Asphalt Pavement and Asphalt Based Surface Coatings.
Purpose:
Provide VOC emissions reductions from asphalt paving as part of the effort to reach attainment of the 8-hour ozone NAAQS.
Public hearing(s) will be held at:
10:00 a.m., May 24, 2010 at Department of Environmental Conservation Annex, Region 2, 11-15 47th Ave., Hearing Rm. 106, Long Island City, NY; 10:00 a.m., May 25, 2010 at Department of Environmental Conservation, 625 Broadway, Public Assembly Rm. 129-A, Albany, NY; and 10:00 a.m., May 26, 2010 at Department of Environmental Conservation Region 8, Office Conference Rm., 6274 E. Avon-Lima Rd. (Rtes. 5 and 20), Avon, NY.
Interpreter Service:
Interpreter services will be made available to hearing impaired persons, at no charge, upon written request submitted within reasonable time prior to the scheduled public hearing. The written request must be addressed to the agency representative designated in the paragraph below.
Accessibility:
All public hearings have been scheduled at places reasonably accessible to persons with a mobility impairment.
Text of proposed rule:
Subdivisions 200.1(a) through 200.1(af) remain unchanged.
The table under 200.1(ag) is revised to remove the following entry:
78933 Methyl ethyl ketone (2 Butanone)
Sections 200.1(ah) through 200.1(cf) remain unchanged.
New paragraphs are added to subdivision 200.1(cg) as follows:
(34) dimethyl carbonate
(35) 1,1,1,2,2,3,3-heptafluoro-3-methoxy-propane (known as HFE-7000)
(36) 3-ethoxy-1,1,1,2,3,4,4,5,5,6,6,6-dodecafluoro-2-(trifluoromethyl) hexane (known as HFE-7500, HFE-s702, T-7145, and L-15381)
(37) 1,1,1,2,3,3,3-heptafluoropropane (known as HFC 227ea)
(38) methyl formate
(39) propylene carbonate
Sections 200.2 through 200.8 remain unchanged.
Table 1 of existing Section 200.9 is amended as follows:
Regulation
Referenced Material
Availability
241.3
ASTM, D977 (Re-approved 2005)
****
ASTM, D2397 (Re-approved 2005)
****
241.5(a)(2)(iii)
40 CFR Part 60, Appendix A, method 24 (July 1, 2009)
*
Sections 205.1(a) through 205.1(b)(1) remain unchanged.
Paragraphs 205.1(b)(2) and (3) are modified to read as follows:
(2) any aerosol coating product; [and]
(3) any architectural coating that is sold in a container with a volume of one liter (1.057 quart) or less[.]; and
A new section 205.1(b)(4) is added to read as follows:
(4) any asphalt pavement and asphalt based surface coating regulated under Part 241 of this Title.
Sections 205.2 through 205.8 remain unchanged.
Part 211, General Prohibitions
Section 211.1 [Definitions
(a) 'Asphalt.' The dark brown to black cementitious material (solid, semisolid or liquid in consistency) of which the main constituents are bitumens which occur naturally or as a residue of petroleum refining.
(b) 'Cutback asphalt.' Any asphalt which has been liquefied by blending with petroleum solvents (Diluents) or, in the case of some slow cure asphalts (road oils), which have been produced directly from the distillation of petroleum.
(c) 'Penetrating prime coat.' An application of low viscosity asphalt to an absorbent surface in order to prepare it for paving with an asphalt concrete.
Section 211.2] Air pollution prohibited
No person shall cause or allow emissions of air contaminants to the outdoor atmosphere of such quantity, characteristic or duration which are injurious to human, plant or animal life or to property, or which unreasonably interfere with the comfortable enjoyment of life or property. Notwithstanding the existence of specific air quality standards or emission limits, this prohibition applies, but is not limited to, any particulate, fume, gas, mist, odor, smoke, vapor, pollen, toxic or deleterious emission, either alone or in combination with others.
Section 211[3]2 Visible emissions limited
Except as permitted by a specific part of this Subchapter and for open fires for which a restricted burning permit has been issued, no person shall cause or allow any air contamination source to emit any material having an opacity equal to or greater than 20 percent (six minute average) except for one continuous six-minute period per hour of not more than 57 percent opacity.
(a) The use of volatile organic compounds to liquefy asphalt used for paving is prohibited, except for:
(1) asphalt used in the production of long-life stockpile material for pavement patching and repair;
(2) asphalt applied at low ambient temperature from October 16th to May 1st; and
(3) asphalt used as a penetrating prime coat for the purpose of preparing an untreated absorbent surface to receive an asphalt surface.
(b) The amount of volatile organic compounds in emulsified asphalt, as determined by testing methods of the ASTM (American Society for Testing and Materials), may not exceed the following amounts in percent by weight:
(1) two percent for ASTM grades RS-1, SS-1, SS-1h, CSS-1, and CSS-1h;
(2) three percent for ASTM grades RS-2, CRS-1, CRS-2, HFRS-2 and HFMS-2h;
(3) 10 percent for ASTM grades MS-2 and HFMS-2; and
(4) 12 percent for ASTM grades CMS-2 and CMS-2h.]
Part 241, Asphalt Pavement and Asphalt Based Surface Coating
241.1 Applicability
This Part applies to:
(a) any person who applies, supplies, sells, offers for sale, or manufactures any asphalt pavement; and
(b) any person who applies, supplies, sells, offers for sale, or manufactures any asphalt-based surface coating.
241.2 Definitions
(a) 'Asphalt'. The dark brown to black cementitious material (solid, semisolid or liquid in consistency) of which the main constituents are bitumens which occur naturally or as a residue of petroleum refining.
(b) 'Asphalt pavement.' Pavement that is composed of stone, sand, and gravel bound together by asphalt.
(c) 'Cutback asphalt'. Any asphalt which has been liquefied by blending with petroleum solvents (diluents) or, in the case of some slow cure asphalts (road oils), has been produced directly from the distillation of petroleum.
(d) 'Asphalt-based surface coating'. A coating labeled and formulated for application to worn asphalt pavement surfaces including, but not limited to, highway, driveway, parking, curb and/or berm surfaces to perform one or more of the following functions:
(1) fill cracks,
(2) seal, coat, or cover the surface to provide protection or prolong its life, or
(3) restore or preserve the appearance.
(e) 'Emulsified asphalt'. An emulsion of asphalt and water that contains an emulsifying agent; it is a heterogeneous system containing two normally immiscible phases (asphalt and water) in which the water forms the continuous phase of the emulsion, and minute globules of asphalt form the discontinuous phase.
(f) 'Penetrating prime coat'. An application of low viscosity asphalt to an absorbent surface in order to prepare the surface for application of asphalt pavement.
241.3 Asphalt pavement. No emulsified asphalt, as classified under ASTM International standard specifications D 977 or D 2397 (see Table 1, section 200.9 of this Title), may be applied, sold, offered for sale, or manufactured that contains oil distillate, as determined by ASTM International standard test method D 6997, in amounts that exceed the following limits (milliliters of oil distillate per 200 gram sample):
(a) three milliliters for ASTM grades RS-1, SS-1, SS-1h, CRS-1, CSS-1, and CSS-1h;
(b) five milliliters for ASTM grades RS-2, CRS-2, and HFRS-2;
(c) sixteen milliliters for ASTM grades MS-2, HFMS-2 and HFMS-2h; and
(d) twenty milliliters for ASTM grades CMS-2 and CMS-2h.
241.4 Cutback asphalt prohibition. The use of cutback asphalt in paving activities is prohibited except in the following circumstances:
(a) when the asphalt is used in the production of long-life stockpile material for pavement patching and repair; or
(b) when the asphalt is used as a penetrating prime coat for the purpose of preparing a surface to receive asphalt pavement.
241.5 Asphalt based surface coating.
(a) VOC limitation. No asphalt based surface coating may be applied, sold, offered for sale, or manufactured if it contains more than 100 grams of VOC per liter.
(b) VOC content determination.
(1) Except as provided in paragraph (2) of this subdivision, the VOC content of an asphalt based surface coating must be determined through the use of the following equation:
(Ws)
VOC Content = -------------------------
(Vm - Vw)
where:
VOC content = grams of VOC per liter of coating
Ws = weight of VOCs, in grams
Vm = volume of coating, in liters
Vw = volume of water, in liters
The VOC content of a tint base shall be determined prior to the addition of the colorant.
(2) An alternative method may be used if approved by the Department and the Administrator.
(3) The Department may additionally require the manufacturer to conduct a 40 CFR part 60, appendix A, method 24 (see Table 1, section 200.9 of this Title) analysis to verify the VOC content.
(c) Product labeling and recordkeeping.
(1) Small container asphalt-based surface coating labeling. Any manufacturer of an asphalt based surface coating that is supplied, sold, or offered for sale in containers less than or equal to ten gallons in size must display on the container the following information:
(i) the product name, and
(ii) the VOC content. Each container must display either the maximum or the actual VOC content of the coating, as supplied, including the maximum thinning as recommended by the manufacturer. VOC content shall be displayed in grams of VOC per liter of coating. VOC content displayed shall be calculated using manufacturer's formulation data, or shall be determined according to paragraph (a)(2) of this section.
(i) Any person who sells or offers for sale any asphalt-based surface coating in quantities greater than 10 gallons in size must provide to the purchaser, and the Department upon request, the following information regarding the coating:
(a) the invoice sheet, bill of sale, or product manifest document;
(b) the name of the supplier;
(c) the name of the manufacturer;
(d) the product name;
(e) the VOC content; and
(f) the Material Safety Data Sheet.
(ii) Any person who applies an asphalt-based surface coating from a container greater than 10 gallons in size must have available for inspection by Department staff the documentation described in paragraph (b)(2)(i) of this section until the time that all the relevant coating is applied or discarded.
Text of proposed rule and any required statements and analyses may be obtained from:
Kenneth Newkirk, P.E., NYSDEC, Division of Air Resources, 625 Broadway, Albany, NY 12233-3251, (518) 402-8396, email: 241asph@gw.dec.state.ny.us
Data, views or arguments may be submitted to:
Same as above.
Public comment will be received until:
June 1, 2010.
Additional matter required by statute:
Pursuant to Article 8 of the State Environmental Quality Review Act, a Short Environmental Assessment Form, a Negative Declaration and a Coastal Assessment Form have been prepared and are on file. This rule must be approved by the Environmental Board.
Summary of Regulatory Impact Statement
The New York State Department of Environmental Conservation (Department) is revising the State Implementation Plan (SIP) to show that New York State will attain the 8-hour ozone national ambient air quality standard (NAAQS) by 2012 in the New York City metropolitan area and by 2009 in the other nonattainment areas across the State. These SIP revisions must include the establishment of new or revised control requirements for emissions of the precursors of ground level ozone pollution - nitrogen oxides (NOx) and volatile organic compounds (VOCs). This rulemaking proposal is aimed at achieving some of the VOC emission reductions necessary to do this.
Under the federal Clean Air Act (CAA), ozone pollution in the Northeast is recognized as a regional problem. Under CAA section 176A(b)(2), the region is required to assess the degree of interstate transport of ozone or its precursors throughout the region, assess strategies for mitigating the interstate pollution, and recommend to EPA measures to reduce pollution.
According to the Environmental Conservation Law (ECL), the Department has the authority to undertake rules and regulations to protect the natural resources and environment and control air pollution in order to enhance the health, safety and welfare of the people of New York State and their overall economic and social well being. ECL sections 1-0101, 3-0301, 19-0103, 19-0105, 19-0301, 19-0303 establish the authority of the Department to regulate air pollution and air contamination sources. ECL section 19-0305 authorizes the Department to enforce the codes, rules and regulations, and ECL sections 71-2103 and 71-2105 set forth the applicable civil and criminal penalty structures. Together, these sections of the ECL set out the overall state policy goal of reducing air pollution and providing clean, healthy air for the citizens of New York and provide general authority to adopt and enforce measures to do so.
In the northeastern United States the ozone nonattainment problem is pervasive as concentrations of ozone often exceed the level of the national ambient air quality standard by mid-afternoon on a summer day. The contiguous metropolitan areas of Washington, D.C., Baltimore, Philadelphia, New York, and Hartford are designated ozone nonattainment areas. Unlike other pollutants, ozone is a secondary pollutant - not emitted directly but formed in the atmosphere by a variety of photochemical reactions involving VOCs and NOx in the presence of sunlight.
The Department is obligated to protect public health and satisfy federal regulatory requirements intended to support that goal. The proposed regulatory revisions are necessary to reduce VOC emissions to improve air quality, protect public health, and meet the State's SIP obligations.
Revisions to Parts 205, 211, and promulgation of the new Part 241.
The Department is proposing to revise 6 NYCRR Parts 205 and 211 and promulgate a new Part 241 that will provide VOC emissions reductions from asphalt pavement and asphalt based surface coatings as part of the effort to reduce ozone pollution in the state and reach attainment of the 8-hour ozone NAAQS. It applies to any entity that manufactures, sells, or supplies asphalt pavement and asphalt based surface coatings.
These revisions are among a series of sustained actions undertaken by New York State, in conjunction with EPA and other States, to control emissions of ozone precursors, including nitrogen oxides and VOCs, so that New York State and States in the Ozone Transport Region may attain the ozone NAAQS. The effective date of the regulation is anticipated to be January 1, 2011.
Hot mix asphalt paving is sometimes "cutback" (thinned) with volatile organic solvents to ensure the mix can be properly applied. Since August 21, 1983, the use of cutback asphalt during the summer months is prohibited pursuant to the provisions of section 211.4(a)(2). The Department intends to retain and clarify this prohibition in the present rule making.
Currently, the maximum amount of VOCs that may be contained in asphalt is limited by the provisions of section 211.4(b). The VOC content of asphalt based surface coatings is currently subject to the limit established in Part 205, Architectural and Industrial Maintenance (AIM) Coatings, for the general category of flat coatings.
The proposed Part 241, Asphalt Pavement and Asphalt Based Surface Coating, will contain all regulatory provisions applicable to asphalt pavements and asphalt based surface coatings. The proposal requires that all asphalt based surface coatings contain no more than 100 grams of VOC per liter and requires labeling and documentation of the products.
The proposed regulatory revision of VOC emissions from asphalt pavement and asphalt based surface coating is expected to have a minimal impact on consumers since formulations already exist that meet the proposed limits. EPA provided guidance on the reduction of VOC from asphalt, and included cost information in their "Control of VOCs from Use of Cutback Asphalt" EPA - 450 / 2-77-037. The reduction of VOC emissions from asphalt formulations is expected to result in either a decrease in the cost of production for manufacturers of asphalt formulations, or no cost impact at all. The Department is not aware of any additional costs that may cause price increases for asphalt formulations.
There are no direct costs to State and local governments associated with the proposed revisions to Parts 205, 200, and the promulgation of the new Part 241, as discussed in the previous paragraph. The regulatory amendments will apply equally to all entities that manufacture, sell, or supply asphalt pavement and asphalt based surface coatings. The regulatory amendments will not impose a mandate on local governments, since compliance obligations of local governments will be no different than those of any other subject entities. The authority and responsibility for implementing and administering Part 241 will reside solely with the Department.
The requirements for recordkeeping and reporting under proposed Part 241 will only be applicable to persons who manufacture, sell, or supply asphalt pavement and asphalt based surface coatings.
Under the proposed regulatory revisions, minor additional paperwork will be imposed on manufacturers of asphalt pavement and sellers and applicators of asphalt based surface coatings. Sellers and applicators of any asphalt based surface coating that is sold in a bulk container (greater than 10 gallons in size) will be required to retain the associated Material Safety Data Sheet as well as other specific information about the coating until such time that the entire amount of the coating in the bulk container is applied or finally discarded.
Revisions to Part 200
Concurrently, Part 200 is being revised to incorporate Federal requirements by adding six organic compounds to the section 200.1(cg) list of compounds that are not VOCs. Similarly, the Hazardous Air Pollutant (HAP) listing is being revised to remove methyl ethyl ketone. These revisions are being made to remain consistent with EPA's definition of volatile organic compounds (VOC) for purposes of preparing State implementation plans (SIPs) to attain the NAAQS for ozone under title I of the Clean Air Act (CAA).
The Department is proposing to revise section 200.1(cg) to make it consistent with the federal definition of VOC that may be found at 40 CFR 51.100(s). EPA added various compounds to the list that specifies certain compounds that are not to be considered VOCs. The department is proposing to add these compounds to the section 200.1(cg) list of compounds that are not VOCs. The six added compounds include: dimethyl carbonate; 1,1,1,2,2,3,3-heptafluoro-3-methoxy-propane (n-C3F7OCH3) (known as HFE-7000); 3-ethoxy-1,1,1,2,3,4,4,5,5,6,6,6-dodecafluoro-2-(trifluoromethyl) hexane (known as HFE-7500, HFE-s702, T-7145, and L-15381); 1,1,1,2,3,3,3-heptafluoropropane (known as HFC 227ea); methyl formate (HCOOCH3); and propylene carbonate.
The CAA allows individuals to petition EPA to add or delete chemicals from the HAPs list under CAA section 112(b)(3)(A). Pursuant to such a petition process, methyl ethyl ketone was deleted from the list of HAPs established in CAA 112(b). (See 40 CFR 63.21, Deletion of methyl ethyl ketone from the list of hazardous air pollutants) The Department, as a result, is proposing to revise the list of HAPs at 200.1(ag) in order to remove methyl ethyl ketone to be consistent with EPA. Methyl ethyl ketone has been regulated and billed as both a VOC and a HAP in New York State, but will be removed from the HAP list. Methyl ethyl ketone will continue to be regulated as a VOC.
No new costs are being imposed as a result of these revisions to the VOC and HAP lists in Part 200, necessary to remain consistent with EPA regulations. It is possible that some Title V facilities might experience a small decrease in the amount of their fee bill, and consequently a reduction in operating costs, based upon the removal of the six compounds from the VOC list. In the case of methyl ethyl ketone, which the Department is proposing to remove from the HAP list, the compound will remain billable as a regulated VOC.
There are no direct costs to State and local governments associated with the proposed revisions to the VOC and HAP lists in Part 200. The proposed revisions to Part 200 impose no compliance requirements on any entity. These regulatory actions are not expected to impose additional costs, and could potentially result in a decrease in billed amounts.
Due to the addition of the six compounds to the list of compounds that are not considered to be VOCs, some facilities might experience a small decrease in the amount of paperwork that needs to be maintained.
Regulatory Flexibility Analysis
New York faces a significant public health challenge from ground-level ozone, which causes health effects ranging from respiratory disease to death. In response to this public health problem, New York has enacted a series of regulations designed to control ozone and its chemical precursors which include volatile organic compounds (VOCs). Among other regulatory actions, New York is proposing to promulgate regulations designed to limit the VOCs emitted by various grades of asphalt pavement and in asphalt based surface coating in a new Part 241. Concurrently, Department regulations will be revised to align VOC and hazardous air pollutant (HAP) listings with federal requirements in Part 200.
On April 30, 2004, the United States Environmental Protection Agency (EPA) published a final rule designating and classifying all nonattainment areas for the 8-hour ozone national ambient air quality standard (8-hour ozone NAAQS). The New York State Department of Environmental Conservation (Department) is revising the State Implementation Plan (SIP) to show that New York State will attain the 8-hour ozone NAAQS by 2012 in the New York City metropolitan area and by 2009 in the other nonattainment areas across the State (Buffalo-Niagara Falls, Rochester, Capital District, Poughkeepsie, Jamestown, Jefferson County, and Essex County). These SIP revisions must include the establishment of new or revised control requirements for emissions of the precursors of ground level ozone pollution - nitrogen oxides (NOx) and VOCs.
Currently, the maximum amount of VOCs that may be contained in asphalt is limited by the provisions of section 211.4(b). The VOC content of asphalt based surface coatings is currently subject to the limit established in Part 205, Architectural and Industrial Maintenance (AIM) Coatings, for the general category of flat coatings.
The proposed Part 241, Asphalt Pavement and Asphalt Based Surface Coating, will contain all regulatory provisions applicable to asphalt pavements and asphalt based surface coatings. A new applicability section will accompany the provisions that are being removed from Part 211 and placed in Part 241. Proposed section 241.3 contains the new, lower VOC content limits for various grades of asphalt pavement. Proposed section 241.4 prohibits the use of cutback asphalt throughout the year. Proposed section 241.5 mandates that all asphalt based surface coating applied in New York State contain no more than 100 grams of VOC per liter and requires labeling and documentation of the asphalt based surface coating products.
The Department is proposing to revise section 200.1(cg) to make it consistent with the federal definition of VOC that may be found at 40 CFR 51.100(s). Six compounds are considered to have negligible photochemical reactivity, and will be added to the list of compounds that are not VOCs. Also, EPA has specified that methyl ethyl ketone will no longer be considered a hazardous air pollutant (HAP), and the Department is revising its regulations to remain consistent. The compound will continue to be regulated as a VOC.
Together, these modifications will ensure that the State achieves the VOC emission reductions from asphalt pavement and asphalt based surface coating needed so the State can make immediate progress towards attaining the eight-hour ozone NAAQS statewide.
1. Effects on Small Businesses and Local Governments. This is not a mandate on local governments. It applies to any entity that manufactures, sells or applies asphalt pavement and asphalt based surface coatings. Asphalt pavement reformulation is anticipated to provide a cost savings for the manufacturers. Any small businesses or local governments contracting to have asphalt paving or asphalt based surface coating performed on their premises will incur potentially lower costs.
No new costs are being imposed as a result of the revisions to the VOC and HAP lists in Part 200. All major facilities in New York State that emit air pollutants are required to obtain a Title V permit under Part 201 and pay a per-ton monetary fee according to the amount of regulated air pollutants they emit. The fee assessment includes all of the compounds listed in Part 200. By removing a pollutant from the list, facilities are able to realize a cost saving if they previously emitted the delisted compound.
In the case of methyl ethyl ketone, which the Department is proposing to remove from the HAP list, the compound will remain billable as a regulated VOC. As a result, there will be no additional costs to any regulated entity.
2. Compliance Requirements. Local governments are not directly affected by the revisions to 6 NYCRR Parts 205, 211, or 241. Small businesses are required to comply with the same requirements as larger businesses, individuals, or any others. Anyone specifically contracting for asphalt pavement or asphalt based surface coating, will acquire compliant asphalt with low VOC content from manufacturers. All manufacturers of asphalt pavement and asphalt based surface coating will be required to reformulate their products. Small businesses or local governments contracting for pavement will purchase compliant products from their existing suppliers.
The proposed revisions to Part 200 will not impose a mandate on local governments. The proposed revisions will impose no compliance obligation on any entity.
3. Professional Services. Local governments are not directly affected by the revisions to 6 NYCRR Parts 205, 211 and 241. It is not anticipated that small businesses that manufacture asphalt pavement and asphalt based surface coating will need to contract out for professional services to comply with this regulation. In the few cases where small manufacturers do not already have compliant formulations, alternate asphalt formulations are readily available.
The proposed revisions to Part 200 will not require any entity to obtain any professional services. No additional compliance burden is associated with these regulatory actions, as the Department implements them.
4. Compliance Costs. There are no additional compliance costs for small businesses and local governments as a result of this rule. Since there are compliant asphalt formulations now available, small businesses and local governments are not expected to see a price increase for the purchase of compliant asphalt pavement.
The proposed revisions to Part 200 impose no compliance requirements on any entity. These regulatory actions are not expected to impose additional costs, and could potentially result in a decrease in billed amounts.
It should be noted that the impact to consumers is expected to be minimal since compliant asphalt pavement and asphalt based surface coatings formulations are already available. EPA, in its guidance ("Control of VOCs from Use of Cutback Asphalt" EPA - 450 / 2-77-037) recognizes that existing reformulations will likely reduce costs to manufacturers, and not cause any price increases.
5. Minimizing Adverse Impact. Local governments are not directly affected by the revisions to Parts 205 and 211 and addition of the new 241. The Department does not anticipate any issues regarding reformulation of asphalt products. This regulation will provide manufacturers with consistent VOC formulations, and potentially cost savings.
The revision of the VOC and HAP listings will provide consistency for all areas of the state, and facilities could potentially select compounds with lower photochemical reactivity. The authority and responsibility for implementing and administering the changes to Part 200 will reside solely with the Department.
6. Small Business and Local Government Participation. The requirement for reduced VOC content in asphalt pavement and asphalt based surface coating is consistent for all manufacturers statewide. The Department will also be giving official notice of this rulemaking to the public, including businesses and each of the facilities that manufacture asphalt in the state. The authority and responsibility for implementing and administering Part 241 and the changes to Part 200 will reside solely with the Department.
As a member of the Ozone Transport Commission (OTC), the Department participated in outreach through development of regulatory guidance. The Department participated in outreach to the regulated community through this process, including the solicitation of comments from affected industry and a public meeting. A specific New York State process will be undertaken, extending public notice, hearing, and comment opportunities to all areas of the state as part of this rulemaking.
7. Economic and Technological Feasibility. Local governments are not directly affected by the revisions to Parts 205 or 211, or the addition of the new Part 241. Compliant asphalt pavement and asphalt based surface coating are available to meet all consumer needs. The VOC content limits are consistent with other OTC states. Asphalt pavement products at or below the specific VOC content limits are currently available.
The revised listing of VOCs in Part 200 that are considered to have negligible photochemical reactivity was determined by a specific EPA process. Similarly, EPA has reviewed sufficient information regarding methyl ethyl ketone to determine that it no longer needs to be considered a HAP.
Rural Area Flexibility Analysis
New York faces a significant public health challenge from ground-level ozone, which causes health effects ranging from respiratory disease to death. In response to this public health problem, New York has enacted a series of regulations designed to control ozone and its chemical precursors which include volatile organic compounds (VOCs). Among other regulatory actions, New York is proposing to promulgate regulations designed to limit the VOCs emitted by various grades of asphalt pavement and in asphalt based surface coating in a new Part 241. Concurrently, Department regulations will be revised to align VOC and hazardous air pollutant (HAP) listings with federal requirements in Part 200.
On April 30, 2004, the United States Environmental Protection Agency (EPA) published a final rule designating and classifying all nonattainment areas for the 8-hour ozone national ambient air quality standard (8-hour ozone NAAQS). The New York State Department of Environmental Conservation (Department) is revising the State Implementation Plan (SIP) to show that New York State will attain the 8-hour ozone NAAQS by 2012 in the New York City metropolitan area and by 2009 in the other nonattainment areas across the State (Buffalo-Niagara Falls, Rochester, Capital District, Poughkeepsie, Jamestown, Jefferson County, and Essex County). These SIP revisions must include the establishment of new or revised control requirements for emissions of the precursors of ground level ozone pollution - nitrogen oxides (NOx) and VOCs.
Currently, the maximum amount of VOCs that may be contained in asphalt is limited by the provisions of section 211.4(b). The VOC content of asphalt based surface coatings is currently subject to the limit established in Part 205, Architectural and Industrial Maintenance (AIM) Coatings, under the general category of flat coatings.
The proposed Part 241, Asphalt Pavement and Asphalt Based Surface Coating, will contain all regulatory provisions applicable to asphalt pavements and asphalt based surface coatings. A new applicability section will accompany the provisions that are being removed from Part 211 and placed in Part 241. Proposed section 241.3 contains the new, lower VOC content limits for various grades of asphalt pavement. Proposed section 241.4 prohibits the use of cutback asphalt throughout the year. Proposed section 241.5 mandates that all asphalt based surface coatings contain no more than 100 grams of VOC per liter and requires labeling and documentation of the asphalt based surface coating products.
The proposal includes reducing the VOC content of, and consequently emissions from, asphalt pavement and asphalt based surface coatings for all classifications of these products. The reduction is consistent with a regional effort to reduce VOC emissions from asphalt products, agreed upon through the Ozone Transport Commission (OTC).
The Department is proposing to revise section 200.1(cg) to make it consistent with the federal definition of VOC that may be found at 40 CFR 51.100(s). Six compounds are considered to have negligible photochemical reactivity, and will be added to the list of compounds that are not VOCs. Also, EPA has specified that methyl ethyl ketone will no longer be considered a HAP, and the Department is revising its regulations to remain consistent. The compound will continue to be regulated as a VOC.
These changes are a necessary part of the Department's strategy to bring the New York City Metropolitan area into attainment with the ozone NAAQS by 2012 and the upstate nonattainment areas by 2009.
The proposal will ensure that the State achieves the VOC emission reductions from asphalt pavement and asphalt based surface coatings and cutback asphalt needed to make immediate progress towards attaining the eight-hour ozone NAAQS statewide.
1. Types and estimated number of rural areas: Rural areas are not adversely affected by the revisions to Parts 205, 211, and 241. The proposal will apply on a statewide basis. The impact to rural consumers, if any, is expected to be minimal since compliant asphalt formulations are currently available from the existing asphalt pavement production plants.
The revisions to Part 200 do not impose any compliance obligations on any facility. They apply consistently throughout the state, with no adverse impact on rural areas.
2. Reporting, recordkeeping and other compliance requirements: Parts 205, 211, and 241 will apply on a statewide basis. Rural area businesses are not expected to be effected by these revisions. Professional services are not anticipated to be necessary to comply with this rule. Part 241 imposes minor recordkeeping requirements on all manufacturers and suppliers of asphalt pavement and asphalt based surface coatings. These requirements apply consistently statewide.
The revisions to Part 200 do not impose any compliance obligations on any facility, and will not adversely affect rural areas.
3. Costs: The cost of proposed regulations regarding reduction of VOC content in asphalt pavements will be minimal. Compliant asphalt pavement products exist and are readily available to replace higher VOC content asphalt pavement. No additional costs will be incurred by the industry and the elimination of petroleum based VOC content reduces product cost. According to Environmental Protection Agency Control Technology Guidance (EPA-450/2-77-037) the use of lower VOC asphalts are more cost effective for users. The same mixing plant that formulates mixtures can prepare compliant pavement mixtures without any equipment changes.
No new costs are being imposed as a result of the revisions to the VOC and HAP lists in Part 200. All major facilities in New York State that emit air pollutants are required to obtain a Title V permit under Part 201 and pay a per-ton monetary fee according to the amount of regulated air pollutants they emit. The fee assessment includes all of the compounds listed in Part 200. By removing a pollutant from the list, facilities are able to realize a cost saving if they previously emitted the delisted compound.
In the case of methyl ethyl ketone, which the Department is proposing to remove from the HAP list, the compound will remain billable as a regulated VOC. As a result, there will be no additional costs to any regulated entity.
4. Minimizing adverse impact: The proposal is not anticipated to have an adverse effect on rural areas. The rule is intended to create air quality benefits for the entire state, including rural areas, through the reduction of ozone forming pollutants and the allowance of compounds with minimal photochemical reactivity. These revisions are not expected to have adverse impacts on rural areas since compliant asphalt pavement and asphalt based surface coatings will be available statewide. The regulation ensures a fair and level playing field for all asphalt pavement and asphalt based surface coatings manufacturers, and provides consistent VOC and HAP lists for facilities throughout the state.
5. Rural area participation: Rural areas are not specifically affected by the revisions. Reformulations of asphalt pavement will potentially provide a cost savings to asphalt manufacturers and the existing facilities providing asphalt pavement will remain. VOC and HAP listings are consistent for all areas of the state, and facilities could potentially select compounds with lower photochemical reactivity.
As a member of the OTC, the Department participated in outreach through development of regulatory guidance, in the form of a model rule. The Department participated in outreach to the regulated community through this process, including the solicitation of comments from affected industry and a public meeting. The Department plans on holding public hearings at various locations throughout New York State once the regulation is proposed. Some of these locations will be convenient for persons from rural areas to participate. Additionally, there will be a public comment period in which interested parties can submit written comments.
Job Impact Statement
1. Nature of impact: The Department of Environmental Conservation (the Department) proposes to revise Parts 205 and 211 and add a new Part 241 to reduce volatile organic compound (VOC) emissions from asphalt pavement and asphalt based surface coatings. Part 200 will be revised to be consistent with federal requirements regarding organic compounds and remove methyl ethyl ketone from the Hazardous Air Pollutants (HAP) list.
The proposal includes reducing the VOC content of, and consequently emissions from, asphalt paving for all classifications of asphalt. The reduction is consistent with a regional effort to reduce VOC emissions from asphalt paving, agreed upon through the Ozone Transport Commission (OTC). These changes are a necessary part of the Department's strategy to bring the New York City Metropolitan area into attainment with the ozone NAAQS by 2012 and the upstate nonattainment areas by 2009.
Currently, the maximum amount of VOCs that may be contained in asphalt is limited by the provisions of section 211.4(b). The VOC content of asphalt based surface coatings is currently subject to the limit established in Part 205, Architectural and Industrial Maintenance (AIM) Coatings, under the general category of flat coatings.
The proposed Part 241, Asphalt Pavement and Asphalt Based Surface Coating, will contain all regulatory provisions applicable to asphalt pavements and asphalt based surface coatings. A new applicability section will accompany the provisions that are being removed from Part 211 and placed in Part 241. Proposed section 241.3 contains the VOC content limits for various grades of asphalt pavement. Proposed section 241.4 prohibits the use of cutback asphalt throughout the year. Proposed section 241.5 mandates that all asphalt based surface coatings contain no more than 100 grams of VOC per liter and requires labeling and documentation of the asphalt based surface coating products.
These efforts will help New York to make immediate progress towards attaining ozone standards statewide. Asphalt formulations which meet the lower VOC content limits are currently available, therefore manufacturers will not be adversely impacted by this rule. These revisions are not expected to have an adverse impact on jobs and employment opportunities in the State. Part 211 has applied Statewide since it was promulgated in 1983. Part 241 will likewise be applied statewide. Since the proposed lower VOC content limits are anticipated to reduce costs to asphalt pavement and asphalt based surface coatings producers, there are no expected adverse impact on jobs.
The Department is proposing to revise section 200.1(cg) to make it consistent with the federal definition of VOC that may be found at 40 CFR 51.100(s). The Environmental Protection Agency (EPA) added various compounds to the list that specifies certain compounds not to be considered VOCs. The Department is proposing to add these compounds to the section 200.1(cg) list of compounds that are not VOCs. The six added compounds include: dimethyl carbonate; 1,1,1,2,2,3,3-heptafluoro-3-methoxy-propane (n-C3F7OCH3) (known as HFE-7000); 3-ethoxy-1,1,1,2,3,4,4,5,5,6,6,6-dodecafluoro-2-(trifluoromethyl) hexane (known as HFE-7500, HFE-s702, T-7145, and L-15381); 1,1,1,2,3,3,3-heptafluoropropane (known as HFC 227ea); methyl formate (HCOOCH3); and propylene carbonate. These compounds are considered to have negligible photochemical reactivity.
The federal Clean Air Act (CAA) allows individuals to petition EPA to add or delete chemicals from the HAPs list under CAA section 112(b)(3)(A). Pursuant to such a petition process, methyl ethyl ketone was deleted from the list of HAPs established in CAA 112(b). (See 40 CFR 63.21, Deletion of methyl ethyl ketone from the list of hazardous air pollutants) The Department is proposing to revise the list of HAPs at 200.1 (ag) in order to remove methyl ethyl ketone and to maintain consistency with the federal list. Methyl ethyl ketone has been regulated and billed as both a VOC and a HAP in New York State, but will be removed from the HAP list. Methyl ethyl ketone will continue to be regulated as a VOC.
2. Categories and numbers affected: This rule will affect approximately 70 in-State asphalt pavement and asphalt based surface coatings manufacturing facilities. The VOC listing and HAP delisting affects any facility utilizing the compounds listed.
3. Regions of adverse impact: The Department does not expect there to be regions of adverse impact in the State. The VOC emission limits in Part 211 have applied state-wide since 1983 and there has been no resulting adverse impact on any particular region of the State. Of the approximately 70 in-state asphalt pavement and asphalt based surface coating manufacturers, three are located in the New York City Metropolitan Area. The Department, however, expects that compliant asphalt products will be readily available and that there will potentially be a cost savings.
The VOC listing revision and removal of methyl ethyl ketone from the HAP list will not adversely impact employment. The facilities utilizing the compounds will be avoid the associated emissions fee, potentially reducing facility operating costs.
There will be no adverse impact on employment as a result of this rulemaking.
4. Minimizing adverse impact: The Department is providing an implementation date of January 1, 2011 in order to provide sufficient time for the regulated community to prepare for compliance with Part 241. The facilities must reformulate asphalt pavement products, but compliant formulations already exist. The Department, therefore, does not anticipate any adverse impacts on employment from the adoption of these rule revisions. The Department, moreover, believes that this rule will have a positive economic impact on the asphalt pavement industry because there is a potential reduction in operating costs.
As a member of the OTC, the Department participated in outreach through development of regulatory guidance, in the form of a model rule. The Department participated in outreach to the regulated community through this process, including the solicitation of comments from affected industry and a public meeting. A specific New York State process will be undertaken, extending public notice, hearing, and comment opportunities to all areas of the state as part of this rulemaking.
There are no adverse impacts expected from either the listing of VOC compounds or from the elimination of methyl ethyl ketone from the HAP list. Facilities will be allowed to use these compounds, with reduced photochemical reactivity, as alternatives to other compounds, reducing their environmental impact and, potentially, operating costs.
In sum, the Department does not expect this regulation to have an adverse effect on employment in the State.
