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### ^ » Div . U . S . Environmenta

l Protectio nAgenc y Researc h Triangl ePark , NC 2771 1 FA X Number: (919)541-550 9

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919-541 -P. 3

16 4 and a s define d b

ya Stat e o r India n Governin g Bod yfo r nonfedera l land s withi n thei r respectiv e jurisdictions . Th e propose d definitio n attempt s t o includ e th e fundamenta l purpose s fo r whic h suc hland s hav e bee n establishe d an d preserved . Th e propose d definitio n als o recognize s tha t th e FLM s hav e th e responsibilit y t o identif yAQRV s fo r Federa l tllaafl 4 r areas . Th e propose d /^v ^ definitio n i s als o intende d t o clarif yth e EPA' s positio n tha t State s and India n Governin g Bodie s mayidentif yAQRV s i n area s whic hthe yelec t t o hav e redesignate d a s Clas s I areas. 5 3 Se e propose d sectio n 51.166(b)(40 ) an d sectio n 52.21(b)(41) . Th e EPAi s proposin g t o defin e "advers e impact s o n ai r qualit yrelate d values " a s a deleteriou s effec t resultin g i n whol e o r i n par t from th e emission s o f a propose d sourc e o r modification , tha t interfere s wit hth e management , protection , preservation , o r enjoymen t o f th e AQRV s o f a Federa l Clas s I area . Se e propose d sectio n 51.166(b)(41 ) an d sectio n 52.21(b)(42) . Unde r th e par t 5 2 PS D regulations , th e propose d definitio n woul d b e i n additio n t o th e existing definitio n o f "advers e impac t o n visibility " [sectio n 52.21(b)(29) ] whic hi s derive d fromth e EPA' s visibilit yregulation s adopte d pursuan t t o

5 3 Sectio n 164(e ) o f th e Ac t provide s fo r EPAprotectio n o f AQRV s whe n th e EP Ai s requeste d t o resolv e a disput e betwee n a Stat e and Trib e abou t th e redesignatio n o f a n are a o r a propose d PS D permit . Th e reade r i s als o referre d t o th e discussio n i n sectio n IV.C. 5 o f thi s preamble , wher e EPAclarifie s it s positio n concernin g th e authorit yo f State s an d India n tribe s t o establis h AQRVs . PRELIMINAR

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16 7 The proposa l als o satisfie s th e provision s unde r sectio n 165(e)(3)(B ) o f th e Ac t whic hrequir e a n analysi s o f th e climat e an

d meteorology , terrain , soil s an d vegetation , an

d visibility

"i n th e are a potentiall yaffecte d b yth e emission s fro m suchfacility. " Onc e th e statu s o f th e Clas s I increment s i s know nfro m th e analysi s provide d b yth e applicant , thi s latte r informationwill. provid e th e basi s fo r a demonstratio n o f whethe r



### A th e sourc e wil l hav e a n advers e impac t o n AQRVs . Th e EPA generall y

believe s tha t th e combine d informationa l requirement s containedi nthi s propose d provisio n wil l greatl yfacilitat e resolutiono f AQR

V issue s whic hmus t ultimatel yb e addresse d a s a prerequisit e t o permi t issuance . Tha t is , th e analyse s wil l revea l whethe r the Clas s I increment s wil l b e violated , an d establis hth e relativ e role s o f th e applicant , th e FLMan d th e permitting authorit yi n makin g decision s concernin g th e AQRVs . I f a violatio n o f a Clas s I incremen t wil l occur , th e applican t wil l provid e informatio n pertainin g t o th e source' s impact s o n suc hthing s a s soils , vegetatio n an d visibilit yt o demonstrat e tha t n o advers e impac t o n AQRV s wil l occur . I f th e FL M agree s wit hthi s demonstration , th e permittin g authorit ymay issu e the PS Dpermi t eve n thougha violatio n o f a Clas s I incremen t ha s beenshown . Alternatively , whe n th e applicant' s analysi s shows , t o th e satisfactio n o f th e permittin g authority , tha t no violatio n o f a Clas s I incremen t wil l occur^h e PRELIMINAR

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16 8 informatio n pertainin g t o impact s o n suc hthing s a s soils , , r itWvf' L ir

* vegetatio n and visibilit ywil l hel p th e FLMcoweidi i a n advers e A impac t o n AQRV s wil l occur , an d t o mak e a demonstratio n o f suc h advers e impac t t o th e permittin g authority , wher e appropriate . Whil e th e Ac t i s silen t concernin g th e timin g fo r filin g '!' . 1,,,-J. . thi s notice , th e EPAbelieve s tha t i t i s necessa-py-and * reasonabl e A t o requir e th e FLMo r othe r name d official s t o fil e th e notic e befor e th e permittin g authorit yissue s it s completenes s / » determinatio n o n th e permi t application. . On e reaso n fo r this.i s tha t th e filin g o f th e notic e establishe s certai n informationa l
_/ requirement s whic hserv e a s a measur e o f th e application' s completeness . Moreover , i t i s generall yimportan t tha t th e notic e b e file d earl yi n th e permi t proces s s o tha t th e applican t ca n provid e th e appropriat e Clas s I analyse s i n a timel ymanne r s o a s no t t o delayth e revie wan d issuanc e o f th e permit . TAJ . a P AC"AC a U * &.»/ S

. -In aeiBf

tca-ae'S , particularl ywher easourc epropose s t o r locat e withi n 10 0 kilometer s fro ma Federa l Clas s I area , th e applican t ma yoho esse, t o coordinat e wit hth e FL Mprio r t o th e submitta l o f it s applicatio n i n orde r t o b e abl e t o lear n o f an y FL Mimconcern s an d submi t th e Clas s I analyse s alon g wit hth e A othe r require d informatio n i n it s initia l permi t application . Otherwise , th e FL Mwoul d jumml ^ b e expecte d t o fil e th e notic e allegin g potentia l affect s o n th e Federa l Clas s I area , wher e appropriate , durin g th e 3 0-da yperio d fo r revie wo f th e PRELIMINAR Y STAF F WORKIN GDRAF T FO R OFFIC E O F MANAGEMEN T AN D BUDGE T REVIE W* DOE S NO T REPRESEN T OFFICIA L EP APOLIC Y ** * Jun e 29 , 199 5 [fil e name : Master6.29 ] ** *P. 6



### 16 9 applicatio n fo r completeness , a s provide d unde r today' s proposa l and describe d i n sectio n IV.C. 2 o f thi s preamble . I n th e absenc e o f a notic e bein g file d concernin g potentia l Clas s I impacts , th e applican t wil l b e require d t o demonstrat e tha t emission s fro m th e propose d sourc e d o no t caus e o r contribut e t o /(.violatio n o f th e A Clas s I I increment s o r NAAQ S anywhore ^ (~~ Today' s proposa l t o requir e th e notic e t o b e file d prio r t o th e permittin g authority' s issuanc e o f it s completenes s determinatio n i s no t intende d t o preclud e th e FL Mfro mraisin g concern s abou t potentia l affect s a t a late r tim e durin g th e permi t review , althoug hth e EP Acertainl yanticipate s tha t thi s wil l no t nee d t o occu r frequently . Th e FL Mma yfil e a notic e a t a late r tim e if , fo r som e reason , i t wa s no t file d prio r t o th e permittin g authority' s completenes s determination ; however , i n T^ /r\ / /*\-i 

### filin g late r th e FL Mmus t assum e a greate r burde n fo r (JJ^ demonstratin g a n advers e impac t o n AQRVs . Tha t is , th e FL Mwil l the n hav e t o wor k wit hth e applican t and th e permittin g authorit y t o obtai n th e necessar yinformatio n i f i t i s no t alreadyi n th e application . Also , i n th e absenc e o f a demonstratio n tha t th e propose d sourc e wil l caus e o r contribut e t o a violatio n o f a Clas s I increment , th e FL Mmus t demonstrat e t o th e satisfactio n o f th e permittin g authorit ya n advers e impac t o n AQRVs . Th e EP Arequest s comment s o n thi s aspec t o f th e proposa l i n ligh t o f th e specifi c implication s associate d wit hth e failur e t o PRELIMINAR YSTAF F WORKIN GDRAF T FO R OFFIC E O F MANAGEMEN T AND BUDGE T REVIE W* DOE S NO T REPRESEN T OFFICIA L EP APOLIC Y *• * Jun e 29 , 199 5 [fil e name : Master6.29 ] ** *P. 7

17 1 specifi c pollutan t emissions , it s relativ e locatio n t o th e Clas s I area , and th e known ai r qualit yrelate d value s i n th e affecte d Federa l Clas s I are a t o suppor t th e allegatio n o f a potentia l advers e impac t o n AQRVs . Th e notic e i s intende d fo r

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i {•**- sp«e.v/v c <T\as s r* u^v&t-v*vaX<..A administrativ epurpose s an dshoul dno tb euse dfo ran y A-Jprejudgmen t o n th e par t o f th e permittin g authorit ya s t o whethe r anyadvers e impac t o n AQRV s wil l actuall ynrmr , nr whethe r a ' A n importan t relate d issu e concern s th e responsibilit yfo r carryin g ou t an

yadditiona l technica l analyse s whic hma yb e necessar yfo r th e FLMt o demonstrat e tha t a source' s emission s wil l hav e a n advers e impac t o n AQRVs . Th e EPAgenerall yexpect s th e analyse s performe d b yth e applican t unde r th e propose d provision s t o enabl e a FLMt o -aaaoa g th e impact s o n AQRVs . I n som e cases , however , additiona l informatio n ma yb e necessar yt o mak e a thoroug hAQR V assessmen t an

d ther e i s a questio n a s t o wh o shoul d bea r th e responsibilit yfo r suc hinformation . Th e generall ylimite d resource s availabl e t o FLM s ma ymak e i t very difficul t fo r themt o independentl ycomplet e al l th e additiona l analyse s whic hma yb e needed . Applicant s fo r PS D permit s ar e typicall yrequire d t o provid e informatio n an d analyse s necessary fo r th e permittin g authorit yt o mak e a variet yo f ambien t ai r qualit ydecisions . Yet , applicant s shoul d no t necessaril yb e expecte d t o conduc t a n unlimite d numbe r o f studiesq» t the rcquost . PRELIMINAR

YSTAF F WORKINGDRAF T FO R OFFIC E O F MANAGEMENT AN D• i J>|A"-«'*

J BUDGE T REVIE

W * DOE S NOT/REPRESENT OFFICIAL EP A POLICY ** * June 29 , 199 5 /fil e name : Master6.29 ] ** *

vP. 8

17 2 o f th o FL M-i

n orde r t o acoommodat a th a informationa l need s tha t •th e FL Mma yhava . Th e EPAsolicit s publi c commen t o n thi s issu e i n orde r t o establis ha n equitabl e approac hfo r completin g th e require d analyse s fo r Clas s I area s applicabl e t o individua l PS D applicants . Specifically , th e EPAseek s inpu t i n determinin g wha t th e respectiv e responsibilitie s o f th e FLMan d th e permi t applican t shoul d b e fo r carryin g ou t th e analyse s necessaryt o enabl e th e FL Mt o demonstrat e a n advers e impac t o n AQRVs . Th e EPAwil l conside r suc hinpu t an d decid e whethe r th e regulation s shoul d explicitl yaddres s thes e individua l roles . Propose d section s 51.166(p)(2)(i ) an d 52.21(p)(2)(i ) als o recogniz e tha t th e FLMi s no t th e onl yon e authorize d b yth e Ac t t o fil e th e notic e concernin g potentia l impact s o n a Federa l Clas s I area . Specifically , sectio n 165(d)(2)(C)(i ) o f th e Ac t authorize s tha t th e notic e b e file d b yan yon e o f severa l officials , includin g th e Federa l officia l charge d wit hdirec t responsibilit yfo r managemen t o f an yland s withi n th e Clas s I are a potentiall yaffected , th e Federa l Lan d Manage r o f suc h lands , th e EPAAdministrator , o r th e Governo r o f a n adjacen t Stat e containin g suc hClas s I lands . Accordingly , th e EPAi s trackin g thi s statutoryrequiremen t b yincluding i n th e proposa l tha t th e FL Mo r othe r name d official s mayfil e a notic e whe n i t

< . & • i s believe d tha t a propose d sourc e mayaffec t ai r qualit ya A PRELIMINAR

YSTAF F WORKINGDRAF T FO R OFFIC E O F MANAGEMENT AN D BUDGE T REVIE W* DOE S NO T REPRESENT OFFICIAL EP A POLICY ** * June 29 , 199 5 — - [fil e name : Master6.29 ] ** *P. 9

17 9 application^Th e propose d requirement s ar e t o appl yo n th e basi s o f th e proximit yof"th e propose d sourc e o r modificatio n t o a Federa l Class-xfarea . i Wit hth e propose d revisions , th e FL Mi s affordeda

nopportunit yt o revie wth e content s o f an yPS Dpermi t applicationt o determin e whethe r sufficien t informatio n i s availabl e t o asses s th e potentia l impact s o n a Federa l Clas s I area . A s describe d earlier , i n sectio n IV.Cl . o f thi s preamble , the EP A ha s propose d t o requir e tha t th e FLM(or othe r name d officials ) fil e a notic e allegin g potentia l Clas s I impact s i n orde r t o trigge r specifi c Clas s I informationa l need s i nthe permi t application . Th e propose d 10 0 kilomete r cutof f applie s onl y t o the automati c notificatio n (including forwardin g o f permi t application ) o f th e FLMtha t suc hsourc e ha s appliedfor a PS Dpermit—

Ther e i s n o i-nhoron t accumptio n tha t suc hsourc e "O_V Me^^U ^ wil l affec t the Federa l Clas s I area . (1 ) Notificatio n t o FLMfo r source s locate d withi n 10 0 kilometers . Becaus e source s locate d withi n a 100-kilomete r range o f Federa l Clas s I area s generall yhav e th e greates t potentia l fo r affectin g th e ai r qualit yi n thos e areas , EP A i s proposing t o requir e notificationo f th e affecte d FLMwhe n a PS D permi t applicationi s receive d fo r a ne wo r modifie d sourc e proposin g t o locat e withi n10 0 kilometer s o f a Federa l Clas s I area . The proposednotificationinclude s th e sending o f a copyo f th e

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20 3 level s shoul d b e adequatel yconservative . Thes e FLM s have , i n fact , recommende d significan t impac t level s tha t ar e mor e restrictiv e tha n thos e bein g propose d todayb yEPA . Thei r recommende d level s wer e develope d usin g th e ratio s derive d froma compariso n o f significan t impac t levels ^ "alread yuse d b

yEPAfo r Hfe . NAAS tf*-^ 4

. <Lv~MMt<L S /ZTZ\ A jta&asSPV PincrementTM" - ~ ~ J' >an d th e respectiv e Claaa I I increments . Fo r comparativ e purpose s the significan t impac t level s bein g propose d todayb yEPAan

d th e level s recommende d b

yth e FLM s ar e show n below . Pollutan t

Sulfur Dioxide

Particulat e Matte r
NitrogenDioxide Averagin g Tim e

Annua l 24-hour 3-hou r Annua l 2 4 -hou r Annua l Level s

Propose d b

y EPA(ug/m3 ) 0. 1 0. 2 1. 0 0. 2 0. 3 0. 1 Level s

Recommendedb

y FLMs (ug/m3 ) 0.0 3 0.0 7 0.4 8 0.0 8 0.2 7 0.0 3

The EP A wishe s t o emphasiz e tha t th e specifi c significan t impac t level s tha t i t i s proposin g todayfo r the Clas s I increment s ar e no t intendedt o serv e a s threshold s for
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# s X* ' -fa. MXt ^ "*" " /\Gj^vJ a20 4 <r<~ determinin g whethe r a n advers e impact / o n AQRV s wil l occur . An advers e impac t o n AQRV s i n a Clas s I are a depend s upo n th e sensitivit yo f th e particula r AQR V an d involve s a n assessmen t o f potentia l harm . An ambien t pollutan t concentratio n tha t i s deeme d t o b e o f relativel yinsignifican t consequenc e fo r purpose s o f incremen t consumptio n shoul d no t automaticall yb e considere d inconsequentia l relativ e t o th e inherentl yfact-specifi c demonstratio n upo n whic ha n advers e impac t o n AQRV s i s t o b e based . Thus, j th e fac t tha t a source' s predicte d ambien t impac t 

# Li n i s les s tha n a n applicabl e Clas s I incremen t significan t impac t leve l woul d no t reliev e a permittin g authorit yo f th e dut yt o conside r th e FLM' s demonstratio n tha t a propose d sourc e wil l hav e a n advers e impac t o n AQRV s i n a Federa l Clas s I area . Th e EPAi s declinin g t o establis hsignifican t impac t level s fo r fact-bound , site-specifi c AQRVs . Th e FLMi s entruste d wit h protectin g AQRV s and th e decisio n t o establis han yappropriat e significan t impac t level s fo r th e AQRV s shoul d res t wit hth e FLM . Anysignifican t impac t level s fo r AQRV s maynecessaril yb e site

specifi c sinc e eac hAQR V an d it s associate d critica l pollutan t loading s ma yb e differen t fromare a t o are a an d eve n withi n individua l Federa l Clas s I areas . A s describe d i n sectio n IV.C.I.e. , th e FLM' s Rol e i n Triggerin g a Clas s I Incremen t Analysis , th e EPAi s proposin g regulation s tha t cal l fo r th e filing o f a notic e b yth e FLM , th e PRELIMINAR

YSTAF F WORKINGDRAF T FO R OFFIC E O F MANAGEMENT AN D BUDGE T REVIE W* DOE S NO T REPRESENT OFFICIAL EP A POLICY ** * June 29 , 199 5 [fil e name : Master6.29 ] ** *P.1 2

. /

/ Ill 20 5

Federa l officia l wit hdirec t lan d managemen t responsibility , th e Administrato r o r th e Governo r o f a n adjacen t Stat e containin g a Federa l Clas s I are a t o trigge r th e dut yo f a sourc e t o conduc t a Clas s I incremen t and Clas s I impac t analysis . Th e notic e woul d alleg e tha t emission s froma propose d sourc e caus e o r contribut e t o a chang e i n th e ai r qualit yi n a Federa l Clas s I are a and woul didentif yth e potentia l effect s o f suc hchange . Source s no t receivin g th e notic e ar e no t require d t o conduc t a Clas s I incremen t analysis . Thus , th e significan t impac t level s tha t EPAi s proposin g fo r clas s I increment s woul d appl y t o propose d source s tha t hav e receive d thi s notice . A determinatio n tha t a propose d sourc e receivin g a Clas s I notic e ha s a n insignifican t impac t o n Clas s I increment s woul d exclud e i t fromfurthe r incremen t analysi s bu t no t froma clas s I are a impacts , assessment . Th e EPArequest s publi c comment s o n it s proposa l t o establis hsignifican t impac t level s fo r Clas s I increment s i n genera l an d th e propose d levels , specifically . 5 . Clarificatio n o f Miscellaneou s Issues . Th e discussio n whic hfollow s addresse s severa l relativel y discret e issues . Th e EPAi s clarifyin g curren t polic yi n area s wher e ther e i s potentia l fo r significan t confusio n o r uncertaint y and , i n som e instances , i s proposin g conformin g change s t o th e

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16 1 charge d wit hdirec t responsibilit yfo r managemen t o f an yFedera l land s withi n a Clas s I are a hav e a n "affirmativ e responsibility " t o protec t th e ai r qualit yrelate d value s (AQRVs ) (including visibility ) o f suc hlands . Th e Act , sectio n 165(d)(2)(B) . Th e FL Mprotect s AQRV s througha prescribe d statutoryrol e i n assessin g th e potentia l impact s o f a propose d PS D source . Th e Act , sectio n 165(d)(2)(C) . I f a propose d sourc e doe s no t caus e or contribut e t o a violatio n o f a Clas s I increment , th e FL Mmay , nevertheless , demonstrat e t o th e satisfactio n o f th e permittin g authority

tha t th e sourc e wil l hav e a n advers e impac t o n AQRV s i n a specifi c Federa l Clas s I are a and , i f s o demonstrated , th e PS D permi t shal l no t b e issued . Conversely , i f th e propose d sourc e wil l caus e or contribut e t o a violatio n o f a Clas s I increment , thenthe owne r o r operato r mus t demonstrat e t o th e satisfactio n o f th e FL Mtha t ther e wil l b e n o advers e impac t o n AQRVs . Th e Act , sectio n 165(d)(2)(C)(ii ) an d (iii) . 2 . Improvin g Protectio n o f Ai r Qualit yRelate d Value s i n Clas s IArea s ^uJ L£vM/irirv\»vw,vJ> l«ns<--> s Ove r th e pas t severa l year s Congres s .-an d -th e FLM s hav e expresse d increasin g concer n abou t th e effect s o f ai r pollution being observedan

ddocumente d i n Clas s I areas , couple d wit hth e

an dWildlif e Service . I n today' s notice , th e EPAi s proposin g t o clarif y th e definitio n o f "Federa l Land Manager " t o reflec t th e FLM' s authorit yt o designat e anothe r officia l t o ac t o n hi s o r he r behal f wit hrespec t t o Federa l Clas s I areas . Se e propose d section s 51.166(b)(24 ) and 52.21(b)(24) . PRELIMINAR

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21 6 6 . Informatio n Clearinghous e (Federa l Clas s I areas) . Th e CAAA

C recommende d tha t th e EPAestablis ha clearinghous e o f informatio n abou t Federa l Clas s I areas . Th e EPAi s currentl y working ona clearinghous e projec t t o b e incorporate d int o th e EPA' s publi c NS R bulleti n boar d (NSR BB ) whic hi s hoste d b y the Offic e o f Ai r Quality Plannin g and Standard s (OAQPS ) Technology Transfe r Network(TTN) . User s o f th e NS R B B maysearc hfor , retrieve , the n rea d and/o r downloa d ful l tex t o f recen t polic y and guidanc e material . Th e user s ma yals o solici t fromo r provid e t o othe r partie s i n th e NS R permittin g community , informatio n pertainin g t o area s o f interes t withi n NSR . Th e EPAi s expandin g th e NS R bulleti n board' s capabilit yi n tw o respect s t o addres s th e CAAAC' s recommendations . First , consisten t wit hth e propose d requiremen t t o improv e permittin g authorit yand FL Mcoordination , describe d i n sectio n IV.C.2. , above , the EPAwil l instal l a sectio n exclusivel yfor postin g notic e o f majo r NS R permi t application s b ypermittin g authoritie s and/o r permi t applicants . Al l FLM s wil l hav e acces s t o th e database . Thi s segmen t o f th e NS R B B wil l provid e ver ybasi c CX. bvve f de-rcrZfrhim af sourc e information , suc ha s th e nam e an d typ e o f source , it s locatio n nose

* UTM coordinates) , th e distanc e betwee n th e propose d sourc e and al l Federa l Clas s I area s withi n 50 0 km , and th e propose d emissio n rat e o r ne t emission s increas e o f eac hai r pollutan t associate d wit hth e project . I t als o wil l allo wpermi t PRELIMINAR

YSTAF F WORKIN

GDRAF T FO

ROFFIC E OF MANAGEMENT AN D BUDGE T REVIE

W * DOE S NO T REPRESENT OFFICIA L EP A POLICY ** * June 29 , 199 5 [fil e name : Master6.29 ] ** *