___ California Environmental Protection Agency 0 Air Resources Board INITIAL STATEMENT OF REASONS FOR THE PROPOSED AMENDMENTS TO THE CALIFORNIA AEROSOL COATING PRODUCTS, ANTIPERSPIRANTS AND DEODORANTS, AND CONSUMER PRODUCTS REGULATIONS, TEST METHOD 310, AND AIRBORNE TOXIC CONTROL MEASURE FOR PARA-DICHLOROBENZENE SOLID AIR FRESHENERS AND TOILETIURINAL CARE PRODUCTS Release Date: May 7, 2004 State of California AIR RESOURCES BOARD INITIAL STATEMENT OF REASONS FOR PROPOSED RULEMAKING Public Hearing to Consider PROPOSED AMENDMENTS TO THE CALIFORNIA AEROSOL COATING PRODUCTS, ANTIPERSPIRANTS AND DEODORANTS, AND CONSUMER PRODUCTS REGULATIONS, TEST METHOD 310, AND AIRBORNE TOXIC CONTROL MEASURE FOR PARA-DICHLOROBENZENE SOLID AIR FRESHENERS AND TOILET/URINAL CARE PRODUCTS To be considered by the Air Resources Board on June 24, 2004, at: Air Resources Board Auditorium 9530 Telstar Avenue El Monte, California 91731 Air Resources Board P.O. Box 2815 Sacramento, CA 95812 This report has been prepared by the staff of the California Air Resources Board. Publication does not signify that the contents reflect the views and policies of the Air Resources Board, nor does mention of trade names or commercial products constitute endorsement or recommendation for use. State of California AIR RESOURCES BOARD INITIAL STATEMENT OF REASONS FOR THE FOR THE PROPOSED AMENDMENTS TO THE CALIFORNIA AEROSOL COATING PRODUCTS, ANTIPERSPIRANTS AND DEODORANTS, AND CONSUMER PRODUCTS REGULATIONS, TEST METHOD 310, AND AIRBORNE TOXIC CONTROL MEASURE FOR PARA-DICHLOROBENZENE SOLID AIR FRESHENERS AND TOILET/URINAL CARE PRODUCTS Prepared by: Stationary Source Division Air Resources Board Reviewed by: David Mallory P.E., Manager, Measures Development Section Carla D. Takemoto, Manager, Technical Evaluation Section Judy Yee, Manager, Implementation Section Janette M. Brooks, Chief, Air Quality Measures Branch Donald J. Ames, Assistant Chief, Stationary Source Division Peter D. Venturini, Chief, Stationary Source Division May 2004 Initial Statement of Reasons for Proposed Amendments to the California Aerosol Coating Products, Antiperspirants and Deodorants, and Consumer Products Regulations, Test Method 310, and Airborne Toxic Control Measure for Para-dichlorobenzene Solid Air Fresheners and ToiletlUrinal Care Products Volume I: Executive Summary Volume II: Technical Support Document Air Resources Board P.O. Box 2815 Sacramento, CA 95812 ACKNOWLEDGMENTS This report and the proposed amendments to the California Aerosol Coating Products, Antiperspirants and Deodorants, and Consumer Products Regulations, Test Method 310, and Airborne Toxic Control Measure for Para-dichlorobenzene Solid Air Fresheners and Toilet/Urinal Care Products were developed by the following Air Resources Board staff: Paul Allen Tony Andreoni Chuck Beddow Nicholas Berger Michelle Byars Renee Coad Jessica Dean John DaMassa Steve Giorgi Russell Grace Marline Hicks Wendy Howard Robert Jenne, Esq. David Julian P.E. Stella Ling-Taylor Amy Livingston Reza Mahdavi, Ph.D. Cynthia Marvin Eileen McCauley Tina Najjar Olufemi Olaluwoye Andrew Panson Linda Smith Trish Villegas Maryana Visina Zuzana Vona Dodie Weiner Barbara Weller Evan Wong Initial Statement of Reasons for Proposed Amendments to the California Aerosol Coating Products, Antiperspirants and Deodorants, and Consumer Products Regulations, Test Method 310, and Airborne Toxic Control Measure for Para-dichlorobenzene Solid Air Fresheners and ToiletlUrinal Care Products TABLE OF CONTENTS Contents Page Volume I: EXECUTIVE SUMMARY I A. Introduction I B. History and Background I C. Summary of Proposed Amendments 5 D. Regulatory Development Process and Evaluation of Alternatives 15 E. Compliance With the Proposed 2004 Amendments 17 F Economic Impacts 21 C. Environmental Impacts 24 H. Future Plans 25 I. Recommendation 26 Volume II: TECHNICAL SUPPORT DOCUMENT Introduction I-i A. Overview I-I B. Enabling Legislation I-I C. Background 1-3 II. Development of Proposed Amendments 11-8 A. Public Process for Developing Proposed Limits 11-8 B. Staff Evaluation of Emission Reduction Opportunities 11-9 C. Alternatives Considered 11-10 III. Technical Basis for the Proposed Amendments 111-12 A. Technologically Feasible 111-12 B. Commercially Feasible 111-13 IV. Emissions IV-15 A. Ambient Air Quality and the Need for Emissions Reductions IV-15 B. Why Regulate Consumer Products? IV-27 C. Estimated Emissions from Categories Proposed to be Regulated in 2004 Consumer Products Regulation Amendments IV-31 TABLE OF CONTENTS (continued) Contents Page V. Proposed Amendments to the Aerosol Coating Products, Antiperspirants and Deodorants, and Consumer Products Regulations, and Test Method 310 V-39 A. Definitions (Section 94508 and Section 94501) V-40 B. Standards for Consumer Products (Section 94509) V-47 C. Exemptions (Section 94510) V-52 D. Administrative Requirements (Section 94512) V-52 E. Reporting Requirements (Section 94513) V-55 F. Amendments to Test Method 310, and Test Method Sections 94506, 94515, and 94526 V-56 VI. Description of Product Categories Vl-58 A. Adhesive Removers Vl-58 B. Anti-Static Product Vl-71 C. Contact Adhesive VI-76 D. Electronic and Electrical Cleaner Vl-85 E. Fabric Refresher VI-96 F. Footware or Leather Care Product Vl-100 G. Graffiti Remover Vl-109 H. Hair Styling Product Vl-113 I. Shaving Gel VI-lig J. Toilet/Urinal Care Product and Solid/Gel Room Air Freshener Vl-127 K. Wood Cleaner VI-139 VII. Health Risk and Needs Assessment for the Airborne Toxic Control Measure for Para-dichlorobenzene Solid Air Fresheners and Toilet/Urinal Care Products VIl-143 A. Introduction VII-143 B. Background VIl-145 C. Purpose VIl-146 D. Regulatory Authority VIl-147 E. Regulatory Activities VI 1-147 F. Outreach Efforts VIl-148 G. Sources, Emissions, and Chemical and Physical Characteristics of PDCB VII-149 H. Exposure to PDCB Vll-152 I. Stability, Persistence, Transformation Products, and Dispersion Potential VII-158 J. Potential Health Effects of PDCB VI 1-159 K. Risk Analysis VII-160 L. Availability and Technological Feasibility of theATCM VII-165 M. CostoftheATCM VII-165 TABLE OF CONTENTS (continued) Contents Page VII. (continued) N. Environmental Impacts VII-166 0. Actions Taken or Being Considered by Other States, Agencies, or Municipalities VII-166 P. Rationale for Reducing Exposure to PDCB VII-167 VIII. Economic Impacts VIII-174 A. Introduction VIII-174 B. Economic Impacts Analysis on California Businesses as Required by the California Administrative Procedure Act (APA) VIII-1 76 C. Analysis of Potential Impacts to California State or Local Agencies VIII-185 D. Analysis of the Cost-Effectiveness (C.E.) of the Proposed Limits VIII-186 E. Analysis of the Impacts to Raw Materials Cost VIII-194 F. Analysis of the Combined Impacts on Per-Unit Cost from Recurring and Nonrecurring Costs VIII-198 G. Other Possible Economic Impacts VIII-203 H. Mitigation of Potential Impacts Through Additional Regulatory Flexibility VIlI-204 IX. Environmental Impacts IX-207 A. Summary of Environmental Impacts IX-207 B. Legal Requirements Applicable to the Analysis IX-208 C. Alternative Means of Compliance IX-209 D. Air Quality Environmental Impacts IX-210 E. Potential Toxic Air Contaminants Impacts IX-224 F. Risk Assessment for Reduced Exposure to Ozone and TACs IX-242 G. Other Potential Environmental Impacts IX-245 H. Potential Flammability of Products that Contain VOCs IX-246 I. State Implementation Plan (SIP) Impact IX-247 J. Environmental Justice IX-248 X. Future Activities X-254 A. 2003 Consumer and Commercial Products Survey X-254 B. 2005 and 2006 Consumer Products Regulatory Amendments X-254 C. 2005 Consumer and Commercial Products Survey X-255 D. 2008 Consumer Products Regulatory Amendments X-255 E. Further Reductions from Consumer Products X-255 APPENDIX A: Proposed Amendments to the Consumer Products Regulation, Antiperspirants and Deodorants Regulation, Aerosol Coatings Products Regulation, and Test Method 310 APPENDIX B: Summary of Regulations Adopted and Dates of Regulatory Amendments APPENDIX C: Meeting Notices (Working Group and Workshop) APPENDIX D: 2001 Consumer and Commercial Products Survey APPENDIX E: Summary of Cost Calculations LIST OF TABLES Table Title Page Volume I: Executive Summary Chapter I: Introduction Table 1: Product Categories Covered by Proposed 2004 Amendments 6 Table 2: Proposed VOC Limits and Reductions Achieved 8 Table 3: Chronology of Public Meetings and Workshops 15 Table 4: Summary of Complying Products 20 Volume II: Technical Support Document Chapter I: Introduction Table I-I: List of Current Airborne Toxic Control Measures 1-3 Chapter II: Development of Proposed Amendments Table Il-i Chronology of Workgroup Meetings and Public Workshop 11-9 Chapter IV: Emissions Table IV-1 Ambient Air Quality Standards for Ozone and PM10 IV-20 Table IV-2 VOC Emissions by Product Category IV-33 Chapter V: Proposed Amendments to the Aerosol Coating Products, Antiperspirants and Deodorants, and Consumer Products Regulations, and Test Method 310 Table V-I: New Definitions Proposed for Addition V-40 Table V-2: Existing Definitions Proposed for Modification V-41 Table V-3: New Definitions Proposed that Relate to New Product Categories V-41 Table V-4: Proposed VOC Limit, Product Forms, and Effective Dates V-48 Chapter VI: Description of Product Categories Table Vl-I: Adhesive Removers Vl-60 Table Vl-I a: Adhesive Removers Vl-60 Table VI-2: Adhesive Remover Proposal Vl-65 Table VI-3: Anti-Static Product VI-72 Table Vl-4: Anti-Static Product Proposal Vl-74 LIST OF