraph (e)(1) of
this section, all new and existing
personnel at an affected motor vehicle
and mobile equipment or miscellaneous
surface coating source, including
contract personnel, who spray apply
surface coatings, as defined in
§ 63.11180, must be trained by the dates
specified in paragraphs (g)(1) and (2) of
this section. Employees who transfer
within a company to a position as a
painter are subject to the same
requirements as a new hire.
(1) If your source is a new source, all
personnel must be trained and certified
no later than 180 days after hiring or no
later than July 7, 2008, whichever is
later. Painter training that was
completed within five years prior to the
date training is required, and that meets
the requirements specified in paragraph
(f)(2) of this section satisfies this
requirement and is valid for a period not
to exceed five years after the date the
training is completed.
(2) If your source is an existing
source, all personnel must be trained
and certified no later than 180 days after
hiring or no later than January 10, 2011,
whichever is later. Painter training that
was completed within five years prior to
the date training is required, and that
meets the requirements specified in
paragraph (f)(2) of this section satisfies
this requirement and is valid for a
period not to exceed five years after the
date the training is completed.
(3) Training and certification will be
valid for a period not to exceed five
years after the date the training is
completed, and all personnel must
receive refresher training that meets the
requirements of this section and be recertified every five years.
§ 63.11174 What parts of the General
Provisions apply to me?
(a) Table 1 of this subpart shows
which parts of the General Provisions in
subpart A apply to you.
(b) If you are an owner or operator of
an area source subject to this subpart,
you are exempt from the obligation to
obtain a permit under 40 CFR part 70 or
71, provided you are not required to
obtain a permit under 40 CFR 70.3(a) or
71.3(a) for a reason other than your
status as an area source under this
subpart. Notwithstanding the previous
sentence, you must continue to comply
with the provisions of this subpart
applicable to area sources.
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Notifications, Reports, and Records
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§ 63.11175
submit?
What notifications must I
(a) Initial Notification. If you are the
owner or operator of a paint stripping
operation using paint strippers
containing MeCl and/or a surface
coating operation subject to this subpart,
you must submit the initial notification
required by § 63.9(b). For a new affected
source, you must submit the Initial
Notification no later than 180 days after
initial startup or July 7, 2008, whichever
is later. For an existing affected source,
you must submit the initial notification
no later than January 11, 2010. The
initial notification must provide the
information specified in paragraphs
(a)(1) through (8) of this section.
(1) The company name, if applicable.
(2) The name, title, street address,
telephone number, e-mail address (if
available), and signature of the owner
and operator, or other certifying
company official;
(3) The street address (physical
location) of the affected source and the
street address where compliance records
are maintained, if different. If the source
is a motor vehicle or mobile equipment
surface coating operation that repairs
vehicles at the customer’s location,
rather than at a fixed location, such as
a collision repair shop, the notification
should state this and indicate the
physical location where records are kept
to demonstrate compliance;
(4) An identification of the relevant
standard (i.e., this subpart, 40 CFR part
63, subpart HHHHHH);
(5) A brief description of the type of
operation as specified in paragraph
(a)(5)(i) or (ii) of this section.
(i) For all surface coating operations,
indicate whether the source is a motor
vehicle and mobile equipment surface
coating operation or a miscellaneous
surface coating operation, and include
the number of spray booths and
preparation stations, and the number of
painters usually employed at the
operation.
(ii) For paint stripping operations,
identify the method(s) of paint stripping
employed (e.g., chemical, mechanical)
and the substrates stripped (e.g., wood,
plastic, metal).
(6) Each paint stripping operation
must indicate whether they plan to
annually use more than one ton of MeCl
after the compliance date.
(7) A statement of whether the source
is already in compliance with each of
the relevant requirements of this
subpart, or whether the source will be
brought into compliance by the
compliance date. For paint stripping
operations, the relevant requirements
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that you must evaluate in making this
determination are specified in
§ 63.11173(a) through (d) of this subpart.
For surface coating operations, the
relevant requirements are specified in
§ 63.11173(e) through (g) of this subpart.
(8) If your source is a new source, you
must certify in the initial notification
whether the source is in compliance
with each of the requirements of this
subpart. If your source is an existing
source, you may certify in the initial
notification that the source is already in
compliance. If you are certifying in the
initial notification that the source is in
compliance with the relevant
requirements of this subpart, then
include also a statement by a
responsible official with that official’s
name, title, phone number, e-mail
address (if available) and signature,
certifying the truth, accuracy, and
completeness of the notification, a
statement that the source has complied
with all the relevant standards of this
subpart, and that this initial notification
also serves as the notification of
compliance status.
(b) Notification of Compliance Status.
If you are the owner or operator of a
new source, you are not required to
submit a separate notification of
compliance status in addition to the
initial notification specified in
paragraph (a) of this subpart provided
you were able to certify compliance on
the date of the initial notification, as
part of the initial notification, and your
compliance status has not since
changed. If you are the owner or
operator of any existing source and did
not certify in the initial notification that
your source is already in compliance as
specified in paragraph (a) of this
section, then you must submit a
notification of compliance status. You
must submit a Notification of
Compliance Status on or before March
11, 2011. You are required to submit the
information specified in paragraphs
(b)(1) through (4) of this section with
your Notification of Compliance Status:
(1) Your company’s name and the
street address (physical location) of the
affected source and the street address
where compliance records are
maintained, if different.
(2) The name, title, address,
telephone, e-mail address (if available)
and signature of the owner and operator,
or other certifying company official,
certifying the truth, accuracy, and
completeness of the notification and a
statement of whether the source has
complied with all the relevant standards
and other requirements of this subpart
or an explanation of any noncompliance
and a description of corrective actions
being taken to achieve compliance. For
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1763
paint stripping operations, the relevant
requirements that you must evaluate in
making this determination are specified
in § 63.11173(a) through (d). For surface
coating operations, the relevant
requirements are specified in
§ 63.11173(e) through (g).
(3) The date of the Notification of
Compliance Status.
(4) If you are the owner or operator of
an existing affected paint stripping
source that annually uses more than one
ton of MeCl, you must submit a
statement certifying that you have
developed and are implementing a
written MeCl minimization plan in
accordance with § 63.11173(b).
§ 63.11176
What reports must I submit?
(a) Annual Notification of Changes
Report. If you are the owner or operator
of a paint stripping, motor vehicle or
mobile equipment, or miscellaneous
surface coating affected source, you are
required to submit a report in each
calendar year in which information
previously submitted in either the
initial notification required by
§ 63.11175(a), Notification of
Compliance, or a previous annual
notification of changes report submitted
under this paragraph, has changed.
Deviations from the relevant
requirements in § 63.11173(a) through
(d) or § 63.11173(e) through (g) on the
date of the report will be deemed to be
a change. This includes notification
when paint stripping affected sources
that have not developed and
implemented a written MeCl
minimization plan in accordance with
§ 63.11173(b) used more than one ton of
MeCl in the previous calendar year. The
annual notification of changes report
must be submitted prior to March 1 of
each calendar year when reportable
changes have occurred and must
include the information specified in
paragraphs (a)(1) through (2) of this
section.
(1) Your company’s name and the
street address (physical location) of the
affected source and the street address
where compliance records are
maintained, if different.
(2) The name, title, address,
telephone, e-mail address (if available)
and signature of the owner and operator,
or other certifying company official,
certifying the truth, accuracy, and
completeness of the notification and a
statement of whether the source has
complied with all the relevant standards
and other requirements of this subpart
or an explanation of any noncompliance
and a description of corrective actions
being taken to achieve compliance.
(b) If you are the owner or operator of
a paint stripping affected source that has
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not developed and implemented a
written MeCl minimization plan in
accordance with § 63.11173(b) of this
subpart, you must submit a report for
any calendar year in which you use
more than one ton of MeCl. This report
must be submitted no later than March
1 of the following calendar year. You
must also develop and implement a
written MeCl minimization plan in
accordance with § 63.11173(b) no later
than December 31. You must then
submit a Notification of Compliance
Status report containing the information
specified in § 63.11175(b) by March 1 of
the following year and comply with the
requirements for paint stripping
operations that annually use more than
one ton of MeCl in §§ 63.11173(d) and
63.11177(f).
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§ 63.11177
What records must I keep?
If you are the owner or operator of a
surface coating operation, you must
keep the records specified in paragraphs
(a) through (d) and (g) of this section. If
you are the owner or operator of a paint
stripping operation, you must keep the
records specified in paragraphs (e)
through (g) of this section, as applicable.
(a) Certification that each painter has
completed the training specified in
§ 63.11173(f) with the date the initial
training and the most recent refresher
training was completed.
(b) Documentation of the filter
efficiency of any spray booth exhaust
filter material, according to the
procedure in § 63.11173(e)(3)(i).
(c) Documentation from the spray gun
manufacturer that each spray gun with
a cup capacity equal to or greater than
3.0 fluid ounces (89 cc) that does not
meet the definition of an HVLP spray
gun, electrostatic application, airless
spray gun, or air assisted airless spray
gun, has been determined by the
Administrator to achieve a transfer
efficiency equivalent to that of an HVLP
spray gun, according to the procedure in
§ 63.11173(e)(4).
(d) Copies of any notification
submitted as required by § 63.11175 and
copies of any report submitted as
required by § 63.11176.
(e) Records of paint strippers
containing MeCl used for paint
stripping operations, including the
MeCl content of the paint stripper used.
Documentation needs to be sufficient to
verify annual usage of paint strippers
containing MeCl (e.g., material safety
data sheets or other documentation
provided by the manufacturer or
supplier of the paint stripper, purchase
receipts, records of paint stripper usage,
engineering calculations).
(f) If you are a paint stripping source
that annually uses more than one ton of
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MeCl you are required to maintain a
record of your current MeCl
minimization plan on site for the
duration of your paint stripping
operations. You must also keep records
of your annual review of, and updates
to, your MeCl minimization plan.
(g) Records of any deviation from the
requirements in §§ 63.11173, 63.11174,
63.11175, or 63.11176. These records
must include the date and time period
of the deviation, and a description of the
nature of the deviation and the actions
taken to correct the deviation.
(h) Records of any assessments of
source compliance performed in
support of the initial notification,
notification of compliance status, or
annual notification of changes report.
§ 63.11178 In what form and for how long
must I keep my records?
(a) If you are the owner or operator of
an affected source, you must maintain
copies of the records specified in
§ 63.11177 for a period of at least five
years after the date of each record.
Copies of records must be kept on site
and in a printed or electronic form that
is readily accessible for inspection for at
least the first two years after their date,
and may be kept off-site after that two
year period.
Other Requirements and Information
§ 63.11179 Who implements and enforces
this subpart?
(a) This subpart can be implemented
and enforced by us, the U.S.
Environmental Protection Agency
(EPA), or a delegated authority such as
your State, local, or tribal agency. If the
Administrator has delegated authority to
your State, local, or tribal agency, then
that agency (as well as the EPA) has the
authority to implement and enforce this
subpart. You should contact your EPA
Regional Office to find out if
implementation and enforcement of this
subpart is delegated to your State, local,
or tribal agency.
(b) In delegating implementation and
enforcement authority of this subpart to
a State, local, or tribal agency under
subpart E of this part, the authorities
contained in paragraph (c) of this
section are retained by the
Administrator and are not transferred to
the State, local, or tribal agency.
(c) The authority in § 63.11173(e)(5)
will not be delegated to State, local, or
tribal agencies.
§ 63.11180
know?
What definitions do I need to
Terms used in this subpart are
defined in the Clean Air Act, in 40 CFR
63.2, and in this section as follows:
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Additive means a material that is
added to a coating after purchase from
a supplier (e.g., catalysts, activators,
accelerators).
Administrator means, for the
purposes of this rulemaking, the
Administrator of the U.S.
Environmental Protection Agency or the
State or local agency that is granted
delegation for implementation of this
subpart.
Aerospace vehicle or component
means any fabricated part, processed
part, assembly of parts, or completed
unit, with the exception of electronic
components, of any aircraft including
but not limited to airplanes, helicopters,
missiles, rockets, and space vehicles.
Airless and air-assisted airless spray
mean any paint spray technology that
relies solely on the fluid pressure of the
paint to create an atomized paint spray
pattern and does not apply any
atomizing compressed air to the paint
before it leaves the paint nozzle. Airassisted airless spray uses compressed
air to shape and distribute the fan of
atomized paint, but still uses fluid
pressure to create the atomized paint.
Appurtenance means any accessory to
a stationary structure coated at the site
of installation, whether installed or
detached, including but not limited to:
bathroom and kitchen fixtures; cabinets;
concrete forms; doors; elevators; fences;
hand railings; heating equipment, air
conditioning equipment, and other fixed
mechanical equipment or stationary
tools; lamp posts; partitions; pipes and
piping systems; rain gutters and
downspouts; stairways, fixed ladders,
catwalks, and fire escapes; and window
screens.
Architectural coating means a coating
to be applied to stationary structures or
their appurtenances at the site of
installation, to portable buildings at the
site of installation, to pavements, or to
curbs.
Cleaning material means a solvent
used to remove contaminants and other
materials, such as dirt, grease, or oil,
from a substrate before or after coating
application or from equipment
associated with a coating operation,
such as spray booths, spray guns, racks,
tanks, and hangers. Thus, it includes
any cleaning material used on substrates
or equipment or both.
Coating means, for the purposes of
this subpart, a material spray-applied to
a substrate for decorative, protective, or
functional purposes. For the purposes of
this subpart, coating does not include
the following materials:
(1) Decorative, protective, or
functional materials that consist only of
protective oils for metal, acids, bases, or
any combination of these substances.
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(2) Paper film or plastic film that may
be pre-coated with an adhesive by the
film manufacturer.
(3) Adhesives, sealants, maskants, or
caulking materials.
(4) Temporary protective coatings,
lubricants, or surface preparation
materials.
(5) In-mold coatings that are sprayapplied in the manufacture of reinforced
plastic composite parts.
Compliance date means the date by
which you must comply with this
subpart.
Deviation means any instance in
which an affected source, subject to this
subpart, or an owner or operator of such
a source fails to meet any requirement
or obligation established by this subpart.
Dry media blasting means abrasive
blasting using dry media. Dry media
blasting relies on impact and abrasion to
remove paint from a substrate.
Typically, a compressed air stream is
used to propel the media against the
coated surface.
Electrostatic application means any
method of coating application where an
electrostatic attraction is created
between the part to be coated and the
atomized paint particles.
Equipment cleaning means the use of
an organic solvent to remove coating
residue from the surfaces of paint spray
guns and other painting related
equipment, including, but not limited to
stir sticks, paint cups, brushes, and
spray booths.
Facility maintenance means, for the
purposes of this subpart, surface coating
performed as part of the routine repair
or renovation of the tools, equipment,
machinery, and structures that comprise
the infrastructure of the affected facility
and that are necessary for the facility to
function in its intended capacity.
Facility maintenance also includes
surface coating associated with the
installation of new equipment or
structures, and the application of any
surface coating as part of janitorial
activities. Facility maintenance includes
the application of coatings to stationary
structures or their appurtenances at the
site of installation, to portable buildings
at the site of installation, to pavements,
or to curbs. Facility maintenance also
includes the refinishing of mobile
equipment in the field or at the site
where they are used in service and at
which they are intended to remain
indefinitely after refinishing. Such
mobile equipment includes, but is not
limited to, farm equipment and mining
equipment for which it is not practical
or feasible to move to a dedicated
mobile equipment refinishing facility.
Such mobile equipment also includes
items, such as fork trucks, that are used
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in a manufacturing facility and which
are refinished in that same facility.
Facility maintenance does not include
surface coating of motor vehicles,
mobile equipment, or items that
routinely leave and return to the facility,
such as delivery trucks, rental
equipment, or containers used to
transport, deliver, distribute, or
dispense commercial products to
customers, such as compressed gas
canisters.
High-volume, low-pressure (HVLP)
spray equipment means spray
equipment that is permanently labeled
as such and used to apply any coating
by means of a spray gun which is
designed and operated between 0.1 and
10 pounds per square inch gauge (psig)
air atomizing pressure measured
dynamically at the center of the air cap
and at the air horns.
Initial startup means the first time
equipment is brought online in a paint
stripping or surface coating operation,
and paint stripping or surface coating is
first performed.
Materials that contain HAP or HAPcontaining materials mean, for the
purposes of this subpart, materials that
contain 0.1 percent or more by mass of
any individual HAP that is an OSHAdefined carcinogen as specified in 29
CFR 1910.1200(d)(4), or 1.0 percent or
more by mass for any other individual
HAP.
Military munitions means all
ammunition products and components
produced or used by or for the U.S.
Department of Defense (DoD) or for the
U.S. Armed Services for national
defense and security, including military
munitions under the control of the
Department of Defense, the U.S. Coast
Guard, the National Nuclear Security
Administration (NNSA), U.S.
Department of Energy (DOE), and
National Guard personnel. The term
military munitions includes: confined
gaseous, liquid, and solid propellants,
explosives, pyrotechnics, chemical and
riot control agents, smokes, and
incendiaries used by DoD components,
including bulk explosives and chemical
warfare agents, chemical munitions,
biological weapons, rockets, guided and
ballistic missiles, bombs, warheads,
mortar rounds, artillery ammunition,
small arms ammunition, grenades,
mines, torpedoes, depth charges, cluster
munitions and dispensers, demolition
charges, nonnuclear components of
nuclear weapons, wholly inert
ammunition products, and all devices
and components of any items listed in
this definition.
Miscellaneous parts and/or products
means any part or product made of
metal or plastic, or combinations of
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1765
metal and plastic. Miscellaneous parts
and/or products include, but are not
limited to, metal and plastic
components of the following types of
products as well as the products
themselves: motor vehicle parts and
accessories for automobiles, trucks,
recreational vehicles; automobiles and
light duty trucks at automobile and light
duty truck assembly plants; boats;
sporting and recreational goods; toys;
business machines; laboratory and
medical equipment; and household and
other consumer products.
Miscellaneous surface coating
operation means the collection of
equipment used to apply surface coating
to miscellaneous parts and/or products
made of metal or plastic, including
applying cleaning solvents to prepare
the surface before coating application,
mixing coatings before application,
applying coating to a surface, drying or
curing the coating after application, and
cleaning coating application equipment,
but not plating. A single surface coating
operation may include any combination
of these types of equipment, but always
includes at least the point at which a
coating material is applied to a given
part. A surface coating operation
includes all other steps (such as surface
preparation with solvent and equipment
cleaning) in the affected source where
HAP are emitted from the coating of a
part. The use of solvent to clean parts
(for example, to remove grease during a
mechanical repair) does not constitute a
miscellaneous surface coating operation
if no coatings are applied. A single
affected source may have multiple
surface coating operations. Surface
coatings applied to wood, leather,
rubber, ceramics, stone, masonry, or
substrates other than metal and plastic
are not considered miscellaneous
surface coating operations for the
purposes of this subpart.
Mobile equipment means any device
that may be drawn and/or driven on a
roadway including, but not limited to,
heavy-duty trucks, truck trailers, fleet
delivery trucks, buses, mobile cranes,
bulldozers, street cleaners, agriculture
equipment, motor homes, and other
recreational vehicles (including
camping trailers and fifth wheels).
Motor vehicle means any selfpropelled vehicle, including, but not
limited to, automobiles, light duty
trucks, golf carts, vans, and motorcycles.
Motor vehicle and mobile equipment
surface coating means the spray
application of coatings to assembled
motor vehicles or mobile equipment.
For the purposes of this subpart, it does
not include the surface coating of motor
vehicle or mobile equipment parts or
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subassemblies at a vehicle assembly
plant or parts manufacturing plant.
Non-HAP solvent means, for the
purposes of this subpart, a solvent
(including thinners and cleaning
solvents) that contains less than 0.1
percent by mass of any individual HAP
that is an OSHA-defined carcinogen as
specified in 29 CFR 1910.1200(d)(4) and
less than 1.0 percent by mass for any
other individual HAP.
Paint stripping and/or miscellaneous
surface coating source or facility means
any shop, business, location, or parcel
of land where paint stripping or
miscellaneous surface coating
operations are conducted.
Paint stripping means the removal of
dried coatings from wood, metal,
plastic, and other substrates. A single
affected source may have multiple paint
stripping operations.
Painter means any person who spray
applies coating.
Plastic refers to substrates containing
one or more resins and may be solid,
porous, flexible, or rigid. Plastics
include fiber reinforced plastic
composites.
Protective oil means organic material
that is applied to metal for the purpose
of providing lubrication or protection
from corrosion without forming a solid
film. This definition of protective oil
includes, but is not limited to,
lubricating oils, evaporative oils
(including those that evaporate
completely), and extrusion oils.
Quality control activities means
surface coating or paint stripping
activities that meet all of the following
criteria:
(1) The activities associated with a
surface coating or paint stripping
operation are intended to detect and
correct defects in the final product by
selecting a limited number of samples
from the operation, and comparing the
samples against specific performance
criteria.
(2) The activities do not include the
production of an intermediate or final
product for sale or exchange for
commercial profit; for example, parts
that are surface coated or stripped are
not sold and do not leave the facility.
(3) The activities are not a normal part
of the surface coating or paint stripping
operation; for example, they do not
include color matching activities
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performed during a motor vehicle
collision repair.
(4) The activities do not involve
surface coating or stripping of the tools,
equipment, machinery, and structures
that comprise the infrastructure of the
affected facility and that are necessary
for the facility to function in its
intended capacity; that is, the activities
are not facility maintenance.
Research and laboratory activities
means surface coating or paint stripping
activities that meet one of the following
criteria:
(1) Conducted at a laboratory to
analyze air, soil, water, waste, or
product samples for contaminants, or
environmental impact.
(2) Activities conducted to test more
efficient production processes,
including alternative paint stripping or
surface coating materials or application
methods, or methods for preventing or
reducing adverse environmental
impacts, provided that the activities do
not include the production of an
intermediate or final product for sale or
exchange for commercial profit.
(3) Activities conducted at a research
or laboratory facility that is operated
under the close supervision of
technically trained personnel, the
primary purpose of which is to conduct
research and development into new
processes and products and that is not
engaged in the manufacture of products
for sale or exchange for commercial
profit.
Solvent means a fluid containing
organic compounds used to perform
paint stripping, surface prep, or
cleaning of surface coating equipment.
Space Vehicle means vehicles
designed to travel beyond the limit of
the earth’s atmosphere, including but
not limited to satellites, space stations,
and the Space Shuttle System
(including orbiter, external tanks, and
solid rocket boosters).
Spray-applied coating operations
means coatings that are applied using a
hand-held device that creates an
atomized mist of coating and deposits
the coating on a substrate. For the
purposes of this subpart, spray-applied
coatings do not include the following
materials or activities:
(1) Coatings applied from a hand-held
device with a paint cup capacity that is
equal to or less than 3.0 fluid ounces (89
cubic centimeters).
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(2) Surface coating application using
powder coating, hand-held, nonrefillable aerosol containers, or nonatomizing application technology,
including, but not limited to, paint
brushes, rollers, hand wiping, flow
coating, dip coating, electrodeposition
coating, web coating, coil coating,
touch-up markers, or marking pens.
(3) Thermal spray operations (also
known as metallizing, flame spray,
plasma arc spray, and electric arc spray,
among other names) in which solid
metallic or non-metallic material is
heated to a molten or semi-molten state
and propelled to the work piece or
substrate by compressed air or other gas,
where a bond is produced upon impact.
Surface preparation or Surface prep
means use of a cleaning material on a
portion of or all of a substrate prior to
the application of a coating.
Target HAP are compounds of
chromium (Cr), lead (Pb), manganese
(Mn), nickel (Ni), or cadmium (Cd).
Target HAP containing coating means
a spray-applied coating that contains
any individual target HAP that is an
Occupational Safety and Health
Administration (OSHA)–defined
carcinogen as specified in 29 CFR
1910.1200(d)(4) at a concentration
greater than 0.1 percent by mass, or
greater than 1.0 percent by mass for any
other individual target HAP compound.
For the purpose of determining whether
materials you use contain the target
HAP compounds, you may rely on
formulation data provided by the
manufacturer or supplier, such as the
material safety data sheet (MSDS), as
long as it represents each target HAP
compound in the material that is
present at 0.1 percent by mass or more
for OSHA-defined carcinogens as
specified in 29 CFR 1910.1200(d)(4) and
at 1.0 percent by mass or more for other
target HAP compounds.
Transfer efficiency means the amount
of coating solids adhering to the object
being coated divided by the total
amount of coating solids sprayed,
expressed as a percentage. Coating
solids means the nonvolatile portion of
the coating that makes up the dry film.
Truck bed liner coating means any
coating, excluding color coats, labeled
and formulated for application to a
truck bed to protect it from surface
abrasion.
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TABLE 1 TO SUBPART HHHHHH OF PART 63.—APPLICABILITY OF GENERAL PROVISIONS TO SUBPART HHHHHH OF
PART 63
Citation
Subject
Applicable to
subpart
HHHHHH
§ 63.1(a)(1)–(12) ......................................
§ 63.1(b)(1)–(3) ........................................
General Applicability ..............................
Initial Applicability Determination ...........
Yes.
Yes ...................
§ 63.1(c)(1) ..............................................
§ 63.1(c)(2) ..............................................
Applicability After Standard Established
Applicability of Permit Program for Area
Sources.
Yes.
Yes ...................
§ 63.1(c)(5) ..............................................
§ 63.1(e) ...................................................
Notifications ............................................
Applicability of Permit Program to Major
Sources Before Relevant Standard is
Set.
Yes.
No .....................
§ 63.2 .......................................................
Definitions ..............................................
Yes ...................
§ 63.3(a)–(c) ............................................
§ 63.4(a)(1)–(5) ........................................
§ 63.4(b)–(c) ............................................
§ 63.5 .......................................................
Units and Abbreviations .........................
Prohibited Activities ................................
Circumvention/Fragmentation ................
Construction/Reconstruction of major
sources.
Compliance With Standards and Maintenance Requirements—Applicability.
Compliance Dates for New and Reconstructed Sources.
Compliance Dates for Existing Sources
Yes.
Yes.
Yes.
No .....................
Yes.
No .....................
§ 63.6(i)(1)–(16) .......................................
§ 63.6(j) ....................................................
§ 63.7 .......................................................
Operation and Maintenance ..................
Startup, Shutdown, and Malfunction
Plan.
Compliance Except During Startup,
Shutdown, and Malfunction.
Methods for Determining Compliance ...
Use of an Alternative Standard .............
Compliance With Opacity/Visible Emission Standards.
Extension of Compliance .......................
Presidential Compliance Exemption ......
Performance Testing Requirements ......
§ 63.8 .......................................................
Monitoring Requirements .......................
No .....................
§ 63.9(a)–(d) ............................................
Notification Requirements ......................
Yes ...................
§ 63.9(e) ...................................................
Notification of Performance Test ...........
No .....................
§ 63.9(f) ....................................................
No .....................
§ 63.9(g) ...................................................
Notification of Visible Emissions/Opacity
Test.
Additional Notifications When Using
CMS.
§ 63.9(h) ...................................................
Notification of Compliance Status ..........
No .....................
§ 63.9(i) ....................................................
§ 63.9(j) ....................................................
Adjustment of Submittal Deadlines ........
Change in Previous Information ............
Yes.
Yes ...................
§ 63.10(a) .................................................
Recordkeeping/Reporting—Applicability
and General Information.
General Recordkeeping Requirements ..
Yes.
No .....................
§ 63.10(b)(2)(xii) ......................................
§ 63.10(b)(2)(xiii) ......................................
Recordkeeping Relevant to Startup,
Shutdown, and Malfunction Periods
and CMS.
Waiver of recordkeeping requirements ..
Alternatives to the relative accuracy test
§ 63.10(b)(2)(xiv) .....................................
Records supporting notifications ............
Yes.
§ 63.6(a) ...................................................
§ 63.6(b)(1)–(7) ........................................
§ 63.6(c)(1)–(5) ........................................
§ 63.6(e)(1)–(2) ........................................
§ 63.6(e)(3) ..............................................
§ 63.6(f)(1) ...............................................
§ 63.6(f)(2)–(3) .........................................
§ 63.6(g)(1)–(3) ........................................
§ 63.6(h) ...................................................
§ 63.10(b)(1) ............................................
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Explanation
Applicability of subpart HHHHHH is also
specified in § 63.11170.
(63.11174(b) of Subpart HHHHHH exempts area sources from the obligation to obtain Title V operating permits.
(63.11174(b) of Subpart HHHHHH exempts area sources from the obligation to obtain Title V operating permits.
Additional definitions are specified in
§ 63.11180.
Subpart HHHHHH applies only to area
sources.
Yes.
Yes ...................
Yes ...................
§ 63.11172 specifies the compliance
dates.
§ 63.11172 specifies the compliance
dates.
No startup, shutdown, and malfunction
plan is required by subpart HHHHHH.
Yes.
Yes.
Yes.
No .....................
Yes.
Yes.
No .....................
No .....................
Yes ...................
Yes.
No .....................
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Subpart HHHHHH does not establish
opacity or visible emission standards.
No performance testing is required by
subpart HHHHHH.
Subpart HHHHHH does not require the
use of continuous monitoring systems.
§ 63.11175 specifies notification requirements.
Subpart HHHHHH does not require performance tests.
Subpart HHHHHH does not have opacity or visible emission standards.
Subpart HHHHHH does not require the
use of continuous monitoring systems.
§ 63.11175 specifies the dates and required content for submitting the notification of compliance status.
§ 63.11176(a) specifies the dates for
submitting the notification of changes
report.
Additional requirements are specified in
§ 63.11177.
Subpart HHHHHH does not require
startup, shutdown, and malfunction
plans, or CMS.
Subpart HHHHHH does not require the
use of CEMS.
09JAR2
1768
Federal Register / Vol. 73, No. 6 / Wednesday, January 9, 2008 / Rules and Regulations
TABLE 1 TO SUBPART HHHHHH OF PART 63.—APPLICABILITY OF GENERAL PROVISIONS TO SUBPART HHHHHH OF
PART 63—Continued
Applicable to
subpart
HHHHHH
Citation
Subject
§ 63.10(b)(3) ............................................
Recordkeeping Requirements for Applicability Determinations.
Additional Recordkeeping Requirements
for Sources with CMS.
General Reporting Requirements ..........
Yes ...................
Report of Performance Test Results,
and Opacity or Visible Emissions Observations.
Progress Reports for Sources With
Compliance Extensions.
Startup, Shutdown, and Malfunction Reports.
No .....................
Additional Reporting requirements for
Sources with CMS.
Recordkeeping/Reporting Waiver ..........
Control Device Requirements/Flares .....
No .....................
State Authority and Delegations ............
Addresses of State Air Pollution Control
Agencies and EPA Regional Offices.
Incorporation by Reference ...................
Yes.
Yes.
Availability of Information/Confidentiality
Performance
Track
Provisions—reduced reporting.
Performance
Track
Provisions—reduced reporting.
Yes.
Yes.
§ 63.10(c) .................................................
§ 63.10(d)(1) ............................................
§ 63.10(d)(2)–(3) ......................................
§ 63.10(d)(4) ............................................
§ 63.10(d)(5) ............................................
§ 63.10(e) .................................................
§ 63.10(f) ..................................................
§ 63.11 .....................................................
§ 63.12 .....................................................
§ 63.13 .....................................................
§ 63.14 .....................................................
§ 63.15 .....................................................
§ 63.16(a) .................................................
§ 63.16(b)–(c) ..........................................
No .....................
Yes ...................
Explanation
Subpart HHHHHH does not require the
use of CMS.
Additional requirements are specified in
§ 63.11176.
Subpart HHHHHH does not require performance tests, or opacity or visible
emissions observations.
Yes.
No .....................
Yes.
No .....................
Yes ...................
No .....................
Subpart HHHHHH does not require
startup, shutdown, and malfunction
reports.
Subpart HHHHHH does not require the
use of CMS.
Subpart HHHHHH does not require the
use of flares.
Test methods for measuring paint booth
filter efficiency and spray gun transfer
efficiency in § 63.11173(e)(2) and (3)
are incorporated and included in
§ 63.14.
Subpart HHHHHH does not establish
numerical emission limits.
[FR Doc. E7–24718 Filed 1–8–08; 8:45 am]
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09JAR2
]]>Agencies
[Federal Register Volume 73, Number 6 (Wednesday, January 9, 2008)]
[Rules and Regulations]
[Pages 1738-1768]
From the Federal Register Online via the Government Printing Office [www.gpo.gov]
[FR Doc No: E7-24718]
[[Page 1737]]
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Part III
Environmental Protection Agency
-----------------------------------------------------------------------
40 CFR Part 63
National Emission Standards for Hazardous Air Pollutants: Paint
Stripping and Miscellaneous Surface Coating Operations at Area Sources;
Final Rule
Federal Register / Vol. 73, No. 6 / Wednesday, January 9, 2008 /
Rules and Regulations
[[Page 1738]]
-----------------------------------------------------------------------
ENVIRONMENTAL PROTECTION AGENCY
40 CFR Part 63
[EPA-HQ-OAR-2005-0526; FRL-8508-6]
RIN 2060-AN21
National Emission Standards for Hazardous Air Pollutants: Paint
Stripping and Miscellaneous Surface Coating Operations at Area Sources
AGENCY: Environmental Protection Agency (EPA).
ACTION: Final rule.
-----------------------------------------------------------------------
SUMMARY: This action promulgates national emission standards for
hazardous air pollutants (NESHAP) for area sources engaged in paint
stripping, surface coating of motor vehicles and mobile equipment, and
miscellaneous surface coating operations. EPA has listed ``Paint
Stripping,'' ``Plastic Parts and Products (Surface Coating),'' and
``Autobody Refinishing Paint Shops'' as area sources of hazardous air
pollutants (HAP) that contribute to the risk to public health in urban
areas under the Integrated Urban Air Toxics Strategy. This final rule
includes emissions standards that reflect the generally available
control technology or management practices in each of these area source
categories. ``Plastic Parts and Products (Surface Coating)'' has been
renamed ``Miscellaneous Surface Coating,'' and ``Autobody Refinishing
Paint Shops'' has been renamed ``Motor Vehicle and Mobile Equipment
Surface Coating'' to more accurately reflect the scope of these source
categories.
DATES: This final rule is effective on January 9, 2008. The
incorporation by reference of certain publications listed in this rule
is approved by the Director of the Federal Register as of January 9,
2008.
ADDRESSES: The EPA has established a docket for this action under
Docket ID No. EPA-HQ-OAR-2005-0526. All documents in the docket are
listed in the Federal Docket Management System index at https://
www.regulations.gov. Although listed in the index, some information is
not publicly available, e.g., confidential business information or
other information whose disclosure is restricted by statute. Certain
other material, such as copyrighted material, is not placed on the
Internet and will be publicly available only in hard copy form.
Publicly available docket materials are available either electronically
through www.regulations.gov or in hard copy at the EPA Docket Center,
Public Reading Room, EPA West, Room 3334, 1301 Constitution Ave., NW.,
Washington, DC. The Public Reading Room is open from 8:30 a.m. to 4:30
p.m., Monday through Friday, excluding legal holidays. The telephone
number for the Public Reading Room is (202) 566-1744, and the telephone
number for the Air Docket is (202) 566-1742.
FOR FURTHER INFORMATION CONTACT: For technical information concerning
the paint stripping standards, contact Mr. Warren Johnson, Office of
Air Quality Planning and Standards, Sector Policies and Programs
Division, Natural Resources and Commerce Group (E143-03), U.S.
Environmental Protection Agency, Research Triangle Park, North Carolina
27711, telephone (919) 541-5124, or e-mail at Johnson.warren@epa.gov.
For technical information concerning the surface coating standards,
contact Ms. Kim Teal, Office of Air Quality Planning and Standards,
Sector Policies and Programs Division, Natural Resources and Commerce
Group (E143-03), U.S. Environmental Protection Agency, Research
Triangle Park, North Carolina 27711, telephone (919) 541-5580, or e-
mail at teal.kim@epa.gov.
SUPPLEMENTARY INFORMATION:
Outline
The information presented in this preamble is organized as follows:
I. General Information
A. Does This Action Apply to Me?
B. Where Can I Get a Copy of This Document?
C. Judicial Review
II. Background Information for Final Area Source Standards
III. Summary of Final Rule
A. Applicability
B. Compliance Dates
C. Requirements for Paint Stripping Operations
D. Surface Coating Requirements
E. Notifications, Recordkeeping, and Reporting
IV. Summary of Changes Since Proposal
A. Applicability
B. Compliance Dates
C. Requirements for Paint Stripping Operations
D. Requirements for Surface Coating Operations
E. Notifications, Recordkeeping, and Reporting
V. Summary of Comments and Responses
A. Applicability
B. Compliance date
C. Requirements for Paint Stripping Operations
D. Authority to Regulate Miscellaneous Surface Coating
Operations
E. Basis of Surface Coating Standards
F. Training Requirements
G. Spray Gun Requirements
H. Spray Booths
I. Spray Booth Filters
J. Spray Gun Washers
K. Reporting, Recordkeeping, and Compliance
L. Cost and Economic Impacts
VI. Summary of Environmental, Energy, and Economic Impacts
A. What are the air impacts?
B. What are the cost impacts?
C. What are the economic impacts?
D. What are the non-air health, environmental, and energy
impacts?
VII. Statutory and Executive Order Reviews
A. Executive Order 12866: Regulatory Planning and Review
B. Paperwork Reduction Act
C. Regulatory Flexibility Act
D. Unfunded Mandates Reform Act
E. Executive Order 13132: Federalism
F. Executive Order 13175: Consultation and Coordination With
Indian Tribal Governments
G. Executive Order 13045: Protection of Children From
Environmental Health and Safety Risks
H. Executive Order 13211: Actions Concerning Regulations That
Significantly Affect Energy Supply, Distribution, or Use
I. National Technology Transfer Advancement Act
J. Executive Order 12898: Federal Actions to Address
Environmental Justice in Minority Populations and Low-Income
Populations
K. Congressional Review Act
I. General Information
A. Does this action apply to me?
Categories and entities potentially affected by the rule are paint
stripping operations using methylene chloride (MeCl)-containing paint
strippers, motor vehicle and mobile equipment surface coating
operations, and miscellaneous surface coating operations located at
area sources. An area source is defined in the Clean Air Act (CAA)
section 112(a) as any stationary source of HAP that is not a major
source, and a major source is defined as any stationary source or group
of stationary sources located within a contiguous area and under common
control that emits, or has the potential to emit, considering controls,
in the aggregate, 10 tons per year (tpy) or more of any single HAP or
25 tpy or more of any combination of HAP.
For the purposes of this rule, paint stripping operations are those
that perform paint stripping using MeCl for the removal of dried paint
(including, but not limited to, paint, enamel, varnish, shellac, and
lacquer) from wood, metal, plastic, and other substrates at area
sources as either:
(1) an independent activity where paint stripping is the principal
activity at the source, or
(2) an activity incidental to the principal activity (e.g., surface
coating, inspection, maintenance, etc.) at the source.
[[Page 1739]]
For co-located operations, EPA considers paint stripping activities
that use one ton or less to be incidental to the principal activity and
those using more than one ton to be performing paint stripping as a
principal activity.
Motor vehicle and mobile equipment surface coating operations
involve the spray application of coatings at area sources to
automobiles, light trucks, heavy duty trucks, buses, construction
equipment, self-propelled vehicles and equipment that may be drawn and/
or driven on a roadway.
Miscellaneous surface coating operations are those that involve the
spray application of coatings that contain compounds of chromium (Cr),
lead (Pb), manganese (Mn), nickel (Ni), or cadmium (Cd), herein after
referred to as target HAP, to miscellaneous parts and/or products made
of metal or plastic, or combinations of metal and plastic.
In general, the facilities and entities potentially affected by
some or all of the rule are covered under the North American Industrial
Classification System (NAICS) codes listed in the following table.
However, facilities classified under other NAICS codes may be subject
to the standards if they meet the applicability criteria.
------------------------------------------------------------------------
Examples of
Category NAICS potentially regulated
entities
------------------------------------------------------------------------
Aerospace Equipment........... 336413, 336414, Aircraft engines,
336415, 54171. aircraft parts,
aerospace ground
equipment.
Automobiles and Automobile 336111, 336211, Engine parts, vehicle
Parts. 336312, 33632, parts and
33633, 33634, accessories, brakes,
33637, 336399, axles, etc. Motor
441110, 441120, vehicle body
811121. manufacturing and
automobile assembly
plants. New and used
car dealers.
Automotive body,
paint, and interior
repair and
maintenance.
Chemical Manufacturing and 325110, 325120, Petrochemicals,
Product Preparation. 325131, 325188, Industrial Gases,
325192, 325193, Inorganic Dyes and
325199, 325998. Pigments, Basic
Inorganic and
Organic Chemicals,
Cyclic Crude and
Intermediates, Ethyl
Alcohol,
Miscellaneous
Chemical Production
and Preparation.
Extruded Aluminum............. 331316, 331524, Extruded aluminum,
332321, 332323. architectural
components, coils,
rod, and tubes.
Government.................... Not Applicable... Government entities,
besides Department
of Defense, that
maintain vehicles,
such as school
buses, police and
emergency vehicles,
transit buses, or
highway maintenance
vehicles.
Heavy Equipment............... 33312, 333611.... Tractors, earth
moving machinery.
Job Shops..................... 332722, 332813, Manufacturing
332991, 334119, industries not
336413, 339999. elsewhere classified
(e.g., bezels,
consoles, panels,
lenses).
Large Trucks and Buses........ 33612, 336211.... Large trucks and
buses.
Metal Buildings............... 332311........... Prefabricated metal
buildings, carports,
docks, dwellings,
greenhouses, panels
for buildings.
Metal Containers.............. 33242, 81131, Drums, kegs, pails,
322214, 331513. shipping containers.
Metal Pipe and Foundry........ 331111, 331513, Plate, tube, rods,
33121, 331221, nails, etc.
331511.
Rail Transportation........... 33651, 336611, Brakes, engines,
482111. freight cars,
locomotives.
Recreational Vehicles and 321991, 3369, Mobile Homes.
Other Transportation 331316, 336991, Motorcycles, motor
Equipment. 336211, 336112, homes, semi
336212, 336213, trailers, truck
336214, 336399, trailers.
336999, 33635, Miscellaneous
56121, 8111, transportation
56211. related equipment
and parts. Travel
trailer and camper
manufacturing.
Rubber-to-Metal Products...... 326291, 326299... Engine mounts,
rubberized tank
tread, harmonic
balancers.
Structural Steel.............. 332311, 332312... Joists, railway
bridge sections,
highway bridge
sections.
Waste Treatment, Disposal, and 562211, 562212, Hazardous Waste
Materials Recovery. 562213, 562219, Treatment and
562920. Disposal, Solid
Waste Landfill,
Solid Waste
Combustors and
Incinerators, Other
Nonhazardous Waste
Treatment and
Disposal, Materials
Recovery.
Other Industrial and 211112........... Natural Gas Liquid
Commercial. Extraction.
311942........... Spices and Extracts.
331311........... Alumina Refining.
337214, 811420... Office furniture,
except wood.
Reupholstery and
Furniture Repair.
325211........... Plastics Material
Synthetic Resins,
and Nonvulcanizable
Elastomers.
325510........... Paint and Coating
Manufacturing.
32614, 32615..... Plastic foam products
(e.g., pool floats,
wrestling mats, life
jackets).
326199........... Plastic products not
elsewhere classified
(e.g., name plates,
coin holders,
storage boxes,
license plate
housings, cosmetic
caps, cup holders).
333313........... Office machines.
33422............ Radio and television
broadcasting and
communications
equipment (e.g.,
cellular
telephones).
339111, 339112... Medical equipment and
supplies.
33992............ Sporting and athletic
goods.
33995............ Signs and advertising
specialties.
336612........... Boat building.
713930........... Marinas, including
boat repair yards.
------------------------------------------------------------------------
This table is not intended to be exhaustive, but rather provides a
guide for readers regarding entities likely to be regulated by the
rule. Many types of entities that perform stripping and/or coating that
are not listed in this table would be potentially affected by the rule.
Additionally, some entities that are classified under the NAICS codes
in the table may not be subject if they are not performing the
operations described in the applicability criteria in Sec. Sec.
63.11169 and 63.11170 of the rule. To determine whether your facility,
company, business, organization, etc., is subject to this action, you
should examine the applicability criteria in Sec. Sec. 63.11169 and
63.11170 of the rule. If you have any
[[Page 1740]]
questions regarding the applicability of this action to a particular
entity, consult the person listed in the preceding FOR FURTHER
INFORMATION CONTACT section.
B. Where can I get a copy of this document?
In addition to being available in the docket, an electronic copy of
this final action will also be available on the Worldwide Web (WWW)
through the Technology Transfer Network (TTN). A copy of this final
action will be posted on the TTN's policy and guidance page for newly
proposed or promulgated rules at the following address: https://
www.epa.gov/ttn/oarpg/. The TTN provides information and technology
exchange in various areas of air pollution control.
C. Judicial Review
Under section 307(b)(1) of the CAA, judicial review of this final
rule is available only by filing a petition for review in the U.S.
Court of Appeals for the District of Columbia Circuit by March 10,
2008. Under section 307(d)(7)(B) of the CAA, only an objection to the
rule that was raised with reasonable specificity during the period for
public comment can be raised during judicial review. Moreover, under
section 307(b)(2) of the CAA, the requirements established by this
final rule may not be challenged separately in any civil or criminal
proceedings brought by EPA to enforce these requirements.
II. Background Information for Final Area Source Standards
Section 112(k)(3)(B) of the CAA requires EPA to identify at least
30 HAP, which, as the result of emissions of area sources, pose the
greatest threat to public health in urban areas. Consistent with this
provision, EPA identified the 30 HAP that pose the greatest potential
health threat in urban areas in 1999. These HAP are referred to as the
``Urban HAP'' as part of the Integrated Urban Air Toxics Strategy. See
64 FR 38715, July 19, 1999. Section 112(c)(3) requires EPA to list
sufficient categories or subcategories of area sources to ensure that
area sources representing 90 percent of the emissions of the 30 Urban
HAP are subject to regulation. EPA listed the source categories that
account for 90 percent of the Urban HAP emissions in the Integrated
Urban Air Toxics Strategy.\1\ Sierra Club sued EPA, alleging a failure
to complete standards for the area source categories listed pursuant to
CAA sections 112(c)(3) and (k)(3)(B) within the time frame specified by
the statute. See Sierra Club v. Johnson, No. 01-1537, (D.D.C.). On
March 31, 2006, the court issued an order requiring EPA to promulgate
standards under CAA section 112(d) for those area source categories
listed pursuant to CAA section 112(c)(3).
---------------------------------------------------------------------------
\1\ Since its publication in the Integrated Urban Air Toxics
Strategy in 1999, EPA has revised the area source category list
several times.
---------------------------------------------------------------------------
Among other things, the order as amended on October 15, 2007,
requires that, by December 15, 2007, EPA complete standards for nine
area source categories. On September 17, 2007, EPA proposed NESHAP for
Paint Stripping and Miscellaneous Surface Coating Operations at Area
Sources. The proposal covered the following three listed area source
categories that were selected to meet the December 15, 2007, deadline:
(1) Paint Stripping, (2) Plastic Parts and Products (Surface Coating),
and (3) Autobody Refinishing Paint Shops. See 72 FR 52958. This final
NESHAP completes the required regulatory action for three area source
categories.
Under CAA section 112(d)(5), the Administrator may, in lieu of
standards requiring maximum achievable control technology (MACT) under
section 112(d)(2), elect to promulgate standards or requirements for
area sources ``which provide for the use of generally available control
technologies (GACT) or management practices by such sources to reduce
emissions of hazardous air pollutants.'' As explained in the proposed
NESHAP, EPA is setting standards for these area source categories
pursuant to section 112(d)(5). See 72 FR 52958, September 17, 2007.
III. Summary of Final Rule
A. Applicability
We have revised the rule since proposal to clarify the sources to
which it applies. In order to clarify the applicability of the final
rule and the standards that apply, Sec. Sec. 63.11169 and 63.11170 of
the final rule distinguish among the three separate area source
categories: paint stripping, motor vehicle and mobile equipment surface
coating, and miscellaneous surface coating. The rule contains separate
provisions describing the requirements for each category.
The final subpart does not apply to any of the following activities
listed in Sec. 63.11169:
(1) Surface coating or paint stripping performed on site at
installations owned or operated by the Armed Forces of the United
States (including the Coast Guard and the National Guard of any State),
the National Aeronautics and Space Administration, or the National
Nuclear Security Administration.
(2) Surface coating or paint stripping of military munitions, as
defined in Sec. 63.11180, manufactured by or for the Armed Forces of
the United States (including the Coast Guard and the National Guard of
any State) or equipment directly and exclusively used for the purposes
of transporting military munitions.
(3) Surface coating or paint stripping performed by individuals on
their personal vehicles, possessions, or property, either as a hobby or
for maintenance of their personal vehicles, possessions, or property.
This subpart also does not apply when these operations are performed by
individuals for others without compensation. An individual who spray
applies surface coating of more than two motor vehicles or pieces of
mobile equipment per year is subject to the requirements in this
subpart that pertain to motor vehicle and mobile equipment surface
coating regardless of whether compensation is received.
(4) Surface coating or paint stripping that meets the definition of
``research and laboratory activities'' in Sec. 63.11180 of the final
rule.
(5) Surface coating or paint stripping that meets the definition of
``quality control activities'' in Sec. 63.11180 of the final rule.
(6) Surface coating or paint stripping that is specifically covered
by another area source NESHAP.
Section 63.11170 specifies the operations that are subject to the
final standards. For paint stripping, the final rule applies to you if
you use chemical strippers that contain MeCl to remove dried paint
(including, but not limited to, paint, enamel, varnish, shellac, and
lacquer) from wood, metal, plastic, and other substrates.
The final rule also applies to you if you spray apply coatings to
motor vehicles or mobile equipment for the purposes of finishing or
refinishing, and clarifies that the standards apply to all sources
performing these operations using spray-applied coatings, including
mobile refinishing operations, except those operations that meet the
definition of facility maintenance in Sec. 63.11180. Finally, the rule
applies if you spray apply coatings that contain the target HAP to
plastic or metal parts and products (other than motor vehicles and
mobile equipment), except those operations that meet the definition of
facility maintenance or that are surface coating of a space vehicle. If
you perform miscellaneous surface coating operations, but do not use
any coatings
[[Page 1741]]
that contain the target HAP, the rule does not apply.
The final rule applies to all motor vehicle and mobile equipment
surface coating operations. However, if you are the owner or operator
of a motor vehicle or mobile equipment surface coating operation, you
may petition the Administrator for an exemption from this subpart if
you can demonstrate, to the satisfaction of the Administrator, that you
spray apply no coatings that contain the target HAP. Petitions must
include a description of the coatings that you spray apply and your
certification that you do not spray apply any coatings containing the
target HAP. If circumstances change such that you intend to spray apply
coatings containing the target HAP, you must submit the initial
notification required by 63.11175 and comply with the requirements of
this subpart.
Coatings are considered to contain the target HAP if they contain
any individual target HAP that is an Occupational Safety and Health
Administration (OSHA)-defined carcinogen as specified in 29 CFR
1910.1200(d)(4) at a concentration greater than 0.1 percent by mass or
greater than 1.0 percent by mass for any other individual target HAP.
For the purpose of determining whether materials you use contain the
target HAP (that is, compounds of chromium (Cr), lead (Pb), manganese
(Mn), nickel (Ni), or cadmium (Cd)), you may rely on formulation data
provided by the manufacturer or supplier, such as the material safety
data sheet (MSDS), as long as it represents each target HAP compound in
the material that is present at 0.1 percent by mass or more for OSHA-
defined carcinogens and at 1.0 percent by mass or more for other target
HAP compounds.
The final rule also includes in Sec. 63.11180 definitions of
``administrator,'' ``coating,'' ``facility maintenance,'' ``quality
control activities,'' ``research and laboratory activities,'' ``space
vehicle,'' and ``spray application of coatings'' related to these
applicability provisions.
``Administrator'' means the Administrator of the U.S. Environmental
Protection Agency or the State or local agency that is granted
delegation for implementation of this subpart.
``Coating'' is defined as a material spray-applied to a substrate
for decorative, protective, or functional purposes. As specified in the
definition in the final rule, ``coating'' does not include the
following materials:
(1) Decorative, protective, or functional materials that consist
only of protective oils for metal, acids, bases, or any combination of
these substances.
(2) Paper film or plastic film that may be pre-coated with an
adhesive by the film manufacturer.
(3) Adhesives, sealants, maskants, or caulking materials.
(4) Temporary protective coatings, lubricants, or surface
preparation materials.
(5) In-mold coatings that are spray-applied in the manufacture of
reinforced plastic composite parts.
``Facility maintenance'' is defined to include architectural
surface coating activities on stationary structures and process
equipment. It is also defined to include the surface coating of mobile
equipment in the field, such as farming or mining equipment, or mobile
equipment coated at a site where it is used, such as a fork truck
coated at a manufacturing facility. The definition of facility
maintenance specifically excludes surface coating of motor vehicles,
mobile equipment, or items that routinely leave and return to the
facility, such as delivery trucks, rental equipment, or containers used
to transport or deliver products to customers, such as compressed gas
canisters. The surface coating of these items (e.g., courier vehicles
or compressed gas canisters) that routinely leave and return to the
facility will be subject to the standards.
``Quality control activities'' has been defined to mean surface
coating or paint stripping activities that meet all of the following
criteria:
(1) The activities, associated with a surface coating or paint
stripping operation, to detect and correct defects in the final product
through selection of limited samples from the operation, and comparison
of the samples against specific performance criteria.
(2) The activities do not include the production of an intermediate
or final product for sale or exchange for commercial profit; for
example, parts that are surface coated or stripped are not sold.
(3) The activities are not a normal part of the miscellaneous
surface coating or paint stripping operation, e.g., they do not include
color matching activities performed on motor vehicles as part of
collision repair activities.
(4) The activities do not involve surface coating or stripping of
the tools, equipment, machinery, and structures that comprise the
infrastructure of the affected facility and that are necessary for the
facility to function in its intended capacity, e.g., the activities are
not facility maintenance.
``Research and laboratory activities'' has been defined to mean
surface coating or paint stripping activities whose primary purpose is
to conduct research and development into new processes and products,
that are performed under the close supervision of technically trained
personnel and do not include the manufacture of intermediate or final
products for commercial sale in commerce. Such activities are
ordinarily conducted in a dedicated area of a facility (such as a
dedicated room or paint booth), or in a separate facility. Research and
laboratory activities include, but are not limited to the following:
(1) Activities conducted to develop more efficient production
processes, including alternative paint stripping or surface coating
materials or application methods, or methods for preventing or reducing
adverse environmental impacts.
(2) Activities conducted at a laboratory to analyze air, soil,
water, waste, or product samples for contaminants or environmental
impact or to develop revised production processes to limit
environmental effects.
``Space Vehicle'' has been defined to mean vehicles designed to
travel beyond the limit of the earth's atmosphere, such as satellites,
space stations, and the Space Shuttle System (including orbiter,
external tanks, and solid rocket boosters).
``Spray-applied coating operations'' has been defined to mean
coatings that are applied using a hand-held device that creates an
atomized mist of coating and deposits the coating on a substrate. As
specified in the definition in the final rule, the following materials
or activities are not considered spray-applied coatings:
(1) Coatings applied from a hand-held device with a paint cup
capacity that is equal to or less than 3.0 fluid ounces (89 cubic
centimeters (cc)).
(2) Surface coating application using powder coating, hand-held,
non-refillable aerosol containers, or non-atomizing application
technology, including, but not limited to, paint brushes, rollers, hand
wiping, flow coating, dip coating, electrodeposition coating, web
coating, coil coating, touch-up markers, or marking pens.
(3) Thermal spray operations (also known as metallizing, flame
spray, plasma arc spray, and electric arc spray, among other names) in
which solid metallic or non-metallic material is heated to a molten or
semi-molten state and propelled to the work piece or substrate by
compressed air or other gas, where a bond is produced upon impact.
[[Page 1742]]
B. Compliance Dates
New sources must comply with the requirements of the final rule
upon startup of operations, but no earlier than the effective date of
this notice. Existing sources must comply no later than three years
from the effective date of this notice.
C. Requirements for Paint Stripping Operations
All owners and operators of regulated sources conducting paint
stripping and using MeCl-containing paint stripper must implement
management practices that reduce emissions of MeCl by minimizing
evaporative losses of MeCl. The MeCl management practices involve only
using a MeCl-containing paint stripper when an alternative on site
stripping method or material is incapable of accomplishing the work as
determined by the operator. Alternative methods to reduce MeCl usage
may include:
(1) Non- or low-MeCl-containing chemical strippers;
(2) Mechanical stripping;
(3) Blasting (including dry or wet media); or
(4) Thermal and cryogenic decomposition.
The management practices required also include optimizing stripper
application conditions, reducing exposure of stripper to the air, and
practicing proper storage and disposal of materials containing MeCl.
Owners and operators must also maintain records of annual usage of
strippers containing MeCl.
In addition to the management practices, sources that use more than
one ton of MeCl per year need to develop and implement a MeCl
minimization plan. This must be a written plan including criteria to
evaluate the necessity of MeCl in the stripping operations and whether
alternatives are feasible. It must also describe the management
techniques that will be used to minimize MeCl emissions when MeCl is
needed in the paint stripping operation.
The MeCl minimization plan evaluation criteria involves only using
a MeCl-containing paint stripper when an alternative on site stripping
method or material is incapable of accomplishing the work as determined
by the operator. Alternative methods to reduce MeCl usage may include:
(1) Non- or low-MeCl-containing chemical strippers;
(2) Mechanical stripping;
(3) Blasting (including dry or wet media); or
(4) Thermal and cryogenic decomposition.
The management practices required to be contained in the plan
include optimizing stripper application conditions, reducing exposure
of stripper to the air, and practicing proper storage and disposal of
materials containing MeCl. Sources are required to notify either EPA or
the delegated State permit authority that they have developed a MeCl
minimization plan, keep a written copy of the plan on site and post a
placard or sign outlining the evaluation criteria and management
techniques in each area where MeCl-containing paint stripping
operations occur. They are also required to review the plan annually
and update it based on the experiences of the previous year or the
availability of new methods of stripping and to keep a record of the
review and changes made to the plan on file.
D. Requirements for Surface Coating Operations
All motor vehicle and mobile equipment surface coating operations
and those miscellaneous surface coating operations that spray apply
coatings containing the target HAP must apply the coatings with a high
volume, low pressure (HVLP) spray gun, electrostatic spray gun, airless
spray gun, air-assisted airless spray gun, or a gun demonstrated to be
equal in transfer efficiency to an HVLP spray gun. All spray-applied
coatings must be applied in a prep station or spray booth. For motor
vehicle and mobile equipment surface coating, prep stations and spray
booths that are large enough to hold a complete vehicle must have four
complete side walls or curtains and a complete roof. For motor vehicle
and mobile equipment subassemblies and for miscellaneous surface
coating, coatings must be spray applied in a booth with a full roof and
at least three walls or side curtains. Openings are allowed in the
sidewalls and roof of booths used for miscellaneous surface coating to
allow for parts conveyors, if needed. The exhaust from the prep station
or spray booth must be fitted with filters demonstrated to achieve at
least 98 percent filter efficiency of paint overspray.
Additionally, surface coating sources subject to the standards are
required to comply with management practices by demonstrating that:
(1) All painters that spray apply coatings have completed training
in techniques to minimize paint overspray, and
(2) That no spray gun cleaning is performed by spraying solvent
through the gun creating an atomized mist (i.e., spray guns are cleaned
in an enclosed spray gun cleaner or by cleaning the disassembled gun
parts by hand).
Initial painter training will be valid for a period of five years,
and refresher training must be repeated at least once every five years.
Painters that completed training in the last five years before the
compliance date will be able to use that training to satisfy this
requirement. To comply with the painter training requirements, all
spray painters at new sources must complete training no later than 180
days after hiring or 180 days from the date of this notice, whichever
is later. All spray painters at existing sources must complete training
no later than three years from the date of this notice or no later than
180 days after hiring, whichever is later.
The initial and refresher training must address the following
topics to reduce coating overspray and emissions:
(1) Spray gun equipment selection, set up, and operation, including
measuring coating viscosity, selecting the proper fluid tip or nozzle,
and achieving the proper spray pattern, air pressure and volume, and
fluid delivery rate.
(2) Spray technique for different types of coatings to improve
transfer efficiency and minimize coating usage and overspray, including
maintaining the correct spray gun distance and angle to the part, using
proper banding and overlap, and reducing lead and lag spraying at the
beginning and end of each stroke.
(3) Routine spray booth and filter maintenance, including filter
selection and installation.
(4) Environmental compliance with the requirements of this subpart.
E. Notifications, Recordkeeping, and Reporting
All sources must submit an initial notification to the EPA or to
their State or local air pollution control agency, if the EPA has
delegated authority for implementing this rule to that agency, with a
copy sent to EPA, unless the EPA regional office has waived the dual
reporting requirements. New sources need to submit the initial
notification no later than 180 days after initial startup, or no later
than 180 days after the date of this notice, whichever is later.
Existing sources need to submit the initial notification no later than
one year before their compliance date. For new sources, the initial
notification will also serve as a notification on whether the source is
in compliance. For existing sources, the initial notification must
indicate whether the source is already in compliance or that it will be
brought into compliance by the existing source compliance date.
[[Page 1743]]
Additionally, all existing sources that did not state in their
initial notification that they were already in compliance with the
management practices and equipment requirements prescribed in the final
rule must also submit a notification of compliance status. The
notification of compliance status must be submitted no later than 60
days after the compliance date for existing sources. The notification
of compliance status must certify that the source is in compliance with
the applicable requirements for the activities being performed.
The initial notification must include the following information:
(1) The name, address, phone number and e-mail address (if
available) of the owner and operator.
(2) The address (physical location) of the affected source. If the
source is a motor vehicle or mobile equipment surface coating operation
that repairs vehicles at the customer's location, rather than at a
fixed collision repair shop, the notification should state this and
indicate the physical location where records are kept to demonstrate
compliance.
(3) A statement that the source is subject to this standard, 40 CFR
part 63, subpart HHHHHH.
(4) A brief description of the type of operation, including which
types of activities are performed at the source (miscellaneous surface
coating, motor vehicle and mobile equipment surface coating, or paint
stripping). For surface coating operations, identify the number of
spray booths and the number of painters usually employed at the
operation. For paint stripping, identify the method(s) of paint
stripping employed (e.g., chemical, mechanical) and the substrates
stripped (e.g., wood, plastic, metal).
(5) Each paint stripping operation must indicate whether they plan
to annually use more than one ton of MeCl after the compliance date.
Sources are only required to submit an annual report to the EPA or
to their State or local air pollution control agency if any information
in the initial notification, notification of compliance status report,
or in a previous annual report has changed in the previous calendar
year. If an annual report is needed, it must be submitted no later than
60 days after the yearly anniversary of the compliance date.
All sources must keep records sufficient to demonstrate that they
are in compliance at all times. These include the following:
(1) Records that each spray painter has completed the training,
with the date of the initial training and the most recent refresher
training.
(2) Documentation of the filter efficiency of any spray booth
exhaust filter material, such as data from the filter manufacturer.
(3) Documentation from the spray gun manufacturer that each spray
gun that does not meet the definition of an HVLP spray gun,
electrostatic spray gun, airless spray gun, or air-assisted airless
spray gun has been demonstrated to achieve a transfer efficiency equal
to one of the other allowed types of spray gun.
(4) Copies of any notifications or reports that were submitted.
(5) Records of paint strippers containing MeCl used for paint
stripping operations, including the MeCl content of the paint stripper
used, and annual usage.
(6) If you are a paint stripping source that annually uses more
than one ton of MeCl, a record of your current MeCl minimization plan,
and records of your annual review of, and updates to, your MeCl
minimization plan.
(7) Records of any deviation from the requirements in the final
rule, including the date and time period of the deviation, and a
description of the nature of the deviation and the actions taken to
correct the deviation.
(8) Records of any assessments of source compliance performed in
support of the initial notification, notification of compliance status,
or annual notification of changes report.
Under the final rule, owners and operators will not be required to
obtain a Title V operating permit under 40 CFR part 70 or 71, provided
they are not required to obtain a permit for another reason, even
though the source is an area source.
IV. Summary of Changes Since Proposal
A. Applicability
We have revised the rule since proposal to clarify the scope of the
source category to which it applies, and to clearly identify the
sources subject to the requirements of the rule. These revisions make
clear that the affected source category is not as broad as could have
been interpreted based on the language of the proposed rule. These
changes were made in both the applicability sections (Sec. Sec.
63.11169 to 63.11171) and to the definitions in Sec. 63.11180 that
describe particular operations that are subject to the standards.
We have revised Sec. 63.11169 to specify that compounds of
chromium (Cr), lead (Pb), manganese (Mn), nickel (Ni), and cadmium (Cd)
are the HAP for which the surface coating standards for miscellaneous
surface coating operations category was listed and which the standards
are designed to control. In subsequent sections of the rule, certain
provisions apply only to surface coating operations that are sources of
these target HAP.
We have revised Sec. 63.11170 to separate and more clearly explain
how the rule applies to paint stripping, motor vehicle and mobile
equipment surface coating, and miscellaneous surface coating. In
particular, motor vehicle and mobile equipment surface coating has been
separated from the larger category of miscellaneous surface coating and
is treated separately in the rest of the rule. In the proposed rule,
all surface coating was included under a single set of requirements
that made no distinction between motor vehicle and mobile equipment
surface coating and all other miscellaneous surface coating.
The National Nuclear Security Administration (NNSA) has been added
to the list of installations to which this subpart does not apply. This
list is found in Sec. 63.11169. Surface coating and paint stripping at
NNSA installations would be regulated by the military surface coating
NESHAP that is under development.
Section 63.11169 has also been revised to specify that these
standards do not apply to paint stripping and surface coating performed
by individuals as part of a hobby, or for maintenance of their personal
vehicles, possessions, and property, or when they perform these
activities for others without compensation.
For motor vehicle and mobile equipment surface coating, all sources
and individuals that spray finish more than two motor vehicles or
pieces of mobile equipment per year are subject to the requirements in
the final rule that pertain to motor vehicle and mobile equipment
surface coating regardless of whether compensation is received.
However, we have included a provision in the final rule that allows an
owner or operator of a motor vehicle or mobile equipment surface
coating operation to petition the Administrator for an exemption from
this subpart if the owner or operator can demonstrate that they spray
apply no coatings that contain the target HAP. Petitions must include a
description of the coatings that they spray apply and certification
that they do not spray apply any coatings containing the target HAP. If
circumstances change such that the owner or operator intends to spray
apply coatings containing the target HAP, the owner or operator must
submit
[[Page 1744]]
the initial notification required by 63.11175 and comply with the
requirements of this subpart. While the proposed rule would have
required all motor vehicle and mobile equipment surface coating
operations to comply with the requirements of the rule, because the
category was listed for the target HAP, it is appropriate to allow
operations that do not use products containing the target HAP to
request that the rule not apply to them based on an adequate
demonstration that they do not use such products. EPA's understanding,
based on site visits and communications with the industry, is that many
shops, especially smaller ones, purchase coatings ``over the counter''
on a retail basis and usually do not receive composition data, such as
a material safety data sheet (MSDS), with these coatings. In addition,
when a specific color is needed for refinishing a vehicle, it is
usually custom-mixed from any number of about 50 different toners,
either by the painter at the shop, or by the coating retailer.
Therefore, it will likely be very difficult to determine whether any
particular coating being sprayed contains the target HAP, unless the
HAP composition of all coatings within the shop is known. For this
reason, and because we received comments from industry supporting the
proposed requirements, we expect that few, if any, petitions will be
received. We hope to encourage reformulation where possible through
this provision.
The applicability language in Sec. 63.11169 in the final rule has
been revised to exclude paint stripping and surface coating that meets
the definition of research and laboratory activities, and quality
control activities, as defined in Sec. 63.11180.
The applicability language in Sec. 63.11170 for motor vehicle and
mobile equipment surface coating operations has been revised to clarify
that the standards apply to all sources that spray apply these
coatings, including mobile refinishing operations, except when they
qualify as facility maintenance, as defined in Sec. 63.11180.
The applicability language for miscellaneous surface coating
operations has been revised to clarify the scope of the source category
subject to regulation. First, the standards apply to the spray
application of only coatings that contain the target HAP at
miscellaneous surface coating operations. Second, language has been
added to clarify that the standards apply only to plastic and metal
substrates. Third, the rule has been revised to also exclude
miscellaneous surface coating that meets the definition of ``facility
maintenance.'' Finally, surface coating on space vehicles has been
specifically excluded so as to parallel the applicability of subpart
GG, the major source NESHAP for Aerospace Manufacturing and Rework
Facilities.
The applicability of the final rule has been further clarified by
revising or adding definitions to Sec. 63.11180 that better explain
the operations that are covered. The definition of ``coating'' was
revised to clarify that the following are not coatings subject to this
rule:
(a) Adhesives, sealants, maskants, or caulking materials.
(b) Temporary protective coatings, lubricants, or surface
preparation materials.
(c) In-mold coatings that are spray-applied in the manufacture of
reinforced plastic composite parts.
New definitions were added for ``facility maintenance'', ``quality
control activities'', ``research and laboratory activities'', and
``spray-applied coating.'' These definitions were fully described in
section III.A of this preamble.
B. Compliance Dates
The compliance date for existing sources has been extended from two
years to three years after the effective date of today's final rule
notice.
C. Requirements for Paint Stripping Operations
The format of the MeCl minimization plan threshold for the paint
stripping portion of the rule has been revised from total stripper
volume usage to MeCl mass usage for several reasons. First, EPA
believes it is more appropriate to address the emissions directly, when
possible, in lieu of using a surrogate that may or may not accomplish
the goal. Additionally, a mass usage format may serve as an incentive
for sources to evaluate the appropriate MeCl content of their chemical
strippers and also provide the sources with greater flexibility. The
rule sets the MeCl minimization plan threshold at one ton per year of
MeCl contained in paint strippers.
D. Requirements for Surface Coating Operations
The rule has been revised to create separate categories for motor
vehicle and mobile equipment surface coating and for miscellaneous
surface coating. For motor vehicle and mobile equipment surface
coating, the requirements for painter training, high efficiency spray
guns (e.g., HVLP or equivalent), spray booths with filters, and gun
washing still apply to all sources as described in the applicability
section of the rule.
For miscellaneous surface coating operations, the rule has been
revised so that it applies only to those surface coating operations
that spray apply coatings that contain the target HAP; other surface
coating operations do not need to comply with those requirements.
Miscellaneous surface coating operations that spray apply coatings that
contain the target HAP must meet the same requirements as motor vehicle
and mobile equipment surface coating operations.
The spray painter training requirements have been revised so that
training is not required on those topics that do not have a direct
effect on emissions reductions. More detail has been added on the
topics that impact emissions reductions (e.g., transfer efficiency) and
for which training is required. The training requirements have also
been revised to allow an owner or operator to certify that their
employees have completed training to facilitate the use of in-house
training programs. Spray painters will also have 180 days to complete
training after hiring or transferring to a surface coating job, instead
of 60 days.
The requirements for spray guns have been revised to allow the use
of airless or air-assisted airless spray guns without having to
demonstrate that they are equivalent to HVLP spray guns in transfer
efficiency.
The requirements for spray booth filters have been revised so that
all spray booth exhaust filters must achieve 98 percent paint overspray
filter efficiency (also referred to as ``arrestance''), and details
have been added on the method that must be used to measure that
efficiency. The final rule also clarifies that compliance with the
filter efficiency standard can be demonstrated through data provided by
the filter manufacturer.
The booth requirements have been revised to allow for openings in
side walls and roofs for part conveyors. They have also been revised to
allow for booths that are operated at up to 0.05 inches water gauge
positive pressure, if they have sealed doors and other openings and use
a pressure balancing system.
The rule language related to spray gun washing has been revised to
clarify that atomized spraying of gun cleaning solvent is prohibited,
and allowable means of washing spray guns include hand cleaning
disassembled spray guns, manually flushing solvent through the gun
(without atomizing it) and capturing the spent solvent, and using an
enclosed gun washer, but an enclosed gun washer is not required.
[[Page 1745]]
E. Notifications, Recordkeeping, and Reporting
The notification and reporting requirements of the rule have been
simplified and reduced. All sources will still need to submit an
initial notification, but in that initial notification, sources will be
asked to state whether they are already in compliance with the
requirements of the rule or whether they plan to be in compliance by
the compliance date. For new sources, the initial notification will
also serve as the notification of compliance status since they would
otherwise be due by the same date. If existing sources are already in
compliance by the time they submit the initial notification and certify
that they are in compliance in their initial notification, they do not
need to submit a separate notification of compliance status. The need
for regular annual compliance reports has also been removed. Sources
will need to submit an annual compliance report only if there is a
change in any of the information contained in the initial notification,
the notification of compliance status (if one was needed), or in a
previous annual compliance report (if one was needed).
The rule has been revised to remove the requirement for paint
stripping sources to submit MeCl minimization plans to permitting
authorities. Facilities will be required to submit either an initial
notification or a notification of compliance status that says they have
prepared and implemented the plan. Instead of submitting the plan,
sources are only required to keep the plan on site. The facility has to
review and update their plan annually and keep records of the review
and changes made on site rather than submitting an annual compliance
report to EPA or a State permitting authority.
For paint stripping, motor vehicle and mobile equipment surface
coating operations, and miscellaneous surface coating operations, the
rule has been revised so that these sources will only have to keep the
records needed to demonstrate compliance instead of submitting annual
compliance reports.
V. Summary of Comments and Responses
A. Applicability
Comment: Several commenters argued that the miscellaneous surface
coating rule should apply only to surface coating facilities that emit
the target HAP, and that target HAP should be defined as the HAP for
which the miscellaneous surface coating source category was listed.
These are specifically compounds of Cr, Pb, Mn, Ni, and Cd.
Response: The EPA agrees with the commenters and recognizes that
many miscellaneous surface coating operations exist that do not spray
apply coatings containing the target HAP. Therefore, the applicability
sections have been revised so that the final rule will apply to only
miscellaneous surface coating sources that spray apply coatings
containing the target HAP. If your miscellaneous surface coating
operations do not spray apply any coatings containing the target HAP,
then you are not subject to this rule and do not need to comply with
the requirements for operator training, spray guns, or spray booths.
This change in the language of the applicability provision accurately
reflects the sources for which the miscellaneous surface coating source
category was listed, because sources that do not spray apply coatings
containing the target HAP will have no target HAP emissions and were
therefore not part of the inventory on which the source category
listing was based. It will also create an incentive for all
miscellaneous surface coating sources to review the coatings they are
spray applying and find substitutes for those that contain the target
HAP or to switch to non-spray methods to apply those coatings. Although
some contract coaters and ``job shops'' may use a large number of
different coatings, most miscellaneous surface coating operations use
only a small number of coatings and the composition data for these can
be reviewed to identify whether these coatings contain the target HAP.
However, based on the overwhelming support of the commenters for
the applicability criteria and scope of the motor vehicle and mobile
equipment source category, we are not narrowing the applicability to
only the target HAP for the motor vehicle and mobile equipment source
category. The EPA's understanding, based on site visits and
communications with the industry, is that these requirements are
consistent with current good environmental and worker protection
practices. (See other comment responses for additional clarifications
on applicability that exclude coating of personal property and
vehicles, facility maintenance coating, etc.) The final rule applies to
all motor vehicle and mobile equipment surface coating operations.
However, if you are the owner or operator of a motor vehicle or mobile
equipment surface coating operation, you may petition the Administrator
for an exemption from this subpart if you can demonstrate, to the
satisfaction of the Administrator, that you spray apply no coatings
that contain the target HAP. Petitions must include a description of
the coatings that you spray apply and your certification that you do
not spray apply any coatings containing the target HAP. If
circumstances change such that you intend to spray apply coatings
containing the target HAP, you must submit the initial notification
required by 63.11175 and comply with the requirements of this subpart.
Comment: One commenter suggested that the rule should be revised to
add the NNSA to the list of installations to which this subpart does
not apply. The commenter noted that EPA is planning that surface
coating and paint stripping at NNSA installations would be addressed by
the military surface coating NESHAP that is under development.
Response: The EPA agrees and has added NNSA installations to the
list of installations to which this subpart does not apply. These
installations will be addressed by the military surface coating NESHAP
that is under development.
Comment: Several comments noted that the applicability of the
proposed rule, as written, could be interpreted to apply to all paint
stripping and surface coating operations, and included no exemptions
for automobile hobbyists or homeowners stripping and painting their own
property or vehicles. Nearly all commenters felt that paint stripping
and surface coating by hobbyists and homeowners should be exempt from
the rule. Several commenters suggested that EPA establish a de minimis
usage threshold, based on either major source surface coating rules or
state volatile organic compounds (VOC) rules, to exclude noncommercial
paint stripping or surface coating operations. The commenters noted
that hobbyist and homeowner activities are difficult to locate because
they are located in residential areas and are intermittent. However,
one commenter suggested that the rule should have no exemptions and any
individual painting vehicles should be subject to the proposed
equipment and training requirements.
Response: EPA re-examined the scope of the source categories that
we listed based on the 1990 national emissions inventory. The analyses
that were the basis for the source category listing for paint
stripping, miscellaneous surface coating, and motor vehicle and mobile
equipment surface coating focused on commercial operations, along with
some government and institutional operations, such as municipal garages
that service fleet vehicles. Homeowners
[[Page 1746]]
and hobbyists were not part of these analyses and were not intended to
be part of the listed source categories.
Therefore, the final rule has been revised to clarify that it does
not cover paint stripping and surface coating performed by individuals
on their personal vehicles, possessions, or property, either as a hobby
or for maintenance. This subpart also does not apply when these
operations are performed by individuals for others without
compensation, which is akin to the hobbyist and homeowner activities
not considered in the baseline inventory that formed the basis for the
listing of the source categories at issue here.
However, for motor vehicle and mobile equipment surface coating
operations, an individual surface coating more than two vehicles per
year will be covered by the rule. This limit on the number of vehicles
coated per year was included so that commercial automobile surface
coating shops could not avoid compliance by claiming to be
