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 TOILET/URINAL 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
Toilet/Urinal 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
Toilet/Urinal Care Products
TABLE OF CONTENTS
ContentsPage
Volume I: EXECUTIVE SUMMARY1
A. Introduction1
B. History and Background1
C. Summary of Proposed Amendments5
D. Regulatory Development Process and Evaluation of Alternatives15
E. Compliance With the Proposed 2004 Amendments17
F Economic Impacts21
G. Environmental Impacts24
H.Future Plans25
I. Recommendation26
Volume II: TECHNICAL SUPPORT DOCUMENT
I. IntroductionI-1
A. OverviewI-1
B. Enabling LegislationI-1
C. BackgroundI-3
II. Development of Proposed AmendmentsII-8
A. Public Process for Developing Proposed LimitsII-8
- Staff Evaluation of Emission Reduction OpportunitiesII-9
- Alternatives ConsideredII-10
III. Technical Basis for the Proposed AmendmentsIII-12
A. Technologically FeasibleIII-12
B. Commercially FeasibleIII-13
IV. EmissionsIV-15
A. Ambient Air Quality and the Need for Emissions ReductionsIV-15
B. Why Regulate Consumer Products?IV-27
C. Estimated Emissions from Categories Proposed to be
Regulated in 2004 Consumer Products Regulation
AmendmentsIV-31
TABLE OF CONTENTS(continued)
ContentsPage
V. Proposed Amendments to the Aerosol Coating Products,
Antiperspirants and Deodorants, and Consumer Products
Regulations, and Test Method 310V-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 94526V-56
VI. Description of Product CategoriesVI-58
A. Adhesive RemoversVI-58
B. Anti-Static ProductVI-71
C. Contact AdhesiveVI-76
D. Electronic and Electrical CleanerVI-85
E. Fabric RefresherVI-96
F. Footware or Leather Care ProductVI-100
G. Graffiti RemoverVI-109
H. Hair Styling ProductVI-113
I. Shaving GelVI-119
J. Toilet/Urinal Care Product and Solid/Gel Room Air FreshenerVI-127
K. Wood CleanerVI-139
VII. Health Risk and Needs Assessment for the Airborne Toxic
Control Measure for Para-dichlorobenzene Solid Air Fresheners
and Toilet/Urinal Care ProductsVII-143
A. IntroductionVII-143
B. BackgroundVII-145
C. PurposeVII-146
D. Regulatory AuthorityVII-147
E. Regulatory ActivitiesVII-147
F. Outreach EffortsVII-148
G. Sources, Emissions, and Chemical and Physical
Characteristics of PDCBVII-149
H. Exposure to PDCBVII-152
I. Stability, Persistence, Transformation Products, and
Dispersion PotentialVII-158
J. Potential Health Effects of PDCBVII-159
K. Risk AnalysisVII-160
L. Availability and Technological Feasibility of the ATCMVII-165
M. Cost of the ATCMVII-165
TABLE OF CONTENTS (continued)
ContentsPage
VII.(continued)
N.Environmental ImpactsVII-166
O. Actions Taken or Being Considered by Other States,
Agencies, or MunicipalitiesVII-166
P. Rationale for Reducing Exposure to PDCBVII-167
VIII.Economic ImpactsVIII-174
A. IntroductionVIII-174
B. Economic Impacts Analysis on California Businesses
as Required by the California Administrative
Procedure Act (APA)VIII-176
C. Analysis of Potential Impacts to California State
or Local AgenciesVIII-185
D. Analysis of the Cost-Effectiveness (C.E.) of the
Proposed LimitsVIII-186
E. Analysis of the Impacts to Raw Materials CostVIII-194
F. Analysis of the Combined Impacts on Per-Unit Cost
from Recurring and Nonrecurring CostsVIII-198
G.Other Possible Economic ImpactsVIII-203
H. Mitigation of Potential Impacts Through Additional
Regulatory Flexibility VIII-204
IX.Environmental ImpactsIX-207
A. Summary of Environmental ImpactsIX-207
B. Legal Requirements Applicable to the AnalysisIX-208
C. Alternative Means of ComplianceIX-209
D. Air Quality Environmental ImpactsIX-210
E. Potential Toxic Air Contaminants ImpactsIX-224
F. Risk Assessment for Reduced Exposure to Ozone and TACsIX-242
G. Other Potential Environmental ImpactsIX-245
H. Potential Flammability of Products that Contain VOCsIX-246
I. State Implementation Plan (SIP) ImpactIX-247
J. Environmental JusticeIX-248
X. Future ActivitiesX-254
A. 2003 Consumer and Commercial Products SurveyX-254
B. 2005 and 2006 Consumer Products Regulatory AmendmentsX-254
C. 2005 Consumer and Commercial Products SurveyX-255
D. 2008 Consumer Products Regulatory AmendmentsX-255
E. Further Reductions from Consumer ProductsX-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 Amendments6
Table 2:Proposed VOC Limits and Reductions Achieved8
Table 3:Chronology of Public Meetings and Workshops15
Table 4:Summary of Complying Products20
Volume II: Technical Support Document
Chapter I:Introduction
Table I-1:List of Current Airborne Toxic Control MeasuresI-3
Chapter II: Development of Proposed Amendments
Table II-1Chronology of Workgroup Meetings and Public WorkshopII-9
Chapter IV: Emissions
Table IV-1Ambient Air Quality Standards for Ozone and PM10 IV-20
Table IV-2VOC Emissions by Product CategoryIV-33
Chapter V: Proposed Amendments to the Aerosol Coating Products,
Antiperspirants and Deodorants, and Consumer Products
Regulations, and Test Method 310
Table V-1:New Definitions Proposed for AdditionV-40
Table V-2:Existing Definitions Proposed for ModificationV-41
Table V-3:New Definitions Proposed that Relate to New Product CategoriesV-41
Table V-4:Proposed VOC Limit, Product Forms, and Effective DatesV-48
Chapter VI: Description of Product Categories
Table VI-1:Adhesive RemoversVI-60
Table VI-1a:Adhesive RemoversVI-60
Table VI-2: Adhesive Remover ProposalVI-65
Table VI-3:Anti-Static ProductVI-72
Table VI-4:Anti-Static Product ProposalVI-74
LIST OF TABLES (continued)
Table Title Page
Table VI-5:Contact AdhesiveVI-79
Table VI-6:Contact Adhesive ProposalVI-82
Table VI-7:Electronic and Electrical CleanerVI-87
Table VI-8:Electronic and Electrical Cleaner ProposalVI-90
Table VI-9:Fabric RefresherVI-96
Table VI-10:Fabric Refresher ProposalVI-98
Table VI-11:Footware or Leather Care ProductVI-100
Table VI-12:Footware or Leather Care Product Proposal VI-104
Table VI-13:Graffiti RemoverVI-110
Table VI-14:Graffiti Remover ProposalVI-111
Table VI-15:Hair Styling ProductVI-114
Table VI-16:Hair Styling Product ProposalVI-116
Table VI-17:Shaving GelVI-120
Table VI-18: Shaving Gel ProposalVI-122
Table VI-19:Toilet/Urinal Care ProductVI-129
Table VI-20:Toilet/Urinal Care Product ProposalVI-134
Table VI-21:Wood CleanerVI-140
Table VI-22:Wood Cleaner ProposalVI-141
Chapter VII:Health Risk and Needs Assessment for the Airborne Toxic
Control Measure for Para-dichlorobenzene Solid Air Fresheners
and Toilet/Urinal Care Products
Table VII-1: Facilities that Manufacture or Process PDCBVII-150
Table VII-2: Chemical Information for PDCBVII-151
Table VII-3: Physical Properties of PDCBVII-152
Table VII-4: Drinking Water Standards in Select AreasVII-154
Table VII-5: Emission Source ParametersVII-162
Table VII-6: Potential Cancer Health Risks Due to PDCB
Emissions from Processes as Part of Wastewater
OperationsVII-164
Chapter VIII: Economic Impacts
Table VIII-1:Industries with Businesses Potentially Affected by the
Proposed LimitsVIII-178
Table VIII-2:Estimated Total Impacts to Businesses from Both
Annualized Non-Recurring and Annual Recurring CostsVIII-181
Table VIII-3: Changes in Return on Owner’s Equity (ROEs) for Typical
Businesses in Affected IndustriesVIII-182
Table VIII-4:California Employment and Payroll in Affected IndustriesVIII-184
Table VIII-5:Estimated Total Non-Recurring Fixed Cost
to Comply with Proposed LimitsVIII-192
Table VIII-6:Comparison of Cost-Effectiveness for ARB Consumer Product Regulations/Measures VIII-193
LIST OF TABLES (continued)
Table Title Page
Table VIII-7:Estimated Impacts to Raw Materials Cost ($/ unit of product)
for Proposed LimitsVIII-196
Table VIII-8:Comparison of Raw Materials Cost Impacts for the
Proposed Limits and Other ARB Consumer
Product Regulations (unadjusted dollars)VIII-198
Table VIII-9:Estimated Per-Unit Cost Increases from Both
Annualized Non-Recurring and Annual Recurring CostsVIII-202
Chapter IX: Environmental Impacts
Table IX-1:VOC Emissions and Reductions by Product CategoryIX-211
Table IX-2: Pollutant-Specific Health Effects for Select VOC TACs
of ConcernIX-225
Table IX-3: Pollutant-Specific Health Effects Values Used for
Determining Potential Health ImpactsIX-226
Table IX-4: 2001 Statewide Emissions of Perc, MeCl, and TCE from
Categories of Consumer Products Scheduled for RegulationIX-227
Table IX-5: Physical Properties of Perchloroethylene (Perc)IX-228
Table IX-6: Physical Properties of Methylene Chloride (Dichloromethane)IX-230
Table IX-7: Physical Properties of Trichloroethylene (TCE)IX-232
Table IX-8: Summary of VOC and TAC Reductions in Categories
Proposed for RegulationIX-244
LIST OF FIGURES
Figure TitlePage
Figure IV-1:Population-Weighted Exposure to Ozone Concentrations
Above the State Ambient Air Quality StandardIV-17
Figure IV-2:California Exceedences of State Ambient Air Quality
Standards During 2000IV-22
Figure IV-3:Area Designations for State Ambient Air Quality Standard
for OzoneIV-23
Figure IV-4:Area Designations for State Ambient Air Quality Standard
for PM10IV-24
Figure IV-5:Area Designations for National Ambient Air Quality Standard
for OzoneIV-25
Figure IV-6: Area Designations for National Ambient Air Quality
Standard for PM10IV-26
Figure VII-1: Blood ConcentrationsIV-157
Figure VII-2:Comparison of Relative Pollutant Concentrations Found Using
Sacramento, Fresno, and West Los Angeles Meteorological DataIV-163