Proposed Rule2025-20463
Air Plan Approval; Connecticut; Ozone Ambient Air Quality Standard and Adhesive and Sealants Regulation Revisions
Primary source
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Published
November 20, 2025
Issuing agencies
Environmental Protection Agency
Abstract
The Environmental Protection Agency (EPA) is proposing to approve a State Implementation Plan (SIP) revision submitted by the State of Connecticut. This revision updates state regulations containing ambient air quality standards (AAQS) for ozone to be consistent with EPA's national ambient air quality standards (NAAQS). In addition, this update clarifies the volatile organic compound (VOC) calculation methods for adhesive and sealant products. The intended effect of this action is to propose approval of these regulations into the Connecticut SIP. This action is being taken under the Clean Air Act.
Full Text
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<title>Federal Register, Volume 90 Issue 222 (Thursday, November 20, 2025)</title>
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[Federal Register Volume 90, Number 222 (Thursday, November 20, 2025)]
[Proposed Rules]
[Pages 52288-52290]
From the Federal Register Online via the Government Publishing Office [<a href="http://www.gpo.gov">www.gpo.gov</a>]
[FR Doc No: 2025-20463]
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ENVIRONMENTAL PROTECTION AGENCY
40 CFR Part 52
[EPA-R01-OAR-2025-1311; FRL-13029-01-R1]
Air Plan Approval; Connecticut; Ozone Ambient Air Quality
Standard and Adhesive and Sealants Regulation Revisions
AGENCY: Environmental Protection Agency (EPA).
ACTION: Proposed rule.
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SUMMARY: The Environmental Protection Agency (EPA) is proposing to
approve a State Implementation Plan (SIP) revision submitted by the
State of Connecticut. This revision updates state regulations
containing ambient air quality standards (AAQS) for ozone to be
consistent with EPA's national ambient air quality standards (NAAQS).
In addition, this update clarifies the volatile organic compound (VOC)
calculation methods for adhesive and sealant products. The intended
effect of this action is to propose approval of these regulations into
the Connecticut SIP. This action is being taken under the Clean Air
Act.
DATES: Written comments must be received on or before December 22,
2025.
ADDRESSES: Submit your comments, identified by Docket ID No. EPA-R01-
OAR-2025-1311 at <a href="https://www.regulations.gov">https://www.regulations.gov</a>, or via email to
<a href="/cdn-cgi/l/email-protection#125077607f737c3c5e73676073527762733c757d64"><span class="__cf_email__" data-cfemail="e4a6819689858acaa885919685a4819485ca838b92">[email protected]</span></a>. For comments submitted at <a href="http://Regulations.gov">Regulations.gov</a>, follow
the online instructions for submitting comments. Once submitted,
comments cannot be edited or removed from <a href="http://Regulations.gov">Regulations.gov</a>. For either
manner of submission, the EPA may publish any comment received to its
public docket. Do not submit electronically any information you
consider to be Confidential Business Information (CBI) or other
information whose disclosure is restricted by statute. Multimedia
submissions (audio, video, etc.) must be accompanied by a written
comment. The written comment is considered the official comment and
should include discussion of all points you wish to make. The EPA will
generally not consider comments or comment contents located outside of
the primary submission (i.e. on the web, cloud, or other file sharing
system). For additional submission methods, please contact the person
identified in the ``For Further Information Contact'' section. For the
full EPA public comment policy, information about CBI or multimedia
[[Page 52289]]
submissions, and general guidance on making effective comments, please
visit <a href="https://www.epa.gov/dockets/commenting-epa-dockets">https://www.epa.gov/dockets/commenting-epa-dockets</a>. Publicly
available docket materials are available at <a href="https://www.regulations.gov">https://www.regulations.gov</a>
or at the U.S. Environmental Protection Agency, EPA Region 1 Regional
Office, Air and Radiation Division, 5 Post Office Square--Suite 100,
Boston, MA. EPA requests that if at all possible, you contact the
contact listed in the FOR FURTHER INFORMATION CONTACT section to
schedule your inspection.
FOR FURTHER INFORMATION CONTACT: Laura Berman, Energy and Resilience
Branch, U.S. Environmental Protection Agency, EPA Region 1, 5 Post
Office Square--Suite 100, (Mail code 5-MI), Boston, MA 02109-3912, tel.
(617) 918-1856, email <a href="/cdn-cgi/l/email-protection#f3b196819e929dddbf92868192b3968392dd949c85"><span class="__cf_email__" data-cfemail="410324332c202f6f0d20343320012431206f262e37">[email protected]</span></a>.
SUPPLEMENTARY INFORMATION:
Throughout this document whenever ``we,'' ``us,'' or ``our'' is
used, we mean EPA.
Table of Contents
I. Background and Purpose
A. The 2015 Ozone NAAQS
B. Ozone Transport Commission Model Rule for Adhesives and
Sealants
II. EPA's Evaluation of Connecticut's Submittal
A. RCSA 22a-174-24
B. RCSA 22a-174-44
III. Proposed Action
IV. Incorporation by Reference
V. Statutory and Executive Order Reviews
I. Background and Purpose
On April 30, 2025, the Connecticut Department of Energy and
Environmental Protection (CT DEEP) submitted a revision to its State
Implementation Plan for sections 22a-174-24 and 22a-174-44 of the
Regulations of Connecticut State Agencies (RCSA). The revision consists
of adding the 0.070 parts per million ozone standard in RCSA 22a-174-24
and clarifying the volatile organic compound calculation methods
available for adhesive and sealant products in RCSA 22a-174-44.
A. The 2015 Ozone NAAQS
Section 109 of the Clean Air Act (CAA) directs EPA to establish
National Ambient Air Quality Standards requisite to protect public
health with an adequate margin of safety (primary standard) and for the
protection of public welfare (secondary standard). Sections 109(d)(1)
of the CAA requires EPA to complete a thorough review of the NAAQS at
5-year intervals and promulgate new standards when appropriate.
Additionally, Section 107 of the CAA requires the establishment of air
quality control regions for the purpose of implementing the NAAQS.
On October 26, 2015, EPA revised both the primary and secondary
NAAQS for ozone to a level of 0.070 parts per million (ppm) to provide
increased protection of public health and the environment (See 80 FR
65292). This final ozone rule became effective on December 28, 2015.
B. Ozone Transport Commission Model Rule for Adhesives and Sealants
The Ozone Transport Commission (OTC) is a multi-state organization
created under Section 184 of the Clean Air Act. The OTC is responsible
for advising EPA on developing and implementing regional solutions to
the ground-level ozone problem in the Northeast and Mid-Atlantic
regions. The OTC committees develop consensus-based model rules and
guidelines for use by their members at their discretion. The OTC itself
is not a regulatory authority and does not adopt these as requirements
for the region. Each OTC member that opts to adopt a model rule or
guideline may modify it according to its own circumstances, and each
OTC member is the primary authority on interpreting its rules and
guidelines within its jurisdiction.
On December 7, 2006, the OTC issued the OTC Model Rule of Adhesives
and Sealants.\1\ The provisions of this model rule limit emissions of
VOCs from adhesives, sealants and primers. The model rule achieves VOC
reductions through two basic components: sale and manufacture
restrictions that limit the VOC content of specified adhesives,
sealants and primers sold in the state; and use restrictions that apply
primarily to commercial/industrial applications. By reducing the
availability of higher VOC content adhesives and sealants within the
state, the sales prohibition is also intended to address adhesive and
sealant usage at area sources. Emissions from residential use of
regulated products are addressed through the sales restrictions and
simple use provisions. The model rule is based on a 1998 reasonable
available control technology (RACT) determination prepared by the
California Air Resources Board (CARB).\2\ On April 2, 2024, the OTC
issued corrective/clarifying revisions to the model rule to clarify the
VOC calculation methods available for adhesive and sealant products.\3\
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\1\ See OTC Model Rule for Adhesives and Sealants.
\2\ See CARB Determination of Reasonably Available Control
Technology and Best Available Retrofit Control Technology for
Adhesives and Sealants.
\3\ See OTC Model Rules and Guidelines.
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II. EPA's Evaluation of Connecticut's Submittal
A. RCSA 22a-174-24
Connecticut's April 30, 2025, SIP submittal includes revisions to
RCSA section 22a-174-24, ``Connecticut primary and secondary ambient
air quality standards.'' Specifically, CT DEEP is revising subsection
(i) of section 22a-174-24 by adding subdivision (3) into Connecticut's
SIP. This regulation has been revised to maintain consistency between
the Connecticut AAQS and EPA's NAAQS for ozone. Specifically,
Connecticut adopted the 2015 ozone primary and secondary 8-hour
standards of 0.070 parts per million. A copy of CT DEEP's revisions to
RCSA section 22a-174-24 is located in the docket of this proposed
rulemaking.\4\
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\4\ See State Implementation Plan Revision Concerning Minor
Revisions to Two Air Quality Regulations: Attachment A-2, Changes to
the State Implementation Plan Resulting from the Amendment of RCSA
Sections 22a-174-24 and 22a-174-44 (p. 14).
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Connecticut's air quality standards rule, RCSA section 22a-174-24,
as well as amendments to this rule, have been previously approved into
the Connecticut SIP, with the most recent approval occurring on June
24, 2015 (See 80 FR 36242). EPA has reviewed Connecticut's revisions to
its ambient air quality standards, definitions, and references and has
determined they are consistent with the federal NAAQS in 40 CFR part
50. Connecticut's revised RCSA section 22a-174-24 includes additional
and more stringent air quality standards than the previous SIP-approved
version of this rule. Thus, the revised RCSA section 22a-174-24
satisfies the anti-backsliding requirements in Section 110(l) of the
CAA and we are proposing to approve Connecticut's revised rule into the
Connecticut SIP.
B. RCSA 22a-174-44
Connecticut's April 30, 2025, SIP submittal includes revisions to
RCSA section 22a-174-44, ``Adhesives and sealants.'' Specifically, CT
DEEP is revising subdivision (2) of subsection (e) of section 22a-174-
44 in Connecticut's SIP. This regulation has been revised to correct
the VOC calculation methods for adhesive and sealant products.
Specifically, the correction clarifies the VOC content determinations
for low-solids adhesives, sealants, adhesive primers and sealant
primers as set out in subparagraph (C) of subdivision (2).
[[Page 52290]]
Additionally, this correction clarifies the calculation methodology for
non-low solids adhesives, sealants, adhesive primers and sealant
primers. A copy of CT DEEP's revisions to RCSA section 22a-174-44 is
located in the docket of this proposed rulemaking.\5\
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\5\ See State Implementation Plan Revision Concerning Minor
Revisions to Two Air Quality Regulations: Attachment A-2, Changes to
the State Implementation Plan Resulting from the Amendment of RCSA
Sections 22a-174-24 and 22a-174-44 (p. 14-16).
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Connecticut's adhesives and sealants rule, RCSA section 22a-174-44,
has been previously approved into the Connecticut SIP on June 9, 2014
(See 79 FR 32873). RCSA section 22a-174-44 is based on the OTC Model
Rule for Adhesives and Sealants and includes the calculation methods
available for adhesive and sealant products from the OTC Model Rule.
EPA has reviewed Connecticut's revisions to its adhesives and sealants
rule and has determined they are consistent with the revised April 2,
2024, OTC Model Rule for Adhesives and Sealants. EPA is proposing to
approve Connecticut's revised rule into the Connecticut SIP.
III. Proposed Action
EPA is proposing to approve Connecticut's April 30, 2025 SIP
revision to their RCSA 22a-174-24 and 22a-174-44, and incorporate each
into the Connecticut SIP. EPA is soliciting public comments on the
issues discussed in this notice or on other relevant matters. These
comments will be considered before taking final action. Interested
parties may participate in the Federal rulemaking procedure by
submitting written comments to this proposed rule by following the
instructions listed in the ADDRESSES section of this Federal Register.
IV. Incorporation by Reference
In this rule, the EPA is proposing to include in a final EPA rule
regulatory text that includes incorporation by reference. In accordance
with requirements of 1 CFR 51.5, the EPA is proposing to incorporate by
reference changes to Connecticut RCSA sections 22a-174-24 and 22a-174-
44 as adopted on April 2, 2025, and described in section II. of this
preamble. The changes primarily update the AAQS to match the primary
and secondary NAAQS for ozone and clarifies VOC calculation methods for
adhesive and sealant products. The EPA has made, and will continue to
make, these documents generally available through <a href="https://www.regulations.gov">https://www.regulations.gov</a> and at the EPA Region 1 Office (please contact the
person identified in the FOR FURTHER INFORMATION CONTACT section of
this preamble for more information).
V. Statutory and Executive Order Reviews
Under the Clean Air Act, the Administrator is required to approve a
SIP submission that complies with the provisions of the Clean Air Act
and applicable Federal regulations. See 42 U.S.C. 7410(k); 40 CFR
52.02(a). Thus, in reviewing SIP submissions, EPA's role is to approve
state choices, provided that they meet the criteria of the Clean Air
Act. Accordingly, this proposed action merely approves state law as
meeting Federal requirements and does not impose additional
requirements beyond those imposed by state law. For that reason, this
proposed action:
<bullet> Is not a significant regulatory action subject to review
by the Office of Management and Budget under Executive Orders 12866 (58
FR 51735, October 4, 1993);
<bullet> Is not subject to Executive Order 14192 (90 FR 9065,
February 6, 2025) because SIP actions are exempt from review under
Executive Order 12866;
<bullet> Does not impose an information collection burden under the
provisions of the Paperwork Reduction Act (44 U.S.C. 3501 et seq.);
<bullet> Is certified as not having a significant economic impact
on a substantial number of small entities under the Regulatory
Flexibility Act (5 U.S.C. 601 et seq.);
<bullet> Does not contain any unfunded mandate or significantly or
uniquely affect small governments, as described in the Unfunded
Mandates Reform Act of 1995 (Public Law 104-4);
<bullet> Does not have federalism implications as specified in
Executive Order 13132 (64 FR 43255, August 10, 1999);
<bullet> Is not subject to Executive Order 13045 (62 FR 19885,
April 23, 1997) because it approves a state program;
<bullet> Is not a significant regulatory action subject to
Executive Order 13211 (66 FR 28355, May 22, 2001); and
<bullet> Is not subject to requirements of Section 12(d) of the
National Technology Transfer and Advancement Act of 1995 (15 U.S.C. 272
note) because application of those requirements would be inconsistent
with the Clean Air Act.
In addition, the SIP is not approved to apply on any Indian
reservation land or in any other area where EPA or an Indian tribe has
demonstrated that a tribe has jurisdiction. In those areas of Indian
country, the rule does not have tribal implications and will not impose
substantial direct costs on tribal governments or preempt tribal law as
specified by Executive Order 13175 (65 FR 67249, November 9, 2000).
List of Subjects in 40 CFR Part 52
Environmental protection, Air pollution control, Incorporation by
reference, Ozone, Reporting and recordkeeping requirements, Volatile
organic compounds.
Authority: 42 U.S.C. 7401 et seq.
Dated: October 1, 2025.
Mark Sanborn,
Regional Administrator, EPA Region 1.
[FR Doc. 2025-20463 Filed 11-19-25; 8:45 am]
BILLING CODE 6560-50-P
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