Vern1ontofEnvironmentalConservationTO:THRU:FROM:DATE:RE:MEMORANDUMDavidMears,DECCommissionerElaineO'Grady,AQCDDirectort:!)A:)£_.·'1>ougElliott,AQCDPermittingSectionChiefJuly23,2014RevisionstoVermont'sStateImplementationPlanAgencyofNaturalResourcesJUL232014*********************************************************************************************PleasefindattachedforyourreviewandsignaturearevisiontoVermont'sStateImplementationPlan(SIP)tobesubmittedtotheEPA.VermontisrequiredtohaveafederallyenforceableSIPthatidentifieshowitwillmaintaintheprimaryandsecondaryNationalAmbientAirQualityStandards(NAAQS)setforthinSection109oftheCleanAirAct.ThisrevisionconsistsofamendmentstovariousprovisionsofVermont'sAirPollutionControlRegulations.Theserules,adoptedonJune20,2014,includenewandrevisedNAAQSassetbytheEPA,clarifyusedoilpermitexemptions,codifyafivetonperyearemissionthresholdforpermitapplicability,andchangethepermittingregulationstomakethemmoreconsistentwithfederalstandards.{.Uj'\tb\CtIfyouhaveanyquestions,pleasel\meorMeganO'Toole.PleasereturnthesignedSIPpackagetoCorieDunn,andwewillsubmit'therevisiontoEPA.To preserve,enhance,1·estore,andconse1·ueVermont'snatura/resources,andprotecthumanhealth,forthebenefitofthisandfuttu·egenerations.

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)StateofVermontAGENCYOFNATURALRESOURCESDepartntentofEnvironmentalConservationAirQuality&ClimateDivisionDavis2,OneNationalLifeDriveMontpelier,VT05620-3802(802)828-1288DavidConroyEPA-NewEngland,RegionI5PostOfficeSquare,Suite100Boston,MA02109-3912July25,2014RE:VermontStateImplementationPlanSubmittalforRevisionstoVermontAirPollutionControlRegulationsIncludingSubchapterIll(AAQS)andSubchapterV(Permitting)DearMr.Conroy:PleasefindenclosedVermont'ssubmittalforrevisionstotheVermontStateImplementationPlan(SIP)toincorporateamel')dmentstotheVermontAirPollutionControlRegulations(VAPCRs)includingupdatestoSubchapterIll(AmbientAirQualityStandards)andSubchapterV(ReviewofNewAirContaminantSources).TheSubchapterVamendmentsareprimarilyintendedtoadoptthePM2.5permittingprovisionsintothestatemajorsourcepermittingprogram,howeveradditionalchangesweremadetothestatepermittingprogramtoreflectcurrentpermittingpracticesfordeterminingsourcessubjecttopermittingaswellasclarificationsandminormodificationstoexistingpermittingrequirements..Enclosure5providesadetailedlistoftherevisedregulationsbeingsubmittedforSIPapproval.Insupportofthissubmittal,pleasefindenclosedthefollowingadditionaldocuments:Enclosure1.AcopyofthepublicnoticeEnclosure2.Certificationpursuantto40CFR§51.102Enclosure3.Listofwitnesses,summaryofcommentsreceived,andresponsestocommentsEnclosure4.SIPtechnicalsupportdocumentEnclosure5.ListofrevisionstoVAPCRstobeincludedinVT'sSIPEnclosure6.AnnotatedversionofrecentlyadoptedamendmentstoVAPCRstobeincludedinVT'sSIPEnclosure7.FulltextofVAPCRseffectiveJuly5,2014Ifyouhaveanyquestions,pleasecontactElaineO'Gradyat(802)343-7221,byemailatElaine.Ogrady@state.vt.us,orinwritingattheaboveaddress.Sicer.u,CommissionerDepartmentofEnvironmentalConservationcc:IdaMcDonald,EPARegionIElaineO'Grady,AQCDEnclosuresRegionalOffices-Barre/EssexJet/Rutland/Springfield/St.Johnsbmy

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# ICERTIFICATIONOFVERMONTSTATEIMPLEMENTATIONPLAN(SIP)ADEQUACYREGARDINGCLEANAIRACTSECTIONS110(a)(1)AND(2)StateofVermontDepartmentofEnvironmentalConservationAirQualityandClimateDivisionjuly25,2014VERMONTI I I I I I I I I I I I I I I I I IENCLOSURE1PUBLICNOTICEOFINTENTTOREVISETHESTATEIMPLEMENTATIONPLANFORAIRQUALITYPostedonlineonDecember31,2013ontheAQCDwebsite(http://www.anr.state.vt.us/air/htm/ProposedAmendments.htm)p..PollutionContlolDiWi...XRecentlyAdoptedAndProposedRegulations1l1i5wEbpaoebiUendedtoJlfO'r1&flfonn=Uwonreq;Jctayd\cnqestotheVNmMIAirPoi"'utitmC«tUoJTheadcptionofnewrf9,Jictioosoramft"dmeotsofai5tinQ5\t:jttttotheldrnirnsintiverultzdtirtiOOproceduresofTlle3!irttlr.<fesAr.notatedOiaptH2SPf(Kedure5Artor·APA1gavtmedb-1theSeafta'yofSta(e.ThtAPArfQI.ifesanAotnCYPfoposinorequ'atct)'amendmentstof\IBowceftlinstepsandCOI'II4)leteformsdttllbtornaproposedAmendmentstoSubchilpterIIIAmbientAJrStmdards,VennontAirPollutionControlRegulaUons:TheAQMcyofUilturolRtsiJUI'CES,thrco;htMurQua'ityandaJrrute0.-.ASionintheOepcnmemofEnvtronmtf1ta:listoSobdupc:HmAmblrotA'fQuaf)yStindirdsiiindsevtra1otherminortDtheVEmlootNrPclbtfonCora<llnotedbelow.TheprimarypurposeofthH:rufM\.limo!.;toupdateV«mcnfsambltnta!rQU-iltysbr!licrdsforNrtJOJbtematiH,cfntrooen.sulfurdi'Olide,ozDM,Gtldleadtomilk.ethtmccnststentwiththeAmblMtAJrQua\tyStin:f;.rck(UAAQS),\..tuchisrfQ!liredtomfft\mdtfthefalmlCleanNrAct(CAA}.Hii'Wdarifylnoamendm«.tsarealsoprOf)osedforthepennittinQr!Q'.Gtions.Amlnorls:akof01USfdoftccmbtskf'l,tnlnoupthtrulewlhVMMntHazardousWasteRufesiindsttlinganewthrooohputthrE'Shold.AminorimEOdmmtispro;osedtodati(ytha:!OOI.I'cgthanfr1etonspttyearoftmlssionsdonotrfQitreaperm..'t.Apubliche.ilrlniJonOJC"'S'IdmKrts1WIbeonWMdJyFebrulry3rdat6:00PJ·IatAuditoBJmInthePavilionOffice109StateStrHt,Vtl'mOillThtdut.'lil.ef¥commmtstsMoM;;y,FtbnnryUth..Theput;UccommffltpfrtodandhecMQforthisrule.,.,illi!soservei.'SthecommMtpertodandheartngundk40c.F.fl§SL102ruC()tresoenifn\1rf\isicnstoVermont'sSbteImclfementationPbn{SIP)tocompfywththeCAA.fJoa1ProposrdRuteAdrn!JtStmMtproqdnsForms(assubmt.ttdtoLCAA)•5111JU!nfoqntUOf!tlmotlklQonkMrtogoftttealfowe.dsutturcontJntoffuelscommcocfngJulylit1!ill.•2JI4JI4A4gpftdilmtf)!tntntstothelowtmlssicmyttJicleRJiesv

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# is also

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# up 

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to renect

the NMOS.

wtrld\

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# to Vermont

under

federa

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Resources 

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# webs

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# Published

in newspapers

of record January

2, 2014 (Example

from

the Times

Argus) 

# Proposed

State

Rules By law

, public

notice

of proposed

**~s**



# m

u st be

g

t ven

by publication d.D 

# newspiipers

of record

. The

p ur pose

of these notices

IS

to

g

t ve the

pu

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a chance

to respond

t o



# p roposals

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f urther Information concernJngany

sched

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cop

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regarding proposed

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# or

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perso

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# may

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t we Committee

or Adm.1.01St.ratlve

Rules

, State

Ho

u se

, Montpel

i er

. Vermon

t 05M2 (828-2231) 

# Amendments



# t o Air

P ollution



# Control RegulatJons Vermont

Proposed

Ru

l e:

1 3P047 

# AGENCY:

Vt.

Ag

en

cy

of Na

t ura

l' Resources CONCISE SUMMARY:

The

p

r ilnary purpose

o

f tbls rulemaklng

Is 

# t o upd

a te Vermont

' s amb

i en

t

a li 

# quality standards

for

p articula

t e matter,

oxides

of nitrogen

, sulfur

d

i oXide,

orone,

and

lead

to make

tbem conststent

with

the National

Ambien

t Air 

# Quality 

# Standards

(NAAQS)

, which Vermont

IS req

u ired

to meet under the federal

dean

Atr

Act

( CAA

}. Minor clarifying amendments

are also proposed

for

the permitting

r egulations

. A cntnor amendment is alSO 

# proposed

for used

oil combustion

, trUing

up the

rule with Vermont Hazardous

Waste Management

Rules

and setting

a new throughput

threshold

. A minor amendmen

t Is also 

# proposed

to clar

i fy that most sources

less than



# five tons

per year

of emissions do not requue

a **~rmJt.**



# The

pu

b lic comment

pertod

and hearing for this

rule



# will

also

s erve

as the comment

period

and hear10g unde

r 40 

# C.F.R

. § 51.102



# for correspondi

n

g revts

io ns

to Vermo

nr

s State Implementation

Plan

(S

I P

} to 

# comply

w

i th the CAA

. FOR FURTHER INFORMATION,

CONTACT

: Doug Elliott,

Agency of Natural Resources,

Air 

# Quality

& 

# Climate

Divts

t on. DaviS

2

. One National

Life

Dr

i ve

, Montpelier

, VT 05620-3802



# TeL

802- 3n

- 5939



# Fax: 802-828-1399



# EMa.tl:

d

g

y g

, elltott®s

t,a

te

, vt

, ys

. URL

: 

# httod

(Ww

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ag

r, state

,y ty

§{ alr

/h tmiPro

pg

se M

me

g dme

g ts,

h tm

. For Copies

: Elame O'Grady

, Agency

of Natural

Res ources

, Air 

# Quality

& 

# Climate

DlvlS!oo

, Davis

2

. One National

Ufe

Dr ive

, Montpelier,

VT 05620-3&02



# Tel

: 802-3

4 3-7221



# Fax

: 802-828-

1 3

9

9 

# EMail

: el

a ine

Q2

ra dy

® sQ

t g

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u

s

# ENCLOSURE

2 CERTIFICATION

PURSUANT

TO

40 CFR

§ 

# 51.102

AND APPENDIX

V OF

40 CFR PART

51

# CERTIFICATION

PURSUANT

TO

40 CFR

§ 

# 51.102

& 

# APP

. V OF

40 CFR PART

51 REGARDING

REVISIONS

TO VERMONT'S

STATE IMPLEMENTATION

PLAN

(SIP) As required

by

40 CFR

§ 51.

10 2(f),

I hereby

cert

i fy that

the requirements

of

40

CFR §51.

10 2(a)-(d)

were

met

a nd that

the public

notice

and hearing procedure

followed

was consistent

with

the inform

ation provided

in the public

no

ti ce and

the State's

l aws

and constitution,

as applicable.

Public

notic

e

of the proposed

revis

i ons

to Vermont's

State Implement

ation

Plan

(SIP)

was posted

online

on December

31, 2013

on the AQCD

website (http:/ jwww.anr.state.vt.usjair/htm/ProposedAmendments.htm#Subchapteriii),

online on December

25,

2013

on

the Secretary

of

State

website ( https:

/ jsecure.ver

mont.go

v /SOS/ru

les

j in dex.php)

and

pu blished

on January

2, 2014

i n the Secretary

of State's

n ewspapers

of record.

The public

was provided

with

the opportunity

to

co mment

until February

10, 2014.

The public

notice included

notice

of

a public meeting

to

be held

on February

3, 2014

at 6:00pm

in the Auditorium

in the Pavilion Office Building

located

at 109 State Street

in Montpelier,

Vermont.

The public meeting

was held

as schedu

l ed and there

were

no attendees

other

than AQCD

staff conducting

the meeting.



# ~~-c:-~



# L

- 

# Elaine O'Grady

.-> 

# Cer

ti fy

i ng Officer

# ------

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X

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# I r Ntw<papm

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# • Home

• Administrative

Ru les 

# ADM INISTRATIVE RULES N O TI CES

OF

R U LE MAK

I N G N 

# ..W

EllS

OF £011tD RULE

O N

R U L EMAKI

NG AP AHl

RMS F

i liNG

T O OLS



# Newspapers

of Record The Office

of

t he Secre\ary

of Slate

p

u blishes

one

f orma

l n otice

In

an approve

d

!l si

of

n ewspapers

providing

general coverage

across

l he s1a1e

as the Newspapers

of Record {see

3



# v SA



# § 639

for aetalls)

. No

t e

: The most recent changes

t o

3

V

. SA



# § 839 appear

In Act

No

.



# 1 of



# 20

1 3

§ 79

. Tlle

Offic

e of the Secretary

of Stale publishes

notices

of adminiStratiVe

rules

In llle

f o

l lOW

i ng newspape

r s

, in ac cordance

w

\ 111

3



# V

. SA

§ 

# 839: • Burt

i ngton

Free Press • Rutland

Herald • Ca

l edon

i an Record • nmesArgus • Vermont

Lawyer • Tlle Valley

News • Mdtson Independen

t • Be

n nington

Banner • Bra

lU eoo

r o Reformer • The

Ch

r oniCle •

N ewport

Dally Express • News

& 

# Citizen

I 

# Transcrtpt • St. Albans Messenge

r • White

River Valley

Herald

(a

. k

. a

. Herald

of Randolph) •

Is

l ander

I 

# •

A



# I

**~** 

# N O nc

E OF

RU

LE M A KI NG Proposed

R

u les Postlngs 

# N E ED

H E LP

..

. Wrth



# a

O uesllOn? Fin<fi

ng 

# our omce?

v

# ENCLOSURE

3 LIST

OF WITNESSES,

COMMENTS

RECEIVED,

AND VERMONT'S

RESPONSE

TO COMMENTS RESPONSIVENESS

SUMMARY

# I 

# I I I 

# I I 

# I I I 

# I

# LIST

OF WITNESSES

& 

# COMMENTS

RECEIVED

AT HEARING 

# February

3, 2014 List

of Witnesses:

No members

of the public attended

the Regulation

and

SIP hearing

on February

3, 2014.

In addition,

no public comments

were submitted.

The

only comments

received

were

from

the U.S.EPA

provided by letter

dated February

4, 2014

from

Ida McDonnell,

Manager,

Air Permits,

Toxics

and Indoor Programs

Unit. Vermont's

responses

to these comments

are presented

below.StateofVermontDeparbnentofEnvirornnentalConservationAirQuality&ClimateDivisionDavis2,OneNationalLifeDriveMontpelier,VT05620-3802(802)828-1288AGENCYOFNATURALRESOURCESRESPONSIVENESSSUMMARYPROPOSEDAMENDMENTSTOAIRPOLLUTIONCONTROLREGULATIONSANDREVISIONSTOVERMONT'SSTATEIMPLEMENTATIONPLAN(SIP)May19,2014ListofCommenters:1.IdaE.McDonnell,Manager,AirPermits,Taxies,andIndoorAirProgramsUnit,U.S.EnvironmentalProtectionAgency,Region1.2.Therewerenootherpubliccommentsreceived.SummaryofCommentsandResponses:1.Comment:WhenVermontsubmitstheadoptedrevisedregulationstoEPAasaStateImplementationPlan(SIP)revision,thestateshouldclearlyindicatewhichregulationsitisrequestingtobeincorporatedintotheSIP.Specifically,unlikethestatepostingoftheproposalthatshowedallairregulationsandnotedchangeswithredline/strikeout,theSIPsubmittalshouldonlyincludethoseregulationsthatthestateisaskingtobeincorporatedintotheSIP.IfaruleisnotmeanttobepartoftheSIPitshouldnotbeincludedinthepackageoritshouldbecrossedoutResponse:VermontwillclearlydenoteinitsSIPsubmittalwhichregulationsaretobeincludedandwhicharenot2.Comment:Section5-101:Thelastclauseinthedefinitionof"MunicipalWasteCombustorAcidGases"mayberedundantEPAsuggestsVermonteditthedefinitionasfollows:"MunicipalWasteCombustorAcidGases(measuredassulfurdioxideandhydrogenchloride)"meansallacidgasesemittedintheexhaustgasesfromMWCunitsincluding,butnotlimitedto,sulfurdioxideandhydrogenchloridegases,measuredassulfurdioxideandhydrogenchloride."Response:Vermonthasmadethesuggestedchangestriking"measuredassulfurdioxideandhydrogenchloride"fromthedefinition.Wehavealsostrucksimilarlanguagefromthenextthreesimilardefinitionsasthelanguagewassimilarlyredundant3.Comment:Section5-101:Vermontproposestoaddoramendseveraldefinitionsinitsgeneraldefinitionsectionfordifferentsizetypesofparticulatematter.Thedefinitionsof"ParticulateMatterEmissions,""PM10emissions,"and"PM2.5directemissions"arethetermsmostlyalignedwithEPA'spermittingrequirements.Toalleviatesomeambiguitythatmightariseduetodifferenttermsbeingdefined,EPAsuggestsVermontamendthelistofAirContaminantscontainedinthedefinitionof"Significant"tostate"ParticulateMatterEmissions"and"PM10emissions."Response:Vermonthasmadethesuggestedchangeadding"emissions"tobothtermsinthedefinitiontableofsignificantemissions.4.Comment:Section5-401(a)(5)proposestonarrowthedefinitionofanaircontaminantsourceforthemineralproductcrushingoperations,portablesandandgravelplants,andcrushedstoneplantsbasedonthecapacityoftheoperationorplant.Section5-501(1)oftheVermontSIPallnewormodifiedsourcesclassifiedasaircontaminantsourcestoobtainapermit.Thereforethenarrowingofthedefinitionofanaircontaminantsourcehastheeffectofnarrowingtheuniverseofsourcesrequiredtoobtainanewsourcereviewpermit.VermontwillneedtodemonstratetheproposednarrowingofpermittedsourcesadequatelyaddressesthefollowingCleanAirAct(CAA)provisionsandEPA'simplementingregulations.a.Section11O(a)(2)(C)oftheCAArequiresSIPapprovedprogramstopermitnewormodifiedsourcesasnecessarytoassureNAAQSareachieved.Vermontwillneedtodemonstratethatafternarrowingtheuniverseofpermittedsources,thestateNSRpermitprogramwillstillmeetthissectionoftheCAA.b.Section110(1)oftheCAArequiresEPAtodisapproveaSIPrevisionifthatrevisionwouldinterferewithanyapplicablerequirementconcerningattainment,reasonablefurtherprogress,oranyotherapplicablerequirementoftheCAA.ThisprovisionissometimesreferredtoasoneoftheCAAantibackslidingprovisions.Vermontwillneedtodemonstratethattheemissionsincrease(ifany)resultingfromnarrowingtheuniverseofsourcesneedingapermitwillmeetthisprovisionoftheAct.c.Inordertomeettherequirementof40CFR51.160(a)(2),VermontmustdemonstrateemissionsfromthesourcesitisproposingtoexcludefrompermittingwillnotinterferewithattainmentormaintenanceofaNAAQS.Itmaybepossiblewithinthedemonstrationtousethesarnesupportinginformationforthedifferentrequirementsdiscussedabove.Response:Vermonthasdeterminedthatem1ss1onsfrommineralproductcrushingoperations,portablesandandgravelplants,andcrushedstoneplantsbelowtheNSPSthresholdof150tonsperhourcapacity,whichstillmustcomplywithsection5-231(4)totakereasonableprecautionstopreventfugitiveparticulatematter,tonotinterferewithmaintenanceoftheNAAQS.VermontwillmakesuchdemonstrationintheSIPsubmittal.5.Comment:Section5-401(b)alsoproposestonarrowthedefinitionofaircontaminantsourcebasedonthesizeofasource'semissions.Vermontwillneedtoprovideademonstrationsimilartotheoneneededforthenarrowingundersection5-401(a)(5).Response:Again,VermonthasdeterminedthatsuchminorsourceaswillbeexemptfrompermittingundertheproposedregulationswillnotinterferewithmaintenanceoftheNAAQS.VermontwillmakesuchdemonstrationintheSIPsubmittal.6.Comment:Section5-501(5)containslanguagetoaddress40CFR51.166(b)(23)(iii)whichstatesthatanyemissionsrateoranynetemissionsincreaseassociatedwithamajorsourceormajormodificationwithin10kmofaclassIareaisconsideredsignificantforpermittingpurposesiftheimpactsontheareaareabove1iJg/m3(24-hraverage).Asdescribed,thedefinitionofsignificantinsection51.166(b)(23)(iii)appliesto"anyemissionsrateoranynetemissionsincrease."Thewaythestate'sruleisdraftedmayrequireananalysisforonlyonetypeofanemissionsincrease,basedontheemissionsrate,insteadofthebothtypesofemissionsincreases.Section5-501(5)isstructuredaroundallowableemissions,whichunderVermont'sprogramdoesnotaccountfornetting.Althoughthenettingexerciseusuallyresultsinloweringaproject'semissionsunderthefederalregulations,thecalculationcanalsoresultinhigheremissionsiftherearemorecreditableincreasesthandecreasesduringthecontemporaneousperiod.Ifthatwasthecase,40CFR51.166(b)(23)(iii)wouldrequirethesourcetodetermineitsimpactontheclassIareausingboththeemissionsfromthe"netemissionincrease"asprovidedunderEPA'sregulationsandtheproject'sallowableemissions.Vermont'srulesdonotaddressthe"netemissionincrease"element.Response:Section5-501(5)isequallyasstringentasthefederalrequirement.AlthoughEPAcorrectlynotesthatVermont'spermittingprogramdoesnotallowfornettingdecreases(seedefinitionofmodificationinsection5-101statingthat"regardlessofanyemissionreductionsachievedatthesource")under5-502(1)(b),whichappliestoallmajorsourcesandmajormodificationsconstructedafterJuly1,1979,allpriormodificationsnotpreviouslyreviewedunderthesectionareaggregatedevenifoutsidethecontemporaneousperiod.ThuswhileVermontregulationsdonotusetheterm"netemissionincrease",theaggregationofpriorincreasesnotpreviouslyreviewedunder5-502alongwithnotallowingcreditforemissionreductionswouldbeexpectedtoresultinequalorgreaterapplicabilityunderVermontregulationsthanfederalrequirements.Inaddition,whilewearenotproposingthisforinclusionintheSIP,theseClassIprovisionsarecontainedin5-501andthusapplytobothmajorandminorsourcesratherthanonlymajorsourceaswiththefederalprogram.7.Comment:Section5-502(4)(a):Therearethreeimpactanalysesrequiredby40CFR51.166.FortyCFR51.166(k)requirestheproposedsourceormodificationtodemonstratethatallowableemissionsincreasesfromthesourcewouldnotcauseorcontributetoairpollutioninviolationofanyNAAQSandincrements.FortyCFR51.166(m)requiresanairqualityanalysisforallpollutantsthatthesourcewouldhavethepotentialtoemitinasignificantamountandforallpollutantswithasignificantnetemissionincreaseforamodification.Finally,40CFR51.166(o)requiresanimpactanalysisontheimpairmenttovisibility,soils,andvegetation.Subsection(o)alsorequiresananalysisoftheairqualityimpactprojectedfortheareaasaresultofgeneralcommercial,residential,industrial,andothergrowthassociatedwiththesourceormodification.Vermont'srulesdonotfullyaddresstheseimpactanalyses.Ascurrentlydrafted,itisunclearastowhethersection5-502(4)(a)or(b)iswrittentomeettheairqualityimpactanalysisrequiredby40CFR51.166(k)(1)(i).However,ifsection5-502(4)(a)isintendedtoapply,thatprovisiondoesnotadequatelyaddressallNAAQS.FirstthatprovisionofVermont'sruleslimitstherequirementtoperformasourceimpactanalysistothoseareasdesignatedattainment.SinceVermont'sairqualityhasnotreceivedadesignationforthe20101-hrS02standard,anargumentcouldbemadethatanairqualityimpactanalysisisnotrequiredbytheproposedruletoaddressthe1-hrS02standard,whichwouldbeinconsistentwithEPA'sregulations.Thislanguagecouldalsoinappropriatelyexcuseasourcefromperformingtherequiredanalysiswhenanareaisdesignatedunclassifiable.Theproposedrulealsoappearstoexemptozone,whichisaNAAQSpollutant,fromtheairqualityimpactanalysisbyexcludingsourcesthatemitvolatileorganiccompoundsfromtherequirementtoconductananalysis.SimilartotheapproachVermontusedtoreviseitsregulationsforgreenhousegasemissions,EPAsuggestsVermontsimplyincorporatebyreference40CFR51.166(k)-(p)insection5-502(4)toaddressthedeficiencies.Alternatively,Vermontcouldreviseitsrulesasfollows:

# 5-502(b)(4):

Air Quality

Impact Evaluation (a)

A source

or modification

subject

to this section

for

air contaminants

designated

attainment

with respect

to any

air contaminant

other

than volatile

organic compounds

or greenhouse

gases,

shall submit

to the Secretary

an

air quality

impact evaluation

at the

time

it applies

for approval

to construct

under Section

5-501

herein

that demonstrates-fef: (i)

for each

air contaminant

for which

EPA

has established

a National

Ambient

Air Quality Standard,

other

than volatile

organic compounds

or greenhouse

gases,

the allowable emissions

increase

from

the proposed

source

or modification

for •.vhich

there

would

be

a significant

net increase

in actual emissions

at the source,

or any other contaminant

at the discretion

of the Secretary,

would

not cause

or contribute

to

air pollution

in violation

of any national

ambient

air quality standard

or maximum

allowable

increase

in any

air quality

control

region. (a)

For

any

such

air contaminant

(other

than nonmethane hydrocarbons)

for which such

a standard

does

exist,

the analysis

shall contain continuous

air quality monitoring

data gathered

for purposes

of determining

whether emissions

of that pollutant

would

cause

or contribute

to

a violation

of the standard

or any maximum allowable

increase. (ii)

an analysis

of ambient

air quality

in the area

that

the major stationary

source

or major modification

would

affect

for each

of the following

air contaminants

: (a)

For

the source,

each

air contaminant

that

it would

have

the potential

to emit

in

a significant

amount; (b)

For

the modification,

each

air contaminant

for which

it would

result

in

a significant net emissions

increase. (c) With respect

to any

air contaminant

for which

no National

Ambient

Air Quality Standard

exists,

the analysis

shall contain

such

air quality monitoring

data

as

the Secretary determines

is necessary

to assess

ambient

air quality

for

that

air contaminant

in any area

that

the emissions

of that

air contaminant

would

affect (d) Post-construction

monitoring.

The owner

or operator

of

a major stationary

source or major modification

shall,

after construction

of

the stationary

source

or modification,

conduct

such ambient monitoring

as

the Secretary determines

is necessary

to determine

the effect emissions

from

the stationary

source

or modification

may

have,

or are having,

on

air quality

in any area.

All monitors required

under

this section

shall

meet

the requirements

of appendix

B

to part

58 of this chapter

during

the operation

of monitoring. (iii)

An analysis

of the impairment

to visibility,

soils,

and vegetation

that would

occur

as

a result

of the source

or modification

and general commercial,

residential,

industrial,

and other growth associated

with

the source

or modification.

The owner

or operator

need

not provide

an analysis

of the impact

on vegetation

having

no significant commercial

or recreational

value. (iv)

An analysis

of

the

air quality

impact projected

for

the

area

as

a result

of general commercial,

residential,

industrial,

and

other growth associated

with

the source

or modification. Response:

The proposed

revisions

to 5-502(4)(a)

were

only intended

to

be simple clarifications

of existing requirements

within

the previously

SIP approved

major

source

and major modification permitting

program

and better

align those requirements

with

Part

51. EPA's request

for inclusion

of missing

SIP elements

is beyond

the scope

of this current rulemaking.

However,

Vermont

will consider

more substantive amendments

at

a later

date

to more closely

align

our program

with

Part 51.

To

the extent

we could incorporate

the current comments

we have.

The proposed

changes

to

5- 502(4)(a)

have

been stricken

and instead

only

the existing language

that previously

exempted

volatile organic compounds

has been removed.8.Comment:Portionsofsection5-502(4)(b)appeartoaddress40CFR51.165(b)(2).Theproposedruleappearstolimittheevaluationofthesource'scontributiontoaviolationtojustareasdesignatednonattainment.FortyCFR51.165(b)(2)doesnotbasetheanalysisonwhetherornot theimpactedareahas beendesignated.Rather,itiswhethertheimpact"exceedsthefollowingsignificancelevelsatanylocalitythatdoesnotorwouldnotmeettheapplicablenationalstandard."EPAsuggestsVermontrevisesection5-502(4)(b)asfollows:"AmbientAirQualityStandards•review:Theevaluationshalldemonstratethattheincreaseinallowableemissionswillnotcauseaviolationofanyapplicableambientairqualitystandardinanyarea,andwillnotsignificantlycontributetoaviolationofanyapplicableambientairqualitystandardinanylocalitythatdoesnotorwouldnotmeetthenationalambientairqualitystandardsasestablishedbyEPAElesi§na!eEInonaltainmenlareafortheaboveaircontaminants.Asourceormodificationwillbeconsideredtosignificantlycontributeto,aviolationofanyambientairqualitystandardfortheaboveaircontaminantsif,atminimum,theincreaseintheallowableemissionsfromthesourceormodificationwillcauseanyincreaseinambientconcentrationsoftheaboveaircontaminantsinanylocalitythatdoesnotorwouldnotmeetthenationalambientairqualitystandardsasestablishedbyEPAIReElesi§naleEInonaUainmenlareainexcessofanyofthelevelsofsignificantimpactshowninTable3herein.Ifasourceormodificationwillcauseorsignificantlycontributetosuchaviolation,theevaluationshalldemonstratethatthesourceormodificationwillcomplywiththerequirementsofparagraph(6)herein.Response:Vermonthasmadechangestothislanguagetoaddressthiscomment.Theproposedlanguagenowreads"...andwillnotsignificantlycontributetoaviolationofanyapplicableambientairqualitystandardinanyareathatdoesnotorwouldnotmeettheapplicableambientairqualitystandardfortheaboveaircontaminants....anyareathatdoesnotorwouldnotmeettheapplicableambientairqualitystandardinexcessof...".9.Comment:Theproposedrevisionstosection5-502(4)(c)appeartoamendthestate'srulestoallowforoneoftheoptionalSIPelementcontainedin40CFR51.166(p).Althoughadditionalregulatorylanguagemaybeneededtofullyaddressthisoptionalelement,thereappearstobemissingelementsregardingthecalculationofincrementconsumption.Vermontshouldaddressthesemissingelementsandanyadditionallanguagenecessarytomeettheoptionalelementofallowingasourcetobeissueda·permiteventhoughthepermitwouldallowthesource'semissionstoconsumemorethantheavailableClassIincrement.Response:VermonthasremovedalllanguagethataddedthisoptionalSIPelement.10.Comment:Section5-502(4)(e)isinconsistentwith40CFR51.166(p)becausethestate'sproposedrulelimitstheClassIairqualityanalysistosourceswithin100kmofaClassIareaunlessthestatedeterminesananalysisiswarrantedifthesourceisover100kmaway.EPA'sregulationsdonotcontainanysuchrestriction.Inaccordancewith40CFR51.166(p)(3),thestaterulemustprovideamechanismfortheFederalLandManagertodemonstratetheproposedsource'sormodification'semissionsofanysourcerequiredtoobtainaPSDpermitiscausinganadverseimpactonairqualityrelatedvalues,regardlessofitsdistancefromaClassIarea.Vermontshouldremovethe100kmrestrictionfromtheproposedrules.Inaddition,thesection'stitle"ClassIFederalAreareview"impliesitwillcontainthePSDpermitrequirementsspecifictoClassIareaswhicharefoundat40CFR51.166(p).Thissectionofthefederalrulesconsistsofsevensubsections,ofwhichfouraremandatorySIPelements(paragraphs(1)-(3)and(7).Section5-502(4)(e)ofVermont'srulesdonotaddressalloftheserequiredelements.Vermontshouldaddressthemissingelements.Response:Vermonthasremovedthe100kmlanguage.Theproposedlanguagenowreads"ClassIFederalAreareview:TheevaluationshalldemonstratethattheincreaseinallowableemissionswillnotcauseanadverseimpactonvisibilityoranyotherAirQualityRelatedValueorinanyClassIFederalarea."Theremainingcommentsregarding40CFR51.166(p)arebeyondthescopeofthisrulemakingwhichdoesnotimpactoraltertheexistingprogramrequirements.11.Comment:Table2PreventionofSignificantDeterioration(PSD)Increments:VermontisproposingtorevisethistablebyadoptingincrementlevelsforPM2.5emissions.EPAnotestheproposedincrementlevelsareconsistentwith40CFR51.166(c).EPAbelievestheproposedchangestoTable2areindependentandseverablefromtherequirementscontainedinSubchapterVforcalculatingtheamountofincrementaproposedprojectmayconsumeandhowmuchincrementisavailable.Atthistime,EPAisnotcommentingonthesection(s)ofSubchapterVwhichregulatehowavailableincrementiscalculatedandthemethodsusedtodeterminehowmuchincrementaprojectisproposedtoconsume.Response:Vermontacknowledgesthiscomment.ENCLOSURE4TECHNICALSUPPORTDOCUMENTFORVERMONTSTATEIMPLEMENTATIONPLANSUBMITTALFORREVISIONSTOVAPCRsINCLUDINGSUBCHAPTERI(DEFINITIONS),SUBCHAPTERIII(AAQS),SUBCHAPTERIV(OPERATIONSANDPROCEDURES)ANDSUBCHAPTERV(REVIEWOFNEWAIRCONTAMINANTSOURCES)JULY25,2014

# TECHNICAL

SUPPORT DOCUMENT FOR VERMONT

STATE IMPLEMENTATION

PLAN SUBMITTAL FOR REVISIONS

TO VAPCRs INCLUDING SUBCHAPTER

I (DEFINITIONS),

SUBCHAPTER Ill (AAQS), SUBCHAPTER

IV (OPERATIONS

AND PROCEDURES)

AND SUBCHAPTER

V (REVIEW

OF NEW

AIR CONTAMINANT

SOURCES) JULY

25, 2014 Introduction 

# The Federal

Clean

Air

Act Amendments

of 1990 (CAA)

give

the States primary responsibility

for achieving

the National

Ambient

Air Quality Standards

(NAAQS).

The NAAQS

are established

by the

U.S. Environmental

Protection

Agency

(EPA)

as

the maximum concentrations

in the atmosphere

for specific

air contaminants

to protect

public

health

and welfare.

The principal mechanism

at the state

level

for complying

with

the CAA

is the State Implementation

Plan (SIP). A SIP outlines

the programs,

actions,

and commitments

a state

will carry

out

to implement

its responsibilities

under

the CAA.

Once approved

by

the EPA,

a SIP

is

a legally enforceable document

under

both

state

and federal

law.

· Purpose 

# The purpose

of this document

is

to provide

further discussion

and support

for

the State Implementation

Plan

(SIP) submittal

for revisions

to

the Vermont

Air Pollution

Control Regulations

(VAPCRs)

including

revisions

to Subchapter

I (Definitions),

Subchapter

Ill (Ambient Air Quality Standards),

Subchapter

IV (Operations

and Procedures)

and Subchapter

V (Review of New

Air Contaminant

Sources).

The revisions

to Subchapter

Ill are intended

to adopt

all new and revised

NAAQS

making Subchapter

Ill consistent

with

the federal NAAQS.

The revisions

to Subchapter

V are primarily

intended

to add

the

PM

25 

# permitting

increment

and significant impact

level provisions

to permitting requirements.

Further

changes

were

also

made

to Subchapter

IV and Subchapter

V

to reflect current permitting

practices

for determining

sources subject

to permitting

as well

as clarifications

and minor modifications

to existing permitting requirements. Discussion 

# Enclosure

5, List

of Revisions

to VAPCRs

to

be Included

in Vermont's

SIP, provides

a detailed list

of the specific regulatory

revisions

that

are being submitted

for inclusion

in the state

SIP. The discussion

below provides

further

detail regarding

many

of these revisions. Subchapter

I, 5-101.

Several

new definitions

were added

and several

existing definitions

were revised.

Most notably,

and

all consistent

with federal permitting

regulations

under

40 CFR

Part 51,

the revisions

include:

revising

the table

within

the definition

of "significant"

to remove Asbestos,

Beryllium,

Mercury

and

Vinyl chloride;

adding

new terms

for Municipal

waste combustor

acid gases, Municipal

waste combustor

metals, Municipal

waste combustor

organics, Page

1 

# of

3andMunicipalsolidwastelandfillemrssrons;andaddingthesignificantlevelsforthenewpollutantPM2.5.Theentirereviseddefinitionof"significant"isbeingsubmittedforinclusionintheSIP.Newdefinitionswereaddedfor"particulatematteremissions","PM10emissions",and"PM2.5'and"PM2.5directemissions"primarilytoclarifyandensurethatcondensablefractionsofanexhaust,whicharenotinparticulateformwhenreleased,aretobeconsideredpartoftheparticulateemissions.SubchapterII,5-253.20(a)(3).Theexemptionforsurfacecoatingofwoodwasdeleted.ThisdefinitionwasoriginallyaddedtoexemptthissourcecategorywhiletheControlTechniquesGuideline(CTG)wasbeingdevelopedandadopted.TheoriginalsourcecategoryforthisCTGwasthesurfacecoatingofwoodandwassubsequentlychangedtowoodfurnituremanufacturingoperations.Sincewoodfurnituremanufacturingoperationsarenowregulatedunder5-253.16theyarenotsubjectto5-253.20duetotheexemptionin5-253.20(a)(1),andtheexemptionin5-253.20(a)(3)isnolongernecessary.Theexemptionwasremovedtoclarifythatonlywoodfurnituremanufacturingoperationssubjectto5-253.16aretobeexemptandthattheexemptionwasneverintendedtoapplytoothersurfacecoatingofwoodoperations,suchasprestainingoperations,thatarenotsubjectto5-253.16.SubchapterIll.TheserevisionsarebeingsubmittedintheirentiretyandareconsistentwithfederalNationalAmbientAirQualityStandards.SubchapterIV,5-401.Generally,thesechangesareintendedtocodifylongstandingpracticeandpolicyregardinglowercutoffsforpermittingpurposeswherenothresholdwaspreviouslyestablished.5-401(a)(5)adoptstheNewSourcePerformanceStandard(NSPS)thresholdfornon-metallicmineralplants.Thethresholdsof25tonsperhourforfixedplantsand150tonsperhourforportableplantsisestimatedtocoverthevastmajorityofboththecrushingplantsinthestateandthevastmajorityoftheemissionsfromallcrushingplantssincethesearethelargeroperations.Vermontcurrentlyhasissuedpermitstoapproximately76crushingoperations,fixedandportablecombined.Allofthosepermitswillremainineffect.Whilemanycrushersoperateatanactualratebelowthe150tonperhourthreshold,mosthaveamaximumratedcapacityabovethethreshold.SinceVermontbasesthethresholdonthemaximumratedcapacitywedonotbelievethereareasignificantnumberofunpermittedcrushingoperationsbelowthatthreshold.Further,theprovisionsofSubchapterIIrelatedto5-211(ProhibitionofVisibleAirContaminants),5-231(1)(ProhibitionofParticulateMatter-IndustrialProcessEmissions),5-231(4)(ProhibitionofParticulateMatter-FugitiveParticulateMatter),and5-241(ProhibitionofNuisanceandOdor)wouldcontinuetoapplyregardlessofpermitapplicability.TheseprovisionsprovidesufficientauthoritytoregulatepotentialemissionsfromunpermittedoperationsandensuresuchfacilitieswouldnothaveasignificantimpactonVermont'sabilitytoattaintheparticulatematterNAAQS.5-401(b)againisintendedtocodifylongstandingpracticeandpolicyregardinglowercutoffsforpermittingpurposes.Asthisprovisionisnot,ineffect,narrowingtheuniverseofpermittedsources,thereisnopotentialforbacksliding,orinterferencewithattainmentandmaintenanceoftheNAAQS.Furthermore,thethresholdoffivetonsperyearofallcontaminantscombinedisconsistentwiththeapplicabilitythresholdofSubchapterVIII(RegistrationofAirContaminantSources).Thefivetonthresholdonlyappliestothefollowingcategoriesofsourcesundersection5-401(b):(3)Electricalpowerindustries,(4)Woodproductsindustries,(7)Metalmeltingandreclamationfurnaces,(8)Metalfabricationprocesses,(9)Surfacefinishingandcoatingoperations,includingapplicationofpaints,lacquers,solventsandrelatedmaterials,(10)Page2of3Petroleumorpetro-chemicalprocessingormarketing,(11)Manufacturing,processingandapplicationofchemicals, includingtheprocessingorapplicationofplastics,rubbersorresins,(12)Operationsinvolvingthehandlingortransferringofsalidordustproducingmaterials,(14)Leathertanningandfinishingoperations,and(15)Animalbyproductprocesses.Moreover,under5-401(b)(17)Vermontstillretainstheauthoritytorequireapermitforasourcewithemissionslessthanthefivetonthresholdonacasebycasebasis.GiventhisauthorityandthattherevisionestablishingafivetonthresholdmerelycodifiesVermont'slongstandingpractice,theAgencydoesnotexpecttheexclusionofsuchsourcesinthepastorinthefuturetohaveasignificantimpactonVermont'sabilitytoattaintherespectiveNAAQS.SubchapterVI,5-406.Regulation5-503relatedtoindirectsourcesandwasrepealedbystatuteeffectiveFebruary8,2011andthereferencetoitin5-406hasbeenremoved.Theword"diffusion"hasbeenreplacedwith"dispersion"themorecommontermtodayforairqualityimpactevaluations.ReferencetoAppendixWhasalsobeenadded.SubchapterV,5-501.Clarificationisaddedto5-501(5)toindicatethelevelofimpactthatwillbetreatedassignificantformajorsourcesconsistentwithfederalpermittingregulationsunder40CFRPart51.5-501(6)(c)alsoexpandsonthepublicnoticeprovisionsformajorstationarysourcesconsistentwithfederalpermittingregulationsunder40CFRPart51.SubchapterV,5-502.Therevisionsto5-502(4),(6)and(8)areintendedtobesimpleclarificationsandreorganizationthatdonotsubstantiallychangetheexistingregulation.5-502(9)AlternativeSiteAnalysis,isanewsectiontoaddressapastdeficiency.AppendicesandTables,Table2(PreventionofSignificantDeterioration(PSD)Increments)andTable3(LevelsofSignificantImpact).TheserevisionstocurrentPSDincrementsandlevelsofsignificantimpacthavebeenadoptedtobeconsistentwithfederalpermitting,regulationsunder40CFRPart51.Page3of3ENCLOSURE5LISTOFREVISIONSTOVAPCRsTOBEINCLUDEDINVT'sSIPProposedRevisionsToVT'sAirPollutionControlRegulationsToBeIncludedInVT'sSIPSubchapterI,5-101:AddedNew(orRevised)Definitionsfor:MunicipalWasteCombustorAcidGases,MunicipalWasteCombustorMetals,MunicipalWasteCombustorOrganics,MunicipalSolidWastelandfillEmissions,ParticulateMatter(reviseddefinition),ParticulateMatterEmissions,PM10(reviseddefinition),PM10Emissions,PM2.s,PM2.5DirectEmissions,New"Significant"newsourceormodifiedsourceemissionsratesforPM2.s(DirectPM25,andS02andNOxPM2.5precursors),MunicipalWasteCombustororganics,metalsandacidgases;andMunicipalSolidWastelandfillNMOCmissions,Deleted"Significant"emissionsratesforAsbestos,Be,HgandVinylChloride,Deleted"TotalOrganicHalogens"definition.SubchapterII,RevisedProhibitionsfor:5-253.20(a)(3):Deletedexemptionfor"thesurfacecoatingofwood".SubchapterIll,RevisedAmbientAirQualityStandards(consistentwithNAAQS)for:5-301Scope:Clarificationofsulfateexception.5-302SulfurOxides(S02):RevisedPrimaryStandardto75ppb1hour,99thpercentile,3-yearaverage,5-303SulfurOxides(S02):RetainedSecondaryStandard,0.5ppm3-hour,nottobeexceeded>once/year,5-304ParticulateMatter:(whichhadnotbeenincorporatedinEPA-approvedVTRegs)Deleted"TotalSuspendedParticulate",andadded"PM2.s"PrimaryandSecondary24-hourStandardsof3511g/m3,98thpercentile,3-yearaverage,aPrimaryAnnualAveragePM2.sStandardof1211g/m3,3-yearaverage,andaSecondaryAnnualAveragePM2.sStandardof1511g/m3,5-306ParticulateMatter(PM10):RevisedPrimaryandSecondaryStandardsto15011g/m3,24-houraverage,nottobeexceeded>once/year,averagedover3-years,5-307CarbonMonoxide:RevisedPrimary1-hourStandardto35ppm,nottobeexceeded>once/year,andRetained9ppm8-hourStandard,nottobeexceeded>once/year,5-308Ozone:RevisedPrimaryandSecondaryStandardsto0.075ppm,8-hour,4thhighestday,averagedover3years,5-309NitrogenDioxide:RevisedPrimaryStandardto100ppb,1-hour,98thpercentile,averagedover3years,5-310Lead:RevisedPrimaryandSecondaryStandardto0.1511g/m3,rolling3-monthaverage,nottobeexceeded.SubchapterIV,OperationsandProcedures5-401ClassificationofAirContaminantSources:Revisions,5-406:Minoreditsandaddingreferenceto40CFRPart51AppendixW.SubchapterV,ReviewofNewAirContaminantSourcesTables5-501(5):Addsprovisionthatanysourcewithin10kmofClassIareawithimpact>111g/m3foranyaircontaminantwillbetreatedasamajorsourceormajormodificationforpurposesofreview,5-501(7)(c):Addsdetailfornotifyingandseekingcommentsondraftpermitsfromvariousofficials&agencieshavingcognizanceoverproposedsourcelocation,5-502(4)(a):ClarifiesthatAirQualityImpactEvaluationisrequiredonlyforpollutantsforwhichtherewouldbeasignificantincreasefromcurrentactualtonewallowable,5-502(4)(b):Minorwordingchanges,5-502(4)(c):Newrequirementstodemonstrate(toFederalLandManager)thatAirQualityRelatedValueswillnotbeimpactedifClassIPSDincrementisexceeded,5-502(4)(d):Revisedtoincludefocusonvisibilityimpactsin"sensitiveareas"(includesLyeBrookClassIandother>2,500ft.areas),5-502(4)(e):NewrequirementsaddedtospecifictoClass1AreaimpactsreviewforvisibilityandotherAQRVsforsourceswithin100km(orfurtheratSecretary'sdiscretion),5-502(4)(f):Sameasformersection5-502(4)(e),5-502(6):Minorwordingchangesclarifyingthatoffsettingemissionsreductionsarerequiredtooffsetsignificantcontributionsinadesignatednonattainmentarea,5-502(8)(b):Revisedambientairmonitoringrequirementsformajorsourcesormodificationstorequireatleastone(immediatelypreceding)yearofdata,butalsoallowinguseofasfewas4months,ornotimmediatelyprecedingdata,ifadequatetodeterminesourcewouldn'tviolateAmbientStandardorconsumeremainingPSDIncrement,5-502(9):NewrequirementsforAlternativeSiteAnalysisformajorsourcesinnonattainmentareas.Table2:RevisedwordingandadditionofPM2.sPSDIncrements,Table3:Revisedwording,deletedTSPandaddedPM2.sSignificantImpactLevels.