# UNITED

STATES ENVIRONMENTAL

PROTECTION

AGENCY REGION

7 MEMORANDUM

11201 Renner Boulevard Lenexa,

Kansas

66219 

# MAY



# 26

2015 SUBJECT:

Technical

Support Document

for

the Revision

to the Missouri

State Implementation

Plan (SIP)

for Control

of Petroleum

Liquid Storage,

Loading

and Transfer-Stage

II Removal **O**



# ·

Steven

Brown **~I**



# 1



# Air Planning

and Development

Branch 

# Sf

Z t.(l 

# 5""' TO:

EPA-RO?

- OAR-2015-0268 THRU:

Joshua

Tapp, Branch

Chief,

A WMD

/ APDB Michael

Jay, Section

Chief,

A WMD

/ APDB

/ AtPS 

# Missouri

State Implementation

Plan TABLE

OF CONTENTS I. INTRODUCTION II. BACKGROUND III. DESCRIPTION

OF REVISIONS • REMOVAL

OF STAGE-II

VAPOR RECOVERY

SYSTEM REQUIREMENTS • REVISING CERTIFICATION

AND TESTING PROCEDURES • PROHIBITING

ABOVE GROUND STORAGE

TANKS

AT GDFs • REVISING PERMITTING

PROVISIONS

FOR STAGE-I SYSTEMS • GENERAL REVISIONS I. INTRODUCTION This Technical

Support Document

(TSD) addresses

State Implementation

Plan revisions

submitted

by the State ofMissouri

that amend Missouri

rule

10 CSR 10-5.220.

This

TSD provides

EPA's analysis

of the supporting

evidence

provided

by Missouri

as

to why these revision

s,

in the aggregate,

meet

the minimum requirements

of the Clean

Air

Act (CAA)

and associated regulations

, guidance

and policy

. Printed

on Recycled

PaperII.BACKGROUNDStageIIandonboardrefuelingvaporrecovery(ORVR)systemsaretwotypesofemissioncontrolsystemsthatcapturefuelvaporsduringvehiclerefueling.StageIIvaporrecoverysystemsareinstalledatgasolinedispensingfacilities(GDFs)andcapturetherefuelingfuelvaporsatthegasolinepumpnozzle.ThesystemcarriesthevaporsbacktotheundergroundstoragetankattheGDFtopreventthevaporsfromescapingtotheatmosphere.ORVRsystemsarecarboncanistersinstalleddirectlyonautomobilestocapturethefuelvaporsevacuatedfromthegasolinetankbeforetheyreachthenozzle.Thefuelvaporscapturedinthecarbon canistersarethencombustedintheenginewhentheautomobileisinoperation.StageIIvaporrecoverysystemsandvehicleORVRsystemswereinitiallybothrequiredbythe1990AmendmentstotheCleanAirAct(CAA).Section182(b)(3)oftheCAArequiresmoderateandaboveozonenonattainmentareastoimplementStageIIvaporrecoveryprograms.CAAsection202(a)(6)requiredEPAtopromulgateregulationsforORVRforlight-dutyvehicles(passengercars).EPAadoptedtheserequirementsin1994,atwhichpointmoderateozonenonattainmentareaswerenolongersubjecttotheCAAsection182(b)(3)StageIIvaporrecoveryrequirements.ORVRequipmenthasbeenphasedinfornewpassengervehiclesbeginningwithmodelyear1998,andstartingwithmodelyear2001forlight-dutytrucksandmostheavy-dutygasolinepoweredvehicles.ORVRequipmenthasbeeninstalledonnearlyallnewgasolinepoweredlight-dutyvehicles,light-dutytrucks,andheavy-dutyvehiclessince2006.Duringthephase-inofORVRcontrols,StageIIhasprovidedvolatileorganiccompound(VOC)reductionsinozonenonattainmentareas.CongressrecognizedthatORVRsystemsandStageIIvaporrecoverysystemswouldeventuallybecomelargelyredundanttechnologies,andprovidedauthoritytoEPAtoallowstatestoremoveStageIIvaporrecoveryprogramsfromtheirSIPsafterEPAfindsthatORVRisin"widespreaduse."EffectiveMay16,2012,thedatethefinalrulewaspublishedintheFederalRegister(see77FR28772),EPAdeterminedthatORVRsystemsareinwidespreadusenationwideforcontrolofgasolineemissionsduringrefuelingofvehiclesatGDFs.Currently,morethan75percentofgasolinerefuelingnationwideoccurswithORVR-equippedvehicles,soStageIIvaporrecoveryprogramshavebecomelargelyredundantcontrolsystemsandStageIIvaporrecoverysystemsachieveaneverdecliningemissionsbenefitasmoreORVR-equippedvehiclescontinuetoentertheonroadmotorvehiclefleet.InitsMay16,2012rulemaking,EPAalsoexerciseditsauthorityunderCAAsection202(a)(6)towaivecertainfederalstatutoryrequirementsforStageIIvaporrecoverysystemsatGDFs.ThisdecisionexemptsallnewozonenonattainmentareasclassifiedseriousorabovefromtherequirementtoadoptStageIIvaporrecoveryprograms.Finally,EPA'sMay16,2012rulemakingalsonotedthatanystatecurrentlyimplementingStageIIprogramsmaysubmitStateImplementationPlan(SIP)revisionsthatwouldallowforthephase-outofStageIIvaporrecoverysystems.2III.DESCRIPTIONOFREVISIONSOnNovember20,2014,EPAreceivedarequestfromMDNRtorevisetheSIPtoremoveStageIIvaporrecoverysystemsintheSt.Louisarea,revisecertificationandtestingproceduresforStageIsystems,prohibitabovegroundstoragetanksatgasolinedispensingfacilities(GDFs)aboveacertainthreshold,revisepermittingprovisions,updatepermittingfeesandgeneralclarificationeditstotheruletext.AllrequestedSIPamendmentstoMissourirule10CSR10-5.220arelistedbelowindetail.•REMOVALOFSTAGE-IIVAPORRECOVERYSYSTEMREQUIREMENTSOnNovember20,2014,thestateofMissourisubmittedtoEPAarevisiontotheSIPtoremovetherequirementsofStageIIvaporrecoverycontrolsystemsatgasolinedispensingfacilitiesintheSt.Louisarea,andademonstrationthatsuchremovalisconsistentwithEPAguidanceandtheCleanAirAct.TheStageIIrequirementsofthis staterulewerepromulgatedinthelate1980sandwereincorporatedintoMissouri'sSIPaspartofthecontrolstrategiesfortheone-hourozoneNationalAmbientAirQualityStandard(NAAQS).Asstatedabove,pursuanttotheMay16,2012rulemaking(77FR28772),EPAdetermined thatOnboardRefuelingVaporRecovery(ORVR)technologywasinwidespreadusethroughoutthenationalmotorvehiclefleetforpurposesofcontrollingmotorvehiclerefuelingemissions.ThisfederalruleallowsstatestoremoveStageIIprogramsfromtheirSIPifcertaincriteriaaremetthroughanemissionsdemonstrationusingEPAguidanceentitledGuidanceonRemovingStageIIGasolineVaporControlProgramsfromStateImplementationPlansandAssessingComparableMeasures,August7,2012.BecausetheStageIIcontrolsin10CSR10-5.220arepartofMissouri'sapprovedSIP,itsubmittedaSIPrevisiontoEPAthatincludesrevisionstotheStageIIruleregulationsandananalysisoftheemissionsimpactofeliminatingtheStageIIcontrolsasstatedinEPAguidance.IncludedinthedocketisMissouri'sTSDwhichservesastheanalysisoftheemissionsimpactofeliminatingStageIIrequirementsfromtheSt.Louisarea.EPAreviewedMissouri'sTSDanalysisandfoundthatitfollowstheEPAguidancedocumentcitedabove,demonstratesthatremovalofStageIIcontrolswillnotadverselyaffecttheairqualityintheSt.Louisarea,andsatisfiesallCAArequirementsforremovalofcontrolmeasuresfromaSIP.Specifically,therequirementsofsection110(1)oftheCAA,whichprohibitsrevisionofaSIPthatwouldinterferewithattainmentofaNAAQSorreasonablefurtherprogresstowardattainmentofaNAAQS,havebeenmet.Inaddition,therequirementsofsection193oftheCAA,whichprohibitsmodificationofanycontrolrequirementineffectbefore1990inacurrentnonattainmentareaunlessthemodificationinsuresequivalentorgreateremissionsreductions,aresatisfied.AsshowninsectionIII.C.ofMissouri'sTSD,theemissionsreductionbenefitsfromORVRsystemsinthemotorvehiclefleetaregreaterthantheemissionsreductionbenefitsfromStageIIvaporrecoverysystemsforallyearsofinterestinthedemonstration.Therefore,therequirementsofsection193oftheCAAaresatisfiedforanyyearanalyzedinthedemonstration.3SectionIII.D.ofMissouri'sTSDshowsanegligibleimpactofverysmall,short-termVOCemissionsincreasesfromStageIIremovalontheoverallprogressoftheSt.LouisareatowardattainmentoftheozoneNAAQS.Allshort-termemissionsincreasesfrom theremovalofStageIIrequirementsaresmallerthanthereductionsshownfrommobilesourceemissionsfortheyearsofinterestinthedemonstration.Inaddition,thedownwardtrendofthemobilesourceVOCemissionsisessentiallyunchangediftheincrementalemissionsfromtheremovalofStageIIcontrolsareincluded.Therefore,the requirementsofsection110(1)oftheCAAaresatisfiedforanyyearanalyzedinthedemonstration.Missouri'sanalysiswasconductedinaccordance withEPAguidanceandcoverstheyears2012through2020anddemonstratesthatremovalofStageIIcontrolsmaybeginasearlyas2013withoutnegativelyimpactingtheSt.LouisairqualityorviolatingtheCleanAirActprohibitiononbacksliding.Forfurtherinformation,seeMissouri'ssubmittalthatincludestheredlinestrikeoutrevisiontotheruleandTSD,"TechnicalSupportDocumentfortheAmendmentto10CSR10-5.220ControlofPetroleumLiquidStorage,LoadingandTransferRemovalofStageIIVaporRecoveryRequirements(PreparedJanuary9,2013for10CSR10-5.220,rulemakingeffectivedateisNovember30,2014)"whichispartofthisdocket.•REVISINGCERTIFICATIONANDTESTINGPROCEDURESCertificationandtestingproceduresforStageIsystemswillusetheCaliforniaAirResourcesBoard(CARB)vaporrecoveryprograminsteadoftheMissouriPerformanceEvaluationandTestProcedures(MOPETP).TheCARBisthestateofCalifornia'scleanairregulatoryboard.BecauseCaliforniaestablishedCARBbeforethefederalgovernmentadopteditscurrentregulatorypolicies,itistheonlystatepermittedtooverseeastate-runairresourcesboard.UndertheCAAtheCARBmayalsoadoptandenforceitsownemissionsstandards.SeeMissouri'sredlinestrikeoutsubmittalSections:(3)GeneralProvisions(5)TestMethods•PROHIBITINGABOVEGROUNDSTORAGETANKSATGDFsTheprohibitionofabovegroundstoragetanks(ASTs)atGDFswillbecodified.TheexistingruleneverallowedASTsbecauseMOPETPnevercertifiedASTs.TheeliminationofMOPETPrequiresaddinglanguagetotheruletoclarifythatASTswillcontinuetobeprohibitedgreaterthanacapacityofonethousandgallons.SeeMissouri'sredlinestrikeoutsubmittalSections:(3)GeneralProvisions,(C)GasolineTransferatGDFs.4SectionIII.D.ofMissouri'sTSDshowsanegligibleimpactofverysmall,short-termVOCemissionsincreasesfromStageIIremovalontheoverallprogressoftheSt.LouisareatowardattainmentoftheozoneNAAQS.Allshort-termemissionsincreasesfromtheremovalofStageIIrequirementsaresmallerthanthereductionsshownfrommobilesourceemissionsfortheyearsofinterestinthedemonstration.Inaddition,thedownwardtrendofthemobilesourceVOCemissionsisessentiallyunchangediftheincrementalemissionsfromtheremovalofStageIIcontrolsareincluded.Therefore,therequirementsofsection110(1)oftheCAAaresatisfiedforanyyearanalyzedinthedemonstration.Missouri'sanalysiswasconductedinaccordancewithEPAguidanceandcoverstheyears2012through2020anddemonstratesthatremovalofStageIIcontrolsmaybeginasearlyas2013withoutnegativelyimpactingtheSt.LouisairqualityorviolatingtheCleanAirActprohibitiononbacksliding.Forfurtherinformation,seeMissouri'ssubmittalthatincludestheredlinestrikeout revisiontothe ruleandTSD,"TechnicalSupportDocumentfortheAmendmentto10CSR10-5.220ControlofPetroleumLiquidStorage,LoadingandTransferRemovalofStageIIVaporRecoveryRequirements(PreparedJanuary9,2013for10CSR10-5.220,rulemakingeffectivedateisNovember30,2014)"whichispartofthisdocket.•REVISINGCERTIFICATIONANDTESTINGPROCEDURESCertificationandtestingproceduresforStageIsystemswillusetheCaliforniaAirResourcesBoard(CARB)vaporrecoveryprograminsteadoftheMissouriPerformanceEvaluationandTestProcedures(MOPETP).TheCARBisthestateofCalifornia'scleanairregulatoryboard.BecauseCaliforniaestablishedCARBbeforethefederalgovernmentadopteditscurrentregulatorypolicies,itistheonlystatepermittedtooverseeastate-runairresourcesboard.UndertheCAAtheCARBmayalsoadoptandenforceitsownemissionsstandards.SeeMissouri'sredlinestrikeoutsubmittalSections:(3)GeneralProvisions(5)TestMethods•PROHIBITINGABOVEGROUNDSTORAGETANKSATGDFsTheprohibitionofabovegroundstoragetanks(ASTs)atGDFswillbecodified.TheexistingruleneverallowedASTsbecauseMOPETPnevercertifiedASTs.TheeliminationofMOPETPrequiresaddinglanguagetothe ruletoclarifythatASTswillcontinuetobeprohibitedgreaterthanacapacityofonethousandgallons.SeeMissouri'sredlinestrikeoutsubmittalSections:(3)GeneralProvisions,(C)GasolineTransferatGDFs.4

# • REVISING PERMITTING

PROVISIONS

FOR STAGE-I SYSTEMS Permitting

provisions

will

be revised

to address

the decommissioning

of Stage

II systems

and clarify

the permitting requirements

and

fees

for Stage

I systems.

The permitting

fees

will remain $100

per permit

but

the frequency

with which permits

are issued

will change. See Missouri's

redline strikeoutsubmittalSections:

(3) General Provisions (F) Permits Required • GENERAL REVISIONS There

are general

clerical revisions

such

as the addition

of definitions,

formatting

and

or text changes

that

add clarity

to the rule throughout

the document.

See

the redline strikeout

version

in the state submittal

that

is part

of this docket. CONCLUSION 

# After reviewing

Missouri's

SIP submittal,

the evidence

shows

that Missouri's

TSD demonstration follows

the EPA guidance document,

Guidance

on Removing

Stage

II Gasoline

Vapor Control Programs

from

State Implementation

Plans

and Assessing Comparable

Measures,

August



# 7, 2012,



# and demonstrates

that these

SIP revisions

will

not have

an adverse

impact

on

air quality

by removing

Stage II Vapor Recovery

Systems

in the

St. Louis

area.

The associated

SIP revisions

to the General Provisions section

of the rule complement

the removal

of Stage

II Vapor Recovery

Systems

in the

St. Louis

area. They

do not have

a negative

impact

on

air quality

and

are approvable.

These

SIP revisions

are

in accordance

with

the Clean

Air

Act

and

do

not interfere

with

any applicable requirement

concerning attainment,

reasonable

further progress

or any other applicable requirements

for

the

St. Louis

area. Therefore,

**th~** 

# EPA supports approving

these

SIP revisions

that amend Missouri

Rule

10 CSR 10-5.220. 5