July 15,2011

Filed Electronically

U.S. Environmental Protection Agency

1200 Pennsylvania Avenue, NW

Washington,DC 20460

Attention Docket ID No. EPA-HQ-OAR-2002-0058

Email: a-and-r-docket@epa. eov

Subject: National Renderers Association (NRA) Comments on the U.S. Environmental Protection

Agency's (EPA's) Rule on National Emission Standards for Hazardous Air Pollutants for

Major Sources: lndustrial, Commercial, and Institutional Boilers and Process Heaters

Dear Sir/Madam:

The National Renderers Association (NRA) is providing EPA with comments on the National Emission

Standards for Hazardous Air Pollutants þr Major Sources: Industrial, Commercial, and Institutional

Boilers and Process Heaters (NESHAP Subpart DDDDD), as published in the Federal Register on March

21,201I (Volume 76, No. 54, pages 15608 - 15702). The final version of the rule was included in the

delay of effectiveness concerning reconsideration issued on May 18, 201I in the Federal Register

(Volume 76, No. I 10, pages 32682 - 32684) for NESHAP Subpart DDDDD and Commercial and

Industrial Solid llaste Incineration Unirs (CISWI) rules. Per this second Federal Register notice,

comments regarding NESHAP Subpart DDDDD have been requested by EPA on or before July 15, 201l.

In addition to this comments letter being submitted for NESHAP Subpart DDDDD, the NRA is also

submitting requested changes to NESHAP Subpart JJJJJJ under a separate cover.

The NRA is the international trade association for the industry that safely and efficiently recycles animal

and vegetable agriculture by-products into valuable ingredients for the livestock, pet food, chemical and

consumer product industries in a manner that is protective of our environment. The NRA represents its

members' interests to Congress, regulatory and other govemment agencies, promotes greater use of

rendered products, and fosters the opening and expansion of trade between North American exporters and

foreign buyers. NRA's membership represents more than 98 percent of the rendering capacity in both the

U.S. and Canada, and we estimate that our members have spent more than $100 million in recent years on

environmental controls that help protect the environment where we live and work.

NRA members' boilers that burn processed recycled animal and vegetable fats ("processed fats") at major

HAP sources will be affected sources under the "National Emissions Standards for Hazardous Air

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National Renderers Association comments to the U.S, Environmental Protection Agency

Major Source Boiler Rule - Docket No. EPA-HQ-OAR-2002-0058

July 15, 201I

Page2

Pollutants for Major Sources: Industrial, Commercial, and Institutional Boilers and Process Heaters" (or

the "Boiler MACT"). These units are cunently classified under the liquid fuel subcategory for units

designed to burn liquid biofuels based on the comment submitted and responded to by EPA during the

proposed rule commenting period.I The NRA has a strong interest in ensuring that processed fats are

regulated by EPA based on the actual HAP emissions from the combustion of the fuel, not for the HAP

emissions released from other "traditional" petroleum-based liquid fuels.

A detailed definition of processed fats is included later in this letter. Examples of processed fats used as

boiler fuel include the following classes of rendered fats.

o Yellow Grease

o Poultry Grease

r Brown Grease

. Tallow

Such classes are used in trading rendered processed fats and are based on standards for various properties

such as hardness, color and free fatty acid content that are important to end-use customers (e.g. soap

manufacturers and others in the oleo-chemical industry). These standards were established by the

American Fats and Oils Association (AFOA) to facilitate trade and for use in arbitrating disputes between

the buyer and seller. The rendered processed fats meeting each of the AFOA class specifications are

collectively composed of lipids having up to three long, straight-chain fatty acids attached to a glycerol

backbone. The number of carbon atoms in the fatty acid chains, the number of double bonds in the chain

and the percentage of free fatty acids determine the AFOA classification. This description of rendered

processed fats classes is presented solely for purposes ofclarifìcation and edification, and has little

bearing on the issue of processed fats as boiler fuel.

Processed fats are fundamentally different than the traditional petroleum-based liquid fuels generated

from the physical and chemical refìning of crude oil. The petroleum-based liquid fuels clearly comprise

the bulk of the common name subcategory "oil" units or liquid fuel units subject to the Boiler MACT,

NESHAP Subpart DDDDD, Processed fats do not inherently contain petroleum products.

The 2005 Job Bill, along with the Omnibus Highway Bill and the Comprehensive Energy Bill, carried

changes in how the federal govemment will treat excise taxes and tax credits as incentives to U.S.

business to adopt ways in which to replace imported petroleum as a fuel. The provisions for altemative

fuelmixtures are found in the Safe, Accountable, Flexible, and Efficient Transportation Equity Act of

2005 (enacted in July of 2005, and became effective October 1,2006).

The NRA's review of these above noted federal rules confirmed tax credit applicability to the use of

processed fats as alternative fuel if alternative fuel mixture rules were followed. To qualify for the tax

credit, NRA member companies "create" processed fats fuel for energy purposes (for self use or sale) as a

mixture with a federally taxable fuel, pursuant to the above rule. Specifically, to qualifr processed fats as

an alternative fuel mixture, the processed fats are denatured with No. 2 fuel oil (diesel) or other taxable

I Federal Register, Vol.75, No. 107, pp.32006-32073 (June 4,2010).

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National Renderers Association comments to the U.S. Environmental Protection Agency

Major Source Boiler Rule - Docket No. EPA-HQ-OAR-2002-0058

July 15, 201I

Page 3

fuel at 0,1%by volume. The denaturing effort marks the processed fats fuel for tax purposes and prevents

the mixture from being resold into the animal feed market and/or further processing by the oleo-chemical

industry. This denaturing is done for tax purposes only (as set forth in Section 6426(d)(2) of the Internal

Revenue Code) and is similar to the method used to identiff diesel fuel intended for agricultural use to

distinguish it from on-road diesel fuel. The alternative fuel mixture does not result in any discemable

change in emissions due to the very low addition rate (0.1%) of petroleum-based material.

The NRA fully supports EPA's efforts to improve air quality through responsible regulation and

appreciates this opportunity to comment on EPA's rules during the Boiler MACT, NESHAP Subpart

DDDDD reconsideration period. Based on the assessment of the rules, the NRA has prepared comments

on the approach used by EPA in deriving the liquid fuel subcategory to include liquid biofuels and why

certain aspects should be retained, reconsidered, or changed,

The following sections present the reason for these submitted comments (reconsideration), a description

of potentially affected units at NRA members' and member customers facilities, a description of

processed fats as a fuel, and the following comments that the NRA is requesting EPA reconsider for the

Boiler MACT:

l. Processed fats as a separate subcategory;

2. Processed fats combustion subject to work practice standards only; and

3. Traditional fuels subject to particulate matter (PM) emissions limits (non-mercury metal HAP

sunogate) should be given the option to demonstrate compliance with the PM emissions limit or a

total selected metals (TSM) emissions limit.2

NRA Rulo(s) CovruBNrs REFERENcE

The NRA understands that the Boiler MACT, NESHAP Subpart DDDDD effective period was stayed on

May 18, 201 l, and the final rule is being reconsidered by EPA. In addition to this comment letter, the

NRA is also submitting a separate comments letter this same date for NESHAP Subpart JJJJJJ. As

previously identified, the NRA is submitting requested changes to NESHAP Subpart JJJJJJ despite no

reconsideration and requested comments request for the area source boilers rule for the following reasons:

l) because the liquid fuel subcategories for boilers are fundamentally similar between the two NESHAP

rules, and 2) because EPA changed the defrnition for liquid fuels in the fìnal rule from the proposed rule

without an opportunity for comment. Two separate letters are being submitted to EPA due to the separate

statutoly requirements for each rule (major source and area source NESHAP), and separate dockets

(Docket # OAR-2002-0058 for major source rule and Docket # OAR-2006-0790 for area source rule).

NRA member facilities capable of burning liquid fuels are currently classified as area sources of HAP

emissions, with the exception of one facility that includes a process emitting non-combustion related HAP

emissions above the major HAP source threshold. The focus of these comments is the use of processed

2 the tSM emissions limit option includes either TSM or individual non-mercury metal HAP emissions

lirnitations.

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National Renderers Association comments to the U,S. Environmental Protection Agency

Major Source Boiler Rule - Docket No. EPA-HQ-OAR-2002-0058

July 15,2011

Page 4

fats as a fuel in affected sources. Processed fats are considered renewable fuels that may be utilized in the

industrial boilers at NRA member and member customer facilities.

Ma¡on SouRcn NESHAP AppLlc.leILITY RTQUnTMENTS

The Clean Air Act (CAA) Section 112(c)(l) requires emission units located at major source and area

source applicable categories to be regulated. Section I l2 of the CAA requires that, when setting HAP

emission limitations for categories with more than 30 sources, EPA must determine "the average emission

limitation achieved by the best performing l2o/o of the existing sources."3 Where fewer than 30 sources

exist in acategory,EPA should rely upon "the average emission limitation achieved by the best

performing five sources."4 However, before EPA can use the best performing five sources in setting its

standard, it is required to analyze all sources "for which the Administrator has or could reasonably obtain

emissions information." The purpose of Section I l2(dX3) of the CAA is to establish the MACT Floor

based on the top performers in the industry. Only by frrst adequately examining the entire industry can

EPA evaluate which sources are among the best in their class.

EPA has gathered data for the liquid fuel-fired boiler subcategory currently defrned in NESHAP Subpart

DDDDD. This data can then be used to craft an additional subcategory MACT Floor that complies with

the requirements of the statute, Since EPA is not limited in establishing a specific total of subcategories

for regulation under NESHAP Subpart DDDDD, the NRA is requesting a separate liquid fuels

subcategory for units burning processed fats,

RpeunsrED PRocESSED F¿,rs SuscarBGoRY

The NRA is submitting the request for a new "units designed to burn processed fats fuel" subcategory

under NESHAP Subpart DDDDD based on EPA's determination of the aforementioned proposed rule

comment from an NRA member (Darling Intemational Inc.).s The proposed rule comment requested that

processed fats not be considered as a solid waste, but instead a biomass solid fuel potentially subject to

NESHAP Subpart DDDDD when burned in a boiler or process heater located at a major HAP source or

area source, respectively. EPA noted that they agreed with the comment and subsequently added "liquid

biofuels" to the defrnition of "liquid fuel" in $63.11237 for NESHAP Subpart JJJJJJ only. The NRA

agrees with the EPA determination that processed fats are not solid waste, and are not considered a solid

fuel (biomass) category under NESHAP Subpart DDDDD as identified in the response.

Lreurp Fuel DsnlNItIoN

3 +z u.s.c. $7412(dX3XA).

a qz u.s.c. $74 l 2(dX3XB).

5 Boiler MACT proposed rule comment (Document Control Number EPA-HQ-OAR-2006-0790- l9 I I . I )

submitted by Barr Engineering Company and Darling International Inc.

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National Renderers Association comments to the U.S. Environmental Protection Agency Page 5

Major Source Boiler Rule - Docket No. EPA-HQ-OAR-2002-0058

July 15,201I

The change to the liquid fuel definition in NESHAP Subpart JJJJJJ included the addition of liquid

biofuels per the comment submitted by Darling International Inc, (NRA member).

Liquidfuel means, but not limited to, petroleum, dislillate oil, residual oil, anyþrm of liquidfuel

derived from petroleum, used oil, liquid bio.fuels. and biodiesel.

However, EPA clearly took an "easy way" out by throwing processed fats in with the liquid fuel

definition that was unexpected and unintended by the NRA, without fully vetting the impact on the liquid

fuel regulations, or the impact on processed fat-fired units. EPA has acknowledged acting in haste to

fina\ize these regulations by the Court-imposed deadline.6

The proposed definition of "liquid fuel" is fundamentally similar in both NESHAP Subpart JJJJJJ (75 FR

31931) and NESHAP Subpart DDDDD (75 FR 32064), specifically delineating "distillate oil, residualoil,

on-spec used oil, and biodiesel" in each definition. EPA has not indicated that the subsequent inclusion

of "liquid biofuels" to the definition of "liquid fuel" was intentional for NESHAP Subpart JJJJJJ only.

For the pu{poses of this comments letter, the NRA assumes that EPA intended for liquid biofuels to also

be considered a "liquid fuel" as defined under $63.7575.

And thus, by considering liquid biofuels as a liquid fuel for the Boiler MACT, any boiler or process

heater combusting processed fats at a major HAP source is grouped in the "liquid fuel subcategory" and

the "unit designed to bum liquid fuel subcategory" defined in $63.7575.

The NRA requests that EPA evaluate the impact of this "grouping" and consider the pertinent information

presented in this letter that demonstrates that it is both reasonable and technically necessary for EPA to

consider processed fats as a separate subcategory that is wholly distinct from petroleum-based oils and

other liquid fuels.

RrquesrnD PRocEssED FATs Dn¡'IxluoN AND Susctrnconv

A liquid fuel includes petroleum products, such as distillate oil, residual oil, any form of liquid fuel

derived from petroleum products, on-spec used oil, and biodiesel. These fuel types are different than

processed fats in both origin and content and result in different HAP emissions when combusted in

boilers and process heaters.

Processed fats are obtained from the recycling of animal (livestock) and plant (crop) related byproducts

from the food processing industry. Processed fats fuel are utilized in the same liquid fuel-fired boilers

that burn petroleum-based liquid fuels. No special designed burners are required for the burning of

processed fats in liquid fuel-fired boilers. As identified in this letter, the HAPs content of processed fats

are insignificant and similar to Gas I fuels and not petroleum-based liquid fuels.

The NRA requests that the following two definitions be added to $63.7575 for NESHAP Subpart

DDDDD.

6 Court ordered EPA to issue the final rule by February 21,2011.

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National Renderers Association comments to the U.S. Environmental Protection Agency

Major Source Boiler Rule - Docket No. EPA-HQ-OAR-2002-0058

July 15,201I

Page 6

Processed fats fuel means, but is not limited to, yellow grease, poultry grease, brown grease,

tallow oil, and anyform of liquidfuel derivedfrom animal and vegetablefals, with less than

0.1% by volume petroleum-basedfuel content addedþr alternativefuel mixture requirements.

Unit designed to burn processedfatsfuel subcategory includes any boiler or process heater that

burns any processed fals fuel, but less than I0 percent coal/solid þssil fuel, less than I0 percent

biomass/bio-based solidfuel, and less than 10 percent liquidfuel on an annual heat input basis,

eilher alone or in combinalion with gaseous fuels.

Pnocnssno Fars Nor A BIoMASS Furl

The NRA wants to clarify the incomect reference in the aforementioned proposed rule comment response

and confirm EPA's non-classification of processed fats as a biomass (solid) fuel under the major source

rule. Specifically, the comment submitted to EPA by Darling Intemational Inc. (NRA member) focused

on processed fats not being defined as solid waste (and subject to CISWI rule) and identified the material

as worthy of inclusion within a "biomass" fuel subcategory and definition under the Boiler MACT and

NESHAP Subpart JJJJJJ based on the proposed version of each of those rules, which is admittedly

different than the final version being commented on in this letter. EPA did not define the material as a

solid biomass, and the NRA agrees with this determination as the fi¡el is not a solid fuel with HAP

content or combustion characteristics similar to biomass solid fuels.

The NRA confrrms processed fats are renewable energy materials derived from vegetable (plants) and

animal (livestock) sources that have a shorl-term carbon cycle. The processed fats periodic availability to

displace a fraction of fossil fuel demand makes the fuels a renewable fuel, but does not require processed

fats to be defined as a biomass solid fuel. The regulation of processed fats as a biomass fuel under

NESHAP Subpart DDDDD will result in NRA member facilities not using this renewable fuel due to

more stringent control requirements for biomass fuels compared to other fossil fuels (i.e., petroleumbased liquid fuels).

PnocnssnD FATs SuscA.rBGoRy Covtplnncn

EPA should establish a "unit designed to burn processed fats fuel"subcategory, wholly separate from

units designed to burn liquid subcategory due to these units not being similar sources.

There are two key definitions in determining the MACT Floor (Boiler MACT).

l. Similar source

2. Achieved in practice

As identified in Sierra Club v. EPA, the differentiation of broad source categories into subcategories is

provided in the CAA itself, subject to reasonableness in the choice of subcategorization.l

7 Sierro Club v. EPA (intervenor Brick Industry Association) (03-1202).

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National Renderers Association comments to the U.S. Environmental Protection Agency

Major Source Boiler Rule - Docket No. EPA-HQ-OAR-2002-0058

July 15, 2011

PageT

Section 1 12(d)(l) authorizes the Administrator lo "distinguish among classes, types and sizes of

sources within a category or subcategory," and the language of subsections I l2(d)(2) and (3)

pervasively refers lo standardsfor sources in each "calegory or subcategory." The authority to

generale subcategories is obviously not unqualified; ar the least it must be limited by the usual

ideas of reasonableness. [Sierra Club v. EPA]

Following the direction in the CAA, EPA developed a definition for similar source.

Similar source means a slalionary source or process that has comparable emissions and is

slruclurally similar in design and capacity to a construcled or reconslrucled major source such

that the source could be controlled using the same control technology. [$63.41]

A separate subcategory is waranted because HAP emissions from petroleum-based liquid fuels include

different constituents and are higher than the HAP emissions from processed fats, which are insignificant,

specifrcally for the metal HAP (including mercury), acid gas HAP (specifically HCI), and organic HAP

emissions controlled under the Boiler MACT. The establishment of emission limits for the broad "liquid

fuel" subcategory is not waranted due to the insignificant HAP emissions anticipated from the processed

fats compared to petroleum-based liquid fuels.

Meral HAP EnrrssroNs

Included in Table 1 is a summary of five processed fat samples analyzed for the metal HAP content. The

specific processed fats analyzed includes yellow grease (two samples), poultry grease (one sample), and

tallow (two samples).

Tnsr,B L. PnocnssED FATs Snruplps ANaLvsrs RBsuLrs

Metal HAPs

Yellorv Grease

Samfle No. I

(pp.rn)t

Yellow Grease

Samfle No.2

(ppmw)2

Poultry Grease

(ppttn)t

TallowSamfle

No. I (ppmw)¡

TallowSample

No.2 (ppmw)2

L¡ad

Arsenic

Beryllium

Cadrnium

Chronrium

Manganese

Nickel

Mercury

< 0.05

< 1.0

< 1.0

< 1.0

< 1.0

< 1.0

< 1.0

< 0.1

0.7

< 0.1

< 0.1

< 0.1

< 0.1

0.t

< 0.1

< 0.005

< 0.05

< 1.0

< 1.0

< 1.0

< 1.0

< 1.0

< 1.0

< 0.1

< 0.05

< 1.0

< 1.0

< 1.0

< 1.0

< 1.0

< 1.0

< 0.1

0.5

< 0.1

< 0.¡

< 0.1

< 0.1

0.2

< 0.1

< 0.005

l. Fuel sampling arralysis r¡æthods include ASTM D 3605 for lead content, ASTM E l6l3 for anenic, berylliuq cadmiunl

chrornium, nranganese, nickel, and mercury content.

2. Fuel sampling analysis nrethods include ASTM D 3683 for lead, arsenic, berylliurq cadmiun¡ chromiunl manganese, and

nickel content, and ASTM E 3684 for nærcury content.

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National Renderers Association comments to the U.S, Environmental Protection Agency

Major Source Boiler Rule - Docket No. EPA-HQ-OAR-2002-0058

July 15,201I

Page 8

The metal HAP content in the processed fats were "non-detect" or below detection levels for each

pollutant, except lead and manganese. The NRA assumes the different ASTM analysis methodologies are

the reason for the anomalies concerning the lead and manganese content measured in samples.

Specifically, the lead and manganese content in the yellow grease No. 2 and tallow No. 2 samples were

measured using ASTM D 3683. However, the lead and manganese content in the other three processed

fats samples were measured using ASTM E 1613. The sample set indicates confidence that the metal

content of the processed fats samples is insignificant and is in fact lower than the metal HAPs emitted

from units designed to bum Gas I fuels (Gas I units) as identified in Table 2. With a similar minimal

metal HAP content to Gas 1 units, the processed fats-fired boilers do not result in significant metal HAP

emissions required to be subject to emissions limitations under NESHAP Subpart DDDDD.

Tanle 2. Gas FuBl Snuplps MBral HAP CoNrBNr

Metal IIAPs

Maximum Content

(pptnto)'

Arærage Content

(pprnrn)3

Iæadl

. .2 Arsenrc

Beryllium2 .2 Ladmlum

Chromium2

Manganese

Nicke12

Mercury3

84.s

93.5

68.5

9.0

289.3

200.6

328.6

1.6

29.9

35.5

17.0

2.7

lll.0

80.7

107.3

0.5

1,I-ead content in 23 fuel samples for five (5) boiler units firing

natural gas and natural gas/sanderdust fuels.

2. Arsenic, berylliun¡ cadmiurq chromiun¡ manganese, and nickel

content in 24 fuel samples for five (5) boiler units firing natural gas

3. Mercury content in 40 fuel samples for seven (7) boiler units

hring natural gas and natural gas/sanderdust fuels.

The Boiler MACT includes the following definition for Other Gas I fuel under $63.7575:

Other gas I fuel means a gaseousfuel that is not natural gas or refinery gas and does nol exceed

the maximum concentration of 40 micrograms/cubic meters of mercury and 4 parts per million,

by volume, of hydrogen sulfide.

The mercury content for defining a fuel as Other Gas I instead of Gas 2 identifies a representative

"threshold" for a significant HAP content (mercury) for a fuel (Gas l) that is not subject to an emissions

limitation. If an "other" gas fuel does not meet the definition of an Other Gas I fuel, the unit is classified

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National Renderers Association comments to the U.S. Environmental Protection Agency Page 9

Major Source Boiler Rule - Docket No. EPA-HQ-OAR-2002-0058

July 15, 201I

as a Gas 2 (other) fue1.8 A maximum concentration of 40 pglm3 for the mercury content in Other Gas I

fuel is equivalent to 2.5e-06IblMMBtu mercury emission factor assuming a heating value of 1,000

Btu/scf,

Processed fats are not gaseous fuels, but the mercury content in the processed fats samples was below a 5

ppbw detection limit. Even if we assume that the mercury was present at this detection limit of 5 ppbw,

and we apply a conservative heating value of 17,000 Btu/lb, this is approximately 3.0e-07 lbA4MBtu - an

order of magnitude less than the EPA-defined threshold for natural gas-equivalency. Since Gas I units

are subject to work practice standards under the Boiler MACT, the NRA has demonstrated the mercury

(rnetal HAP) content identified in various types of processed fats samples analyzed is similar (or less

than) in merculy content to Other Gas I fuel, and should be similarly regulated (work practice standards).

Processed fats are not derived from the petroleum processing industry, but instead are renewable fuel

sources obtained from the recycling of byproducts from the food processing industry. Table 3 includes

the petroleum-based liquid fuel sample analyses from the EPA Emissions Database for different metal

HAP content. The maximum metal HAP content for the petroleum-based liquid fuels are above detection

levels, as delineated in Table l, and higher specifically for lead and manganese content compared to the

processed fats samples analyses.

T¿,nr,B 3. Lreuro FuBr, Sarrrples MBTaL HAP CoNrBNr

Metal tIAPs

Number of FI¡el

Samples

Maximum Content

(pprrn)t

Average Content

(ppmto)t

Læad

Arsenic

Beryllium

Cadmium

Chromium

Manganese

Nickel

Mercury

375

345

3s0

367

390

386

410

417

22.6

6.0

19.0

1.5

15.0

10.0

270.0

t3.7

t.7

0.5

0.5

0.2

0.9

1.2

27,6

0.9

l. Metal HAP content in identihed fuel samples for units hring No. 6 fuel oil, No, 2

distillate, diesel fuel, fuel oil, biodiesel, No. 4 fuel oil, and No. 5 fuel oil.

Since the processed fats samples metal HAP emissions are different in type and quantities than the

petroleum-based liquid fuels, the boilers burning these two types of fuels are not similar sources. Due to

the fuels not being identified as similar sources, the NRA requests that the processed fats be categorized

as a separate liquid fuel subcategory,

8 New and existing Gas 2 (other) units are subject to emissions limitations for PM, CO, HCl, mercury, and

dioxin/furans as defined in Tables I and2 to NESHAP Subpart DDDDD, respectively.

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National Renderers Association comments to the U.S. Environmental Protection Agency Page l0

Major Source Boiler Rule - Docket No. EPA-HQ-OAR-2002-0058

July 15, 201I

AcTo GIs HAP EUISSIONS

The rendering industry routinely monitors processed fats for the presence of acid gas HAP-forming

constituents, specifically chlorinated pesticides and polychlorinated biphenyls (PCBs). The U.S. Food

and Drug Administration (FDA) considers any rendered product contaminated with pesticidesÆCBs as

adulterated under the Food Drug and Cosmetic Act if they exceed tolerances established by the FDA or

EPA (40 CFR Part 180). The testing of these products to veri$ compliance is an integral part of the

industry's Good Manufacturing Practices (GMP). The GMP varies from one NRA member to another

and includes, but is not limited to, the following:

o Testing each production run before it is released for sale;

o Testing each load prior to shipment;

o Testing a weekly composite sample of each type of processed fat produced; and

¡ Periodic, or spot, testing.

Each year NRA members test several thousand samples for the presence of the chlorinated pesticides and

PCBs as a GMP to assure compliance with tolerances established by the FDA or EPA. Sampling results

for three of the processed fats samples (Yellow Grease No. l, Poultry Grease, and Tallow No. l) analyzed

using ASTM D 4327 indicated no detected chloride content.9 The methods used for chlorinated pesticide

testing are also recognized by the World Health Organization (WHO) as an approved method for the

screening ofdioxins and dioxin like substances and therefore the referenced test results also indicate these

compounds are not typically present in processed fats.

Compared to natural gas from the EPA Emissions Database, the maximum chlorine content in 53 natural

gas fuel samples analyzed is 2,870 ppmw. For 386 petroleum-based liquid fuel samples analyzed, the

maximum chlorine content is 1,260 ppmw.l0

The NRA considers this GMP of monitoring processed fats for chlorinated pesticides and PCBs as

demonstrating that acid gas HAP-forming constituents are insignificant. Due to insignificant content of

chlorinated compounds (based on separate FDA requirements for the industry) in the processed fats prior

to combustion, the NRA believes the correlation to insignificant acid gas HAP emissions from boilers

burning processed fats is direct. Any acid gas HAP emissions result from the actual chlorinated

compound content in the fuel source combusted and not produced by combustion due to insignificant

levels of chlorinated compounds in the fuel source. Without high content of acid gas HAP-forming

constituents in processed fats due to industry quality requirements, boilers buming processed fats do not

emit significant acid gas HAP emissions. Therefore, similar to Gas I units, these processed fat-fired

boilers should also be subject to work practice standards and not an HCI emissions limitation under the

Boiler MACT.

9 Detection level or threshold is l0 ppm for ASTM D 4327.

l0 The petroleum-based liquid fuels includes No. 6 fuel oil, No. 2 distillate, diesel fuel, fuel oil, biodiesel,

No. 4 fuel oil, and No. 5 fuel oil, as identified in the EPA Emissions Database.

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National Renderers Association comments to the U.S. Environmental Protection Agency

Major Source Boiler Rule - Docket No. EPA-HQ-OAR-2002-0058

July 15, 201I

Page I I

OncaNrc HAP ErurssroNs

EPA is required to establish emission standards for organic HAP emissions (compliance with the Boiler

MACT demonstrated using CO sunogate pollutant for subject subcategories). Organic HAP emissions,

such as polycyclic organic compounds (POCs) (as 7-PAH and referred to as polycyclic organic matter

[POM]) and ethylene dioxide, are due to incomplete combustion of fossil fuels and solid vegetable matter

that contains lignin and cellulose. Rendered processed fats contain triglyceride mono, di, and free fatty

acids. Acrolein (or 2-propenal) can be formed when processed fats fuel is burned due to decomposition

of the triglyceride glycerin backbone. However, this is not a cyclic compound and therefore does not

meet the definition of a POC (or POM). As such, the pollutant generation of these organic HAP from

processed fats combustion is analogous to natural gas combustion. EPA previously found that these

emissions were insignificant from natural gas combustion, and a similar argument can be made for

processed fats fuel combustion. Therefore, similar to Gas I units, these processed fat-frred boilers should

also be subject to work practice standards and not a CO emissions limitation under the Boiler MACT.

Wonr Pnecrrcp SraNnaRts

EPA has the statutory authority as identified in Section I l2(h) of the CAA to prescribe the type of

compliance demonstration required to be met to control HAP emissions under the Boiler MACT and

other NESHAP regulations,

(h) WORK PRACTICE STANDARDS AND OTHER RESUIREMENTS.-

(l) IN GENERAL.-For purposes of this section, if it is notfeasible in the judgment of the

Administrator to prescribe or enforce an emission standard for control of a hazardous air

pollutant or pollulants, lhe AdminisÍrator may, in lieu thereof promulgate a design, equipment,

work practice, or operational slandard, or combinalion lhereof, which in lhe Administralor's

judgment is consistenl with the provisions of subsection (d) or (fl. In the event the Adminislrator

promulgales a design or equipment slandard under lhis subseclion, lhe Administrator shall

include as part of such standard such requiremenls as will assure the proper operalion and

mainlenance of any such elemenl of design or equipment.

(2) DEFINITION.-For the purpose of this subsection, the phrase "notfeasible to prescribe or

enforce an emission standard" means any siluation in which lhe Adminislralor determines lhal-

(A) a hazardous air pollutanl or pollutants cannot be emitted lhrough a conveyance designed and

construcled lo emit or caplure such pollutant, or that any requirementþr, or use of, such a

conveyance would be inconsislenl wilh any Federal, State or local law, or

(B) the application of measurement methodologt to a particular class of sources is not

practicable due to technological and economic limitations.

A work practice standard can be used for compliance demonstration when it is "not feasible to prescribe

or enforce an emission standard" due to technological and economic limitations for a specific subcategory

of emission sources. For NESHAP Subpart DDDDD, EPA determined that work practice standards are

appropriate for ensuring HAP emissions are effectively controlled from Gas I units,

B0 r Norrh Foirfox skeer 

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National Renderers Association comments to the U.S. Environmental Protection Agency

Major Source Boiler Rule - Docket No. EPA-HQ-OAR-2002-0058

July 15,201I

Page 12

EPA has determined that it is nol feasible to prescribe numerical emissions standards for Gas I

units because the application of measurement methodology is not praclicable due to

technological and economic limitations. Thereþre, EPA is finalizing the work practice standards

þr Gas I unils. The commenters correctly poinl out thal the measured emissions from these unils

are routinely below the detection limils of EPA test methods, and, as such, EPA considers it

impraclicable lo reliably measure emissions from these units. Even CO, which commenlers

coruectly poinl out was tested at many natural gas and refinery gas-fired units, was below the

level EPA considers to be a reliable measLrremenl for more than 80 percent of the tesl runs lhal

were conducted on Gas I unils. The case for olher pollulants is even more compelling as lhe

majority of measurements are so low as to casl doubt on the true levels of emissions lhat were

measured during the tests. Of the 48 test runsþr HCl, 98 percent were below three times the

maximum reported measuremenl delection level; similarly, 100 percent of the Hg runs, and 45

percenl of the PM data were below lhree limes the maximum reported meosurement delection

level. It is unusual to see numbers near lhe detection limitfor PM since lhe "detection" involves

a comparatively simple (compared to ollter test melhods) weighing procedure, and the overall

result indicates that the emissions are very close lo zero. All of the dioxin tesls had multiple nondetect isomers. Overall, the available lest methods ore greatly challenged, to the point of

providing results that are questionablefor all of the pollutanls, wlten tesling natural gas units.

Because of these technological limitalions that render it impraclicable to measure emissions from

Gas I units, EPA is also unable to establish the actual perþrmance of the best perþrmers as well

as sources outside of the top perþrming I2 percenl. The inability lo accurately measure

emissions from Gas I unils and the related economic impracticability associaled with measuring

levels lhat are so low that even carefully conducled lests do not accurately measure emissions

warrant setting a work practice slandard under CAA section I 12(h). EPA is establishing a

requirement to implement a tune-up program as described in Section IILD of this preamble. As

noted by many commenters, the tune-up program is an effective HAP emissions limitalion

technology. The requiremenl of an annual tune-up will allow these units lo conlinue to combust

the cleanest fuels available þr boilers while minimizing emissions to the same degree thal is

consistent with the operating practices of the best pedorming units in the subcategory. l7 6 FR

l s6381.

The information provided in this comments letter for processed fats HAP content is analogous to the data

used by EPA to determine Gas I units are not required to meet a MACT Floor, and instead demonstrate

control of HAP emissions for Gas I units by enforcing work practice standards. The NRA feels that the

non-detect analysis data identified for the metal HAP content in processed fats samples indicates the

infeasibility for establishing a MACT Floor for the requested separate subcategory (unit designed to burn

processed fats subcategory), Processed fats are essentially an "equivalent fuel" to Gas I regarding metal

HAP, acid gas HAP, and organic HAP content, based on the defined thresholds established by EPA.

Furthermore, the processed fats-fired boilers can meet the current explanations identified by EPA for

requiring work practice standards for Gas I units to demonstrate compliance with the Boiler MACT.

"If your unil combusts only natural gas, refinery gas, or equivalenl.fuel (olher gas that qualifies

as Gas I fuel), with limited exceptions for gas curtailment and emergencies, your unit is subject

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National Renderers Association comments to the U.S. Environmental Protection Agency Page l3

Major Source Boiler Rule - Docket No. EPA-HQ-OAR-2002-0058

July 15, 201I

lo a work praclice standard thal requires an annual lune-up in lieu of emission limits. " [76 FR

ts6t2l

The NRA feels the control of HAP emissions from processed fats-fired boilers will be accomplished most

cost effectively by work practice standards developed for the requested separate subcategory. Due to the

similar HAP emissions as identified in this comments letter for processed fats-fired boilers and Gas I

units, the NRA requests similar work practice standards compliance requirements for the requested

separate processed fats subcategory. Specifìcally, the NRA requests that processed fats-fired boilers are

subject to the following work practice standards included in Table 3 to NESHAP Subpart DDDDD.

o A facility with a new or existing boiler with heat input capacity greater than l0 MMBtu/hr must

conduct a tune-up of the boiler annually in accordance with $63,7540.

. A facility with an existing boiler must complete a one-time energy assessment performed by a

qualified energy assessor.

Mnrnr, HAP Eulssro¡ts LIMITATIoNS

EPA proposed the National Emission Standards þr Hazardous Air Pollutants from Coal- and Oil-Fired

Electric Utility Steam Generating Urzils (I.IESHAP Subpart UUUUU) and Standards of Pedormanceþr

Fossil-Fuel-Fired Electric Utility, Industrial-Commercial-Institutional Steam Generating Units

(modifrcations to NSPS Subparts D, Da, Db, and Dc) rules on May 3, 2Ol I . 

I I NESHAP Subpart

UUUUU is not applicable to boilers and process heaters at NRA member facilities since the units are not

utilized to produce steam for electricity generating purposes above the thresholds defined in the rule.

However, the proposed rule is relevant to this discussion conceming how EPA established emission

standards for metal HAPs. In both the Boiler MACT and NESHAP Subpart UUUUU, EPA defined PM

as an appropriate surrogate for metal HAP emissions.

In the preamble (76 FR 25021) to the proposed NESHAP Subpart UUUUU, EPA referenced the

following relevant "other related DC Circuit Court Decisions."

A third relevant DC Circuit Court opinion is National Lime II (233 F.3d 625), where, in

considering whether EPA may use PM, a crileria pollutant, as a surrogate þr melal HAP, the

DC Circuit Court stated fhaf EPA "may use a suruogate to regulate hazardous pollutants if it is

'reasonable' to do so" and laid out crileria establishing a lhree part analysis for determining

whether the use of PM as a surrogatefor non-Hg metal HAP was reasonoble. The DC Circuit

Courtfound that PM is a reasonable surrogateþr HAP if: (1) "HAP metals are invariably

present in PM;" (2) "PM control technology indiscriminately captures HAP metals along with

other particulates;" and (3) "PM control is the only means by which facilities 'achieve'

reductions in HAP metal emissions." 233 F.3d at 639. If these criteria are satisfied and the PM

emission slandards reflect what the besl sources achieve-complying with CAA section

7412(d)(3)-"EPA is under no obligation to achieve a particular numerical reduction in HAP

I I Federal Register, Yol.76, No. 85, pp.24976-25147 (May 3,2011).

BOr Norrh Foirfox sheer 

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National Renderers Association comments to the U.S. Environmental Protection Agency

Major Source Boiler Rule - Docket No. EPA-HQ-OAR-2002-0058

July 15, 201I

Page 14

metal emissions." l\le have considered this case in evalualing whether the surrogate standards

we propose to establish in lhis proposed rule are reasonable.

The justification for using PM emissions as a sunogate pollutant for non-mercury metal HAP emissions

in NESHAP Subpart UUUUU is the same DC Circuit Court determination used for the justification in

NESHAP Subpart DDDDD. However, it is important to note that EPA identifies it is reasonable to use

PM as an optional surrogate for non-mercury metal HAP in NESHAP Subpart UUUUU, but not in

NESHAP Subpart DDDDD. Therefore, electric generating units (EGUs) subject to NESHAP Subpart

UUUUU will have the option to demonstrate compliance with the non-mercury metal HAP surrogate

(PM) emissions limitation, the total selected metals (TSM) emissions limitation, or the individual nonmercury metal HAP emissions limitation(s).

EPA has not provided any justification under the authority in Section I 12(dXl) regarding why they can

enable combustion units that will be subject to NESHAP Subpart UUUUU, and not combustion units

subject to NESHAP Subpart DDDDD, to demonstrate compliance with TSM or individual non-merculy

metal HAP emissions limitation(s) as an altemative to the metal HAP surrogate (PM). Boilers with

specifìc fuel types subject to either the proposed NESHAP Subpart UUUUU or NESHAP Subparl

DDDDD generate metal HAP emissions in the same manner due to the metal HAP constituents in the fuel

type. Therefore, the NRA feels boilers and process heaters subject to NESHAP Subpart DDDDD should

also have the compliance demonstration option for actual non-mercury metal HAP emissions in addition

to a non-mercury metal HAP surogate (PM).

The NRA is not addressing in this comments letter whether PM is an appropriate surrogate option for

non-mercury metal HAP. Instead, the NRA is bringing to EPA's attention that by not providing an option

for direct measurement of TSM or individual non-mercury metal HAP content where it is feasible, EPA is

detaching the rule from the underlying statutory requirements for control of HAP (of which PM is not).

The NRA requests that EPA finds it is appropriate to include an option to demonstrate compliance

directly with a TSM or individual non-mercury metal HAP emissions limitation(s) via fuel sarnpling for

NESHAP Subpart DDDDD, as the agency has already included in the proposed NESHAP Subpart

UUUUU.

Nox-MpncuRy MBr.ql HAP CorupLIANcE MrrHons

As noted above, the proposed NESHAP Subpart UUUUU includes non-mercury metal HAP sun'ogate

(PM), TSM, and individual non-mercury metal HAP emissions limitations in Table 2 of the proposed

rule.l2 For defined unit types under proposed NESHAP Subpart UUUUU, the individual non-mercury

metal HAP emissions limitations are included for antimony, arsenic, beryllium, cadmium, chromium,

cobalt, lead, manganese, nickel, and selenium pollutants. The proposed rule compliance requirements for

the TSM or non-mercury metal HAP emissions limitations include compliance testing using EPA Method

29 for metal HAP concentrations and EPA Method l9 F-factor methodology as identified in Table 5. The

fuel analysis requirements for individual metal HAP content in proposed NESHAP Subpart UUUUU is

included in Table 6.

l2 Federal Register, Vol.76, No. 85, pp.25128 (May 3,201l).

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National Renderers Association comments to the U,S. Environmental Protection Agency Page 15

Major Source Boiler Rule - Docket No. EPA-HQ-OAR-2002-0058

July 15,201I

The NRA requests that similar fuel analysis and performance testing compliance methods identified in

NESHAP Subpart UUUUU also be included in the Boiler MACT for the requested TSM and individual

non-mercury metal HAP emissions limitations. The requested emissions limitations for TSM and

individual non-mercury metal HAP emissions are requested by NRA to be based on fuel analysis and

emissions data for applicable boilers obtained from the EPA Emissions Database.

The NRA believes that EPA should determine processed fats boilers are a separate subcategory from the

existing units designed to burn liquid fuel subcategory and that it is both statutorily reasonable and

technically appropriate for EPA to enable the processed fats boilers to demonstrate compliance with the

NESHAP through work practice standards, Additionally, the NRA feels the EPA is statutorily required to

enable boilers and process heaters subject to a PM emissions limitation in the final rule to have

compliance demonstration options of either a metal HAP sunogate (PM), TSM, or individual nonmerculy metal HAP emissions limitations. The NRA certainly appreciates EPA's efforts and values

improvements in air quality, and as such respectfully submits that EPA reconsiders the portions of the

rule addressed in this letter.

Should additional clarification or information be desired concerning any of these comments, please

contact me at (703) 683-2633 or DMeekerleùnatiottalrenderers.cotu.

Sincerely,

NATIONAL RENDERERS ASSOCIATION

David 

ÐW

L. Meeker, Ph.D., MBA

Senior Vice President, Scientific Services

National Renderers Association

Attachment

cc: Mr, Brian Shrager

Energy Strategies Group, Sector Policies and Programs Division, (D243-0I)

Office of Air Quality Planning and Standards

U.S. Environmental Protection Agency

Research Triangle Park, NC 27711

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