Jared Blumenfeld, Regional Administrator, EPA Region 9 signed the following proposed rule on November 26, 

2013, and EPA is submitting it for publication in the Federal Register (FR). While we have taken steps to ensure the 

accuracy of this Internet version of the proposed rule, it is not the official version of the proposed rule for purposes 

of public comment. Please refer to the official version in a forthcoming FR publication, which will appear on the 

Government Printing Office's FDsys website (http://fdsys.gpo.gov/fdsys/search/home.action) and on 

Regulations.gov (http://www.regulations.gov) in Docket No. EPA-R09-OAR-2013-0687. 

Billing code: 6560-50-P 

ENVIRONMENTAL PROTECTION AGENCY 

40 CFR Part 52 

[EPA-R09-OAR-2013-0687; FRL-] 

Approval and Promulgation of Implementation Plans; 

State of California; 2012 Los Angeles County State 

Implementation Plan for 2008 Lead Standard 

AGENCY: U.S. Environmental Protection Agency (EPA). 

ACTION: Proposed rule. 

__________________________________________________________

SUMMARY: EPA is proposing to approve a State implementation plan 

revision submitted by the State of California to provide for 

attainment of the 2008 lead national ambient air quality 

standard in the Los Angeles County nonattainment area. The 

submitted SIP revision is the Final 2012 Lead State 

Implementation Plan – Los Angeles County. Specifically, EPA is 

proposing to approve the emissions inventory, attainment 

demonstration, the reasonably available control 

measures/reasonably available control technology, reasonable 

further progress demonstration, and contingency measures as 

meeting the requirements of the Clean Air Act and EPA’s 

implementing regulations for the lead NAAQS. 

DATE: Any comments must arrive by [Insert date 30 days from the 

date of publication in the Federal Register]. 
This document is a prepublication version, signed by Jared Blumenfeld, Regional Administrator, EPA Region 9 on 

November 26, 2013. We have taken steps to ensure the accuracy of this version, but it is not the official version. 

2

ADDRESSES: Submit comments, identified by docket number EPA-R09-

OAR-2013-0687, by one of the following methods: 

· Federal eRulemaking Portal: www.regulations.gov. Follow 

the on-line instructions. 

· E-mail: tax.wienke@epa.gov. 

· Mail or deliver: Marty Robin, Office of Air Planning (AIR2), U.S. Environmental Protection Agency Region IX, 75 

Hawthorne Street, San Francisco, CA 94105. 

Instructions: All comments will be included in the public docket 

without change and may be made available online at 

www.regulations.gov, including any personal information 

provided, unless the comment includes Confidential Business 

Information (CBI) or other information whose disclosure is 

restricted by statute. Information that you consider CBI or 

otherwise protected should be clearly identified as such and 

should not be submitted through www.regulations.gov or e-mail. 

The www.regulations.gov website is an “anonymous access” system, 

and EPA will not know your identity or contact information 

unless you provide it in the body of your comment. If you send 

e-mail directly to EPA, your e-mail address will be 

automatically captured and included as part of the public 

comment. If EPA cannot read your comments due to technical 

difficulties and cannot contact you for clarification, EPA may 

not be able to consider your comment. 
This document is a prepublication version, signed by Jared Blumenfeld, Regional Administrator, EPA Region 9 on 

November 26, 2013. We have taken steps to ensure the accuracy of this version, but it is not the official version. 

3

Docket: The index to the docket for this action is available 

electronically on the www.regulations.gov website and in hard 

copy at EPA Region IX, 75 Hawthorne Street, San Francisco, 

California, 94105. While all documents in the docket are listed 

in the index, some information may be publicly available only at 

the hard copy location (e.g., copyrighted material), and some 

may not be publicly available at either location (e.g., CBI). To 

inspect the hard copy materials, please schedule an appointment 

during normal business hours with the contact listed in the FOR 

FURTHER INFORMATION CONTACT section below. 

Copies of the SIP materials are also available for 

inspection at the following locations: 

· California Air Resources Board, 1001 I Street, Sacramento, 

California 95812, and 

· South Coast Air Quality Management District, 21865 E. 

Copley Drive, Diamond Bar, California 91765. 

The SIP materials are also electronically available at: 

http://www.aqmd.gov/aqmp/Lead_SIP/homepage.htm and 

http://www.arb.ca.gov/planning/sip/sip.htm. 

FOR FURTHER INFORMATION CONTACT: Wienke Tax, Air Planning Office 

(AIR-2), U.S. Environmental Protection Agency, Region IX, (415) 

947-4192, tax.wienke@epa.gov. 

SUPPLEMENTARY INFORMATION: Throughout this document, “we,” “us” 

and “our” refer to EPA. 
This document is a prepublication version, signed by Jared Blumenfeld, Regional Administrator, EPA Region 9 on 

November 26, 2013. We have taken steps to ensure the accuracy of this version, but it is not the official version. 

4

Table of Contents 

I. The Lead NAAQS and the Los Angeles County Lead Nonattainment 

Area 

A. The Lead NAAQS 

B. The Lead Nonattainment Problem in Los Angeles County 

II. California’s State Implementation Plan Submittal to Address 

Lead Attainment in the Los Angeles County Nonattainment Area 

A. California’s SIP Submittal 

B. CAA Procedural and Administrative Requirements for SIP 

Submittals 

III. CAA and Regulatory Requirements for Lead Attainment SIPs 

A. California’s SIP Submittal 

B. CAA Procedural and Administrative Requirements for SIP 

Submittals 

IV. Review of the 2012 Los Angeles County Lead State 

Implementation Plan

A. Summary of EPA’s Proposed Actions 

B. Emission Inventories 

1. Requirements for Emission Inventories 

2. Base Year Emission Inventory in the 2012 Los Angeles County 

Lead SIP 

3. Proposed Action on the Emission Inventory 

C. RACM/RACT and Adopted Control Strategy 

1. Requirements for RACM/RACT 
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November 26, 2013. We have taken steps to ensure the accuracy of this version, but it is not the official version. 

5

2. RACM/RACT Demonstration in the 2012 Los Angeles County Lead 

SIP 

3. Proposed Actions on RACM/RACT Demonstration and Adopted 

Control Strategy 

D. Attainment Demonstration 

1. Requirements for Attainment Demonstration 

2. Air Quality Modeling in the 2012 Los Angeles County Lead SIP 

3. Attainment Demonstration 

4. Proposed Action on the Attainment Demonstration 

E. RFP Demonstration 

1. Requirements for RFP 

2. RFP Demonstration in the 2012 Los Angeles County Lead SIP 

3. Proposed Action on the RFP Demonstration 

F. Contingency Measures 

1. Requirements for Contingency Measures 

2. Contingency Measures in the 2012 Los Angeles County Lead SIP 

3. Proposed Action on the Contingency Measures 

V. EPA’s Proposed Action and Request for Public Comments 

A. EPA’s Proposed Approvals 

B. Request for Public Comments 

VI. Statutory and Executive Order Reviews 

I. The Lead NAAQS and the South Coast Lead Nonattainment Area 

A. The Lead NAAQS 
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November 26, 2013. We have taken steps to ensure the accuracy of this version, but it is not the official version. 

6

Under the Clean Air Act (CAA), EPA must establish national 

ambient air quality standards (NAAQS) for six criteria 

pollutants, including lead. Lead is generally emitted in the 

form of particles, which end up being deposited in water, soil, 

and dust. People may be exposed to lead by inhaling it, or by 

ingesting lead-contaminated food, water, soil, or dust. Once in 

the body, lead is quickly absorbed into the bloodstream and can 

result in a broad range of adverse health effects. These include 

damage to the central nervous system, cardiovascular function, 

kidneys, immune system, and red blood cells. Children are 

particularly vulnerable to lead exposure, in part because they 

are more likely to ingest lead and in part because their stilldeveloping bodies are more sensitive to the effects of lead. 

Urban children are also of particular risk if the mother is 

exposed to lead. The harmful effects to children’s developing 

nervous systems (including their brains) arising from lead 

exposure may include IQ loss, poor academic achievement, longterm learning disabilities, and an increased risk of delinquent 

behavior. 

EPA first established a lead standard in 1978 at 1.5 

micrograms per meter cubed (μg/m3) as a quarterly average.1 Based 

on new health and scientific data, EPA revised the federal lead 

standard to 0.15 μg/m3 and revised the averaging time for the 

 

1 See 43 FR 46246, October 5, 1978. 
This document is a prepublication version, signed by Jared Blumenfeld, Regional Administrator, EPA Region 9 on 

November 26, 2013. We have taken steps to ensure the accuracy of this version, but it is not the official version. 

7

standard on October 15, 2008 (see 73 FR 66964, November 12, 

2008). A violation of the standard occurs when ambient lead 

concentrations exceed 0.15 μg/m3 averaged over a 3-month rolling 

period. 

The process for designating areas following promulgation of 

a new or revised NAAQS is contained in section 107(d) of the 

CAA. The CAA requires EPA to complete the initial area 

designations process within two years of promulgating a new or 

revised NAAQS. Designations for the 2008 lead NAAQS were 

promulgated effective December 31, 2010 (see 75 FR 71033). Based 

on ambient air quality data for the years 2007-2009, a portion 

of Los Angeles County (excluding the high desert areas, San 

Clemente and Santa Catalina Islands) was identified as an area 

that did not meet the 2008 lead NAAQS.2

Areas are required to attain the revised lead standard as 

expeditiously as practicable, but no later than five years from 

the date the nonattainment designation became effective. For the 

Los Angeles County lead nonattainment area, this date is 

December 31, 2015. 

Attainment demonstration state implementation plans (SIPs) 

are due 18 months after the effective date of an area’s 

designation. For the Los Angeles County lead nonattainment area, 

 

2 For an exact description of the Los Angeles County lead nonattainment area, 

see 40 CFR part 81.305. 
This document is a prepublication version, signed by Jared Blumenfeld, Regional Administrator, EPA Region 9 on 

November 26, 2013. We have taken steps to ensure the accuracy of this version, but it is not the official version. 

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the SIP was due June 30, 2012. These SIPs should include 

emissions inventories, a reasonable further progress (RFP) 

demonstration, reasonably available control measures/reasonably 

available control technology (RACM/RACT) demonstration, an 

attainment demonstration, and contingency measures. To 

demonstrate attainment, control measures need to be in place by 

November 1, 2012.3 

B. The Lead Nonattainment Problem in Los Angeles County 

Stationary sources of lead are generally from large 

industrial sources, including metals processing, particularly 

primary and secondary lead smelters. Lead can also be emitted by 

iron and steel foundries; primary and secondary copper smelters; 

industrial, commercial and institutional boilers; waste 

incinerators; glass manufacturing; refineries; and cement 

manufacturing. The South Coast Air Quality Management District 

(SCAQMD or “District”) has determined that the primary causes of 

the nonattainment status of Los Angeles County are two large 

lead-acid battery recycling facilities, Exide Technologies 

located in the city of Vernon, and Quemetco, Inc. located in the 

City of Industry. These facilities receive used lead-acid 

batteries and other lead-bearing materials and recycle them, 

recovering the lead. Lead is recycled because of its value and 

to reduce toxic waste, and it is primarily used to manufacture 

 

3 See 73 FR 66964 (November 12, 2008). 
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November 26, 2013. We have taken steps to ensure the accuracy of this version, but it is not the official version. 

9

new batteries. 

Because regional ambient air lead concentrations indicate 

low ambient lead levels relative to the new lead NAAQS, and the 

only ambient levels exceeding the NAAQS were at sites near the 

lead-acid battery recyclers, SCAQMD’s lead attainment strategy 

is focused on reducing directly-emitted lead from these two 

sources. 

II. California’s State Implementation Plan Submittal to Address 

Lead Nonattainment in the Los Angeles Nonattainment Area 

A. California’s SIP Submittal 

Designation of an area as nonattainment starts the process 

for a state to develop and submit to EPA a SIP under title 1, 

part D of the CAA. This SIP must include, among other things, a 

demonstration of how the NAAQS will be attained in the 

nonattainment area as expeditiously as practicable, but no later 

than the date required by the CAA. Under CAA section 191(a), a 

State has up to 18 months after an area’s designation to 

nonattainment to submit its SIP to EPA. For the 2008 lead NAAQS, 

these nonattainment SIPs were due no later than June 30, 2012. 

The SCAQMD is the air quality agency that develops SIPs for 

the Los Angeles area. The Final 2012 Lead State Implementation 

Plan – Los Angeles County (2012 Los Angeles County Lead SIP) was 
This document is a prepublication version, signed by Jared Blumenfeld, Regional Administrator, EPA Region 9 on 

November 26, 2013. We have taken steps to ensure the accuracy of this version, but it is not the official version. 

10

adopted by the SCAQMD Governing Board on May 4, 2012.4 The 

California Air Resources Board (CARB) adopted the SIP on May 24, 

2012 and submitted it to EPA on June 20, 2012.5

B. CAA Procedural and Administrative Requirements for SIP 

Submittals 

CAA sections 110(a)(1) and (2) and 110(l) require a state 

to provide reasonable public notice and opportunity for public 

hearing prior to the adoption and submittal of a SIP or SIP 

revision. To meet this requirement, every SIP submittal should 

include evidence that adequate public notice was given and a 

public hearing was held consistent with EPA’s implementing 

regulations in 40 CFR section 51.102. 

Both the District and CARB have satisfied applicable 

statutory and regulatory requirements for reasonable public 

notice and hearing prior to adoption and submittal of the 2012 

Los Angeles County Lead SIP. The District provided a public 

comment period and held a public hearing prior to the adoption 

of the 2012 Los Angeles County Lead SIP on May 4, 2012. CARB 

provided the required public notice and opportunity for public 

comment prior to its May 24, 2012 public hearing on the plan. 

The SIP submittal includes notices of the District and 

CARB public hearings, as evidence that all hearings were 

 

4 See SCAQMD Governing Board Resolution No. 12-11. 

5

See CARB Board Resolution No. 12-20. 
This document is a prepublication version, signed by Jared Blumenfeld, Regional Administrator, EPA Region 9 on 

November 26, 2013. We have taken steps to ensure the accuracy of this version, but it is not the official version. 

11

properly noticed.6 We therefore find that the submittals meet the 

procedural requirements of CAA sections 110(a) and 110(l). 

CAA section 110(k)(1)(B) requires EPA to determine whether 

a SIP submittal is complete within 60 days of receipt. This 

section also provides that any plan that EPA has not 

affirmatively determined to be complete or incomplete will 

become complete 6 months after the date of submittal by 

operation of law. EPA’s SIP completeness criteria are found in 

40 CFR part 51, Appendix V. The 2012 Los Angeles County Lead SIP 

became complete by operation of law on December 20, 2012. 

III. CAA and Regulatory Requirements for Lead Attainment SIPs 

A. CAA and EPA Guidance 

EPA is implementing the lead NAAQS under Title 1, Part D, 

subparts 1 and 5 of the CAA, which includes section 172, 

“Nonattainment plan provisions,” and sections 191 and 192, “Plan 

Submission Deadlines” and “Attainment Dates,” respectively. 

Section 192(a) establishes the attainment date for lead 

nonattainment areas "as expeditiously as practicable" but no 

later than five years from the date of the nonattainment 

designation for the area. EPA designated most of Los Angeles 

County (except for the high desert areas and San Clemente and 

 

6 See Enclosure 3, California Air Resources Board, “Notice of Public Meeting 

to Consider Approval of the Proposed State Implementation Plan Revision for 

the Federal Lead Standard,” and Enclosure 6, Notice of Public Hearing, 

Adoption of 2012 Lead State Implementation Plan – Los Angeles Count for the 

South Coast Air Quality Management District in the 2012 Los Angeles County 

Lead SIP. 
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November 26, 2013. We have taken steps to ensure the accuracy of this version, but it is not the official version. 

12

Catalina Islands) as a nonattainment area effective December 31, 

2010, and thus the applicable attainment date is no later than 

December 31, 2015. Under section 172(a)(2)(D), the Administrator 

is precluded from granting an extension of this attainment date 

where the statute separately establishes a specific attainment 

date, such as the 5-year deadline established in section 192(a). 

Section 172(c) contains the general statutory planning 

requirements applicable to all nonattainment areas, including 

the requirements for emissions inventories, RACM/RACT, 

attainment demonstrations, RFP demonstrations, and contingency 

measures. 

When EPA issued the NAAQS for lead on November 12, 2008 

(“lead NAAQS rule”), it included some implementation guidelines 

for the lead NAAQS regarding planning requirements. See 73 FR 

66964. EPA also issued several guidance documents related to 

planning requirements for the lead NAAQS. These include: 

· Memorandum from Scott Mathias, Interim Director, Air 

Quality Policy Division, USEPA Office of Air Quality 

Planning and Standards, to Regional Air Division 

Directors, Regions I-X, “2008 Lead (Pb) National 

Ambient Air Quality Standards (NAAQS) Implementation 

Questions and Answers,” July 8, 2011, (“Lead Q&A”) and
This document is a prepublication version, signed by Jared Blumenfeld, Regional Administrator, EPA Region 9 on 

November 26, 2013. We have taken steps to ensure the accuracy of this version, but it is not the official version. 

13

· “Addendum to the 2008 Lead NAAQS Implementation 

Questions and Answers Signed on July 11, 2011, by 

Scott Mathias,” dated August 10, 2012. (“Lead Q&A 

Addendum”); and 

· Implementation of the 2008 Lead National Ambient Air 

Quality Standards – Guide to Developing Reasonably 

Available Control Measures (RACM) for Controlling Lead 

Emissions, USEPA Office of Air Quality Planning and 

Standards, EPA-457/R-12-001, March 2012 (“Lead RACM 

Guidance”).7

The lead NAAQS rule and its preamble and the two guidance 

documents address the statutory planning requirements for 

emissions inventories, RACM/RACT, attainment demonstrations 

including air quality modeling requirements, RFP demonstrations, 

and contingency measures. The lead NAAQS rule also addresses 

other matters such as monitoring, designations, lead 

infrastructure SIPs and exceptional events. 

Control measures for the 2008 lead NAAQS need to be in 

place as expeditiously as practicable. In order for control 

measures to result in three years of monitored clean data by the 

attainment date, lead nonattainment areas required to 

 

7

All three of these guidance documents can be found in the docket for today’s 

action. 
This document is a prepublication version, signed by Jared Blumenfeld, Regional Administrator, EPA Region 9 on 

November 26, 2013. We have taken steps to ensure the accuracy of this version, but it is not the official version. 

14

demonstrate attainment by December 31, 2015 would need to have 

all necessary controls in place no later than November 1, 2012.8

We will discuss each of the CAA and regulatory requirements 

for lead attainment plans in more detail below in our review of 

the 2012 Los Angeles County Lead SIP. 

B. Infrastructure SIPs for Lead 

Under section 110 of the CAA, all states (including those 

without nonattainment areas) are required to submit 

infrastructure SIPs within three years of the promulgation of a 

new or revised NAAQS. Because the lead NAAQS was signed and 

widely disseminated on October 15, 2008, the infrastructure SIPs 

were due by October 15, 2011. Section 110(a)(1) and (2) require 

states to address basic program elements, including requirements 

for emissions inventories, monitoring, and modeling, among other 

things. Subsections (A) through (M) of section 110(a)(2) set 

forth the elements that a states program must contain in the 

SIP. California’s lead infrastructure SIP was submitted on 

October 6, 2011 and will be acted on in a separate rulemaking 

action. 

IV. Review of the 2012 Los Angeles County Lead SIP 

A. Summary of EPA’s Proposed Actions 

 

8 Lead Q&A, p. 4. 
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November 26, 2013. We have taken steps to ensure the accuracy of this version, but it is not the official version. 

15

EPA is proposing to approve the 2012 Los Angeles County 

Lead SIP demonstrating attainment of the 2008 lead NAAQS in the 

Los Angeles County lead nonattainment area. We are proposing to 

approve the base year emissions inventory in this SIP revision 

as meeting the applicable requirements of the CAA and EPA 

guidance. We are also proposing to approve the attainment 

demonstration, RACM/RACT analysis, RFP demonstration, and the 

contingency measures as meeting the applicable requirements of 

the CAA and EPA guidance. 

EPA’s analysis and findings are discussed below for each 

applicable requirement. The Technical Support Document (TSD) for 

today’s proposed action contains additional details on selected 

lead planning requirements. We also discuss the SCAQMD lead 

monitoring network and present recent ambient air quality 

monitoring data in the TSD. 

B. Emissions Inventories 

1. Requirements for Emissions Inventories 

CAA section 172(c)(3) requires that states submit a 

“comprehensive, accurate, current inventory of actual emissions 

from all sources of the relevant pollutant.” Therefore, all 

sources of lead emissions in the nonattainment area must be 

included in the submitted inventory. A base year emission 

inventory is required for the attainment demonstration and for 

meeting RFP requirements. The base year emissions inventory for 
This document is a prepublication version, signed by Jared Blumenfeld, Regional Administrator, EPA Region 9 on 

November 26, 2013. We have taken steps to ensure the accuracy of this version, but it is not the official version. 

16

2010 or other suitable year should be used for attainment 

planning and RFP plans for areas initially designated 

nonattainment for the lead NAAQS in 2010.9

In addition to inventory reporting requirements in CAA 

section 172(c)(3), 40 CFR 51.117(e)(1) requires that the 

inventory contain all point sources that emit 0.5 tons of lead 

emissions per year (tpy).10 Based on annual emissions reporting 

for 2010, no point sources in the Los Angeles County lead 

nonattainment area emit over 0.5 tpy of lead. 

2. Base Year Emissions Inventory in the 2012 Los Angeles County 

Lead SIP 

The 2010 base year inventory for the Los Angeles County 

lead nonattainment area and additional documentation for the 

inventory are described in Chapter 3 of the 2012 Los Angeles 

County Lead SIP. The 2010 base year lead inventory provides the 

basis for the control measure analysis and the RFP and 

attainment demonstrations in the 2012 Los Angeles County Lead 

SIP. 

 

92008 Lead (Pb) National Ambient Air Quality Standards (NAAQS) Implementation 

Questions and Answers, Memorandum from Scott Mathias, Interim Director, Air 

Quality Policy Division, Office of Air Quality Planning and Standards, USEPA 

to Air Quality Division Directors, Regions I-X. July 8, 2011. Also see, 

Addendum to the 2008 Lead NAAQS Implementation Questions and Answers Signed 

on July 11, 2011, by Scott Mathias. August 10, 2012. 

10 Additional emissions inventory reporting requirements are also found in 

EPA’s Air Emissions Reporting Rule (AERR) (codified at 40 CFR part 51 subpart 

A) and 73 FR 76539. Although the AERR requirements are separate from the SIPrelated requirements in CAA section 172(c)(3) and 40 CFR 51.117(e)(1), the 

AERR requirements are intended to be compatible with the SIP-related 

requirements. 
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November 26, 2013. We have taken steps to ensure the accuracy of this version, but it is not the official version. 

17

Lead emissions are grouped into two general categories, 

stationary sources and mobile sources. Stationary sources can be 

further divided into “point” and “area” sources. Point sources 

are typically emitted from permitted facilities and have one or 

more identified and fixed pieces of equipment and emissions 

points. Facilities are required to report their emissions to the 

SCAQMD Annual Emissions Reporting Program. Conversely, area 

sources consist of widespread and numerous smaller emission 

sources, such as small permitted facilities, households, and 

road dust. The mobile sources category can be divided into two 

major subcategories, “on-road” and “off-road” mobile sources. 

On-road mobile sources include light-duty automobiles, light-, 

medium-, and heavy-duty trucks, and motorcycles. Off-road mobile 

sources include aircraft, locomotives, construction equipment, 

mobile equipment, and recreational vehicles. The methodologies 

used to calculate the emission inventories are described in 

Chapter 3 of the 2012 Los Angeles County Lead SIP. 

Table 1 depicts the 2010 lead emissions inventory for the 

Los Angeles County lead nonattainment area as presented in the 

2012 Los Angeles County Lead SIP. Emissions in Table 1 are 

broken down by the major source categories described above. 

Table 2 provides a further break down of the 2010 inventory into 

specific subcategories. Table 1 indicates that 4.2 tons per year 

(tpy) of lead emissions are from mobile sources. This accounts 
This document is a prepublication version, signed by Jared Blumenfeld, Regional Administrator, EPA Region 9 on 

November 26, 2013. We have taken steps to ensure the accuracy of this version, but it is not the official version. 

18

for 23 percent of the total lead inventory for Los Angeles 

County. Because lead is still used as an additive in general 

aviation fuel, aircraft powered by piston-driven engines 

comprise 4.0 tpy or 93 percent of the mobile source inventory.11

Stationary and area sources emit 14.0 tpy or 77 percent of the 

lead inventory. Two area sources, construction and demolition 

and paved road dust, account for 12.6 tpy or approximately 90 

percent of the total stationary and area source emissions. 

Table 1. Summary of Los Angeles County Nonattainment Area 2010 

Emissions Inventory for Lead

Source Category Lead Emissionsa (tpy)

2010

Stationary and Area 14.0

On-road Mobile 0.2

Off-road Mobile 4.0

Total 18.2

a Source: Table 3-1, 2012 Los Angeles County Lead SIP 

As indicated in Chapter 3, page 3-3 of the 2012 Los Angeles 

County Lead SIP, Los Angeles County’s lead nonattainment status 

is linked to two large lead-acid battery-recycling facilities -- 

Exide Technologies in Vernon (“Exide”) and Quemetco Inc. in City 

of Industry (“Quemetco”). These two sources fall within the 

 

11 For a complete list of airports located in the Los Angeles County lead 

nonattainment area and their lead emissions, see table 3-3 on page 3-11 of 

the South Coast Lead 2012 SIP or the Technical Support Document for this 

action. For more information on EPA efforts to monitor lead emissions at 

airports, see EPA Program Update “Airport Lead Monitoring,” EPA-420-F-13-032, 

June 2013 found at 

http://www.epa.gov/otaq/regs/nonroad/aviation/420f13032.pdf. 
This document is a prepublication version, signed by Jared Blumenfeld, Regional Administrator, EPA Region 9 on 

November 26, 2013. We have taken steps to ensure the accuracy of this version, but it is not the official version. 

19

Metal Processes subcategory shown in Table 2.12 Even though the 

Metal Processes category accounts for a small percentage of 

total emissions in the nonattainment area, based on the 

historical lead measurements in Los Angeles County, the 

vicinities near the Exide and Quemetco facilities are areas 

where exceedances of the lead NAAQS have occurred in the past 

and could potentially reoccur. 

Table 2. Category-specific Los Angeles County Nonattainment Area 

2010 Emissions Inventory for Lead 

Source Category 2010 Lead Emissions a

(tpy) 

Stationary and Area Sources 

 Fuel Combustion

Electric Utilities 0.02

Cogeneration 0.01

Petroleum Refining (Combustion) 0.05

Manufacturing and Industrial 0.08

Service and Commercial 0.04

 Waste Disposal

Incinerators 0.01

 Petroleum Production & Marketing

Petroleum Refining 0.03

 Industrial Processes

Mineral Processes 0.06

 

12 Lead concentrations at all ambient monitoring network sites in the Los 

Angeles County portion of the Basin are well below the new 2008 standard for 

lead, with typical levels of about 0.01 μg/m3. The Los Angeles County lead 

nonattainment area’s nonattainment status has not been linked to any 

stationary sources other than Exide and Quemetco; however, for additional 

information on point sources that emit greater than one pound of lead per 

year and are located in the nonattainment area, see Table 3-2 on page 3-9 of 

the 2012 Los Angeles County Lead SIP. 
This document is a prepublication version, signed by Jared Blumenfeld, Regional Administrator, EPA Region 9 on 

November 26, 2013. We have taken steps to ensure the accuracy of this version, but it is not the official version. 

20

Metal Processes 0.42

Glass and Related Products 0.02

 Miscellaneous Processes 

Residential Fuel Combustion 0.02

Construction and Demolition 5.80

Paved Road Dust 6.83

Unpaved Road Dust 0.47

Fugitive Windblown Dust 0.06

Fires 0.01

Waste Burning and Disposal 0.03

Total Stationary and Area Sources 13.96

Mobile Sources 

 On-Road Vehicles

Light-Duty Passenger 0.09

Light & Medium Duty Trucks 0.06

Heavy-Duty Gas Trucks 0.0 

Heavy-Duty Diesel Trucks 0.07

Total On-Road Vehicles 0.22

 Off-road Mobile

Aircraft 3.95

Trains 0.01

Ships & Commercial Boats 0.0

Off-Road Equipment 0.06

Total Off-Road Mobile 4.02

Total All Sources 18.20

a Source: 2012 Los Angeles County Lead SIP, Table 3-1. 

3. Proposed Action on the Emission Inventory 

We have reviewed the emissions inventories in the 2012 Los 

Angeles County Lead SIP and the inventory methodologies used by 

the District and CARB for consistency with CAA requirements, the 
This document is a prepublication version, signed by Jared Blumenfeld, Regional Administrator, EPA Region 9 on 

November 26, 2013. We have taken steps to ensure the accuracy of this version, but it is not the official version. 

21

lead NAAQS rule, and EPA’s guidance. We find that the 2010 base 

year inventory is a comprehensive, accurate, and current 

inventory of actual or projected emissions of lead in the Los 

Angeles County lead nonattainment area as of the date of the 

submittal. We therefore propose to approve the 2010 base year 

inventory as meeting the requirements of CAA section 172(c)(3) 

and applicable EPA guidance. 

C. RACM/RACT and Adopted Control Strategy 

1. Requirements for RACM/RACT

CAA section 172(c)(1) requires that each attainment plan 

“provide for the implementation of all reasonably available 

control measures as expeditiously as practicable (including such 

reductions in emissions from existing sources in the area as may 

be obtained through the adoption, at a minimum, of reasonably 

available control technology), and shall provide for attainment 

of the national primary ambient air quality standards.” EPA 

defines RACM as measures that a state finds are both reasonably 

available and contribute to attainment as expeditiously as 

practicable in its nonattainment area. Lead nonattainment plans 

must contain RACM (including RACT) that address sources of 

ambient lead concentrations. The EPA’s historic definition of 

RACT is the lowest emissions limitation that a particular source 

is capable of meeting by the application of control technology 

that is reasonably available considering technological and 
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November 26, 2013. We have taken steps to ensure the accuracy of this version, but it is not the official version. 

22

economic feasibility.13 EPA recommends that, at a minimum, all 

stationary sources emitting 0.5 tpy or more should undergo a 

RACT review. See 73 FR 67038. Based on annual emissions 

reporting for 2010, no point sources in the Los Angeles County 

lead nonattainment area emit over 0.5 tpy of lead.14

2. RACM/RACT Demonstration in the 2012 Los Angeles County Lead 

SIP 

CARB and the District have rulemaking processes for 

development, adoption and implementation of RACM/RACT that have 

been in place for decades. 

Because of lead’s dispersion characteristics (e.g., lack of 

transport over a large geographic area), the highest ambient 

concentrations of lead are expected to be near lead sources 

(e.g., Exide and Quemetco). The 2008 lead NAAQS is unique in 

that attainment must be demonstrated at source-oriented monitors 

as well as ambient monitors, and this RACM/RACT demonstration 

addresses specific facilities that may cause a NAAQS exceedance. 

The RACM/RACT demonstration for the 2012 Los Angeles County Lead 

SIP does not involve or require a typical RACM evaluation as is 

done for other criteria pollutants (e.g., ozone or fine 

particulate matter) which involves looking at a broader set of 

source categories. 

 

13 See for example, 44 FR 53761 (September 17, 1979) and footnote 3 of that 

notice. 

14 Exide is the largest stationary source emitter of lead in Los Angeles 

County with 2010 emissions of 655.5 pounds or approximately 0.3 tpy. 
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November 26, 2013. We have taken steps to ensure the accuracy of this version, but it is not the official version. 

23

Based on lead monitoring data, SCAQMD identified two large 

lead-acid battery recycling facilities (i.e., Exide and 

Quemetco) as the only sources of lead in the Los Angeles County 

lead nonattainment area that have caused or have the potential 

to cause exceedances of the 2008 lead NAAQS.15 The overall 

control strategy in the 2012 Los Angeles County Lead SIP relies 

primarily on implementation of Rule 1420.1 – Emissions Standard 

for Lead from Large Lead-Acid Battery Recycling Facilities, 

adopted by SCAQMD in November 2010. Thus EPA’s evaluation of 

RACM/RACT is based on an evaluation of Rule 1420.1. SCAQMD’s 

RACM/RACT evaluation is found in Section 6, pages 17-21 of the 

2012 Los Angeles County Lead SIP. A discussion of Rule 1420.1 is 

provided below. 

Control measure 

On January 25, 2013, EPA approved SCAQMD Rule 1420.1 into 

the California SIP. See 78 FR 5305. Rule 1420.1 establishes 

facility-wide and individual point source maximum allowable 

emission rates and requires secondary lead control devices on 

dryers. Fugitive lead emissions are addressed through 

housekeeping and maintenance activity requirements, and total 

enclosures, vented to control devices, for all areas where lead 

 

15 As previously stated, EPA recommends that, at a minimum, all stationary 

sources emitting 0.5 tpy (1000 pounds) or more should undergo a RACT review 

(See 73 FR 66964, at 67038). Based on annual emissions reporting for 2010, no 

point sources in the Los Angeles Lead nonattainment area emit over 0.5 tpy of 

lead. 
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November 26, 2013. We have taken steps to ensure the accuracy of this version, but it is not the official version. 

24

is being processed and where maintenance activities are 

occurring. The rule also sets ambient standards for airborne 

lead concentrations at monitors around the facility and requires 

facility-operated monitors (a minimum of four) that collect 

samples on a once every-three-days schedule. Source testing, 

recordkeeping, and reporting requirements are included to ensure 

continuous compliance. The rule also requires the submittal of a 

new compliance plan and emission reduction feasibility study 

when a source’s monitoring indicates ambient levels have reached 

0.12 μg/m3, which is 80% of the rule limit. 

EPA describes RACM/RACT nationally for secondary lead 

smelters in guidance published in March 2012.16 Rule 1420.1 

includes extensive and comprehensive provisions for the control 

of lead point source and fugitive emissions and contains all the 

necessary RACM/RACT elements described in the EPA guidance. A 

summary of these minimum elements and how they are addressed in 

Rule 1420.1 is provided in EPA’s TSD for this action and in the 

TSD for EPA’s approval of Rule 1420.1.17 

EPA also published the final residual risk and technology 

review revisions to the National Emission Standard for Hazardous 

Air Pollutants from Secondary Lead Smelting on January 5, 2012 

 

16 Implementation of the 2008 Lead National Ambient Air Quality Standards, 

Guide to Developing Reasonably Available Control Measures (RACM) for 

Controlling Lead Emissions, EPA-457/R-12-001. March 2012. 

17 TSD for EPA’s Proposed Rulemaking for the California SIP, SCAQMD Rule 

1420.1, Emissions Standard for Lead from Large Lead-acid Battery Recycling 

Facilities. June 2012. The TSD is included in the docket for today’s action. 
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November 26, 2013. We have taken steps to ensure the accuracy of this version, but it is not the official version. 

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(NESHAP from Secondary Lead Smelting). 77 FR 556. The revised 

NESHAP requirements represent maximum achievable control 

technology (MACT) under CAA section 112. MACT requirements apply 

nationwide, regardless of whether an area attains the lead 

NAAQS. EPA considered the MACT requirements as part of our 

evaluation of RACM/RACT. A summary of the MACT requirements and 

how they are addressed by Rule 1420.1 is also in the TSD for 

EPA’s approval of Rule 1420.1, which can be found in the docket 

for today’s proposed action. 

In its January 25, 2013 approval of Rule 1420.1, EPA 

determined that, based on comparison of Rule 1420.1 to the 

national RACM guidance and MACT, and additional analysis 

provided in SCAQMD’s staff report,18 Rule 1420.1 adequately 

fulfills CAA RACM/RACT requirements. 

The following provides a detailed description of Rule 

1420.1 requirements. 

ß Ambient Air Lead Concentrations: Facilities are not allowed 

to discharge into the atmosphere emissions which contribute to 

ambient air concentrations of lead that exceed 0.15 μg/m3

averaged over any 30 consecutive days. The averaging time is 

shorter than that of the lead NAAQS (rolling 3-month average of 

monthly averages) with a more frequent sampling requirement of 

 

18 Staff Report, Proposed Rule 1420.1 – Emissions Standard for Lead from Large 

Lead-Acid Battery Recycling Facilities, November, 2010. 
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November 26, 2013. We have taken steps to ensure the accuracy of this version, but it is not the official version. 

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one sample in three days versus the NAAQS which requires one 

sample in six days. Ambient air samples are collected close to 

the facility’s fenceline. Thus, potential rule violations in the 

form of exceedances of the ambient limits in Rule 1420.1 will 

likely occur before exceedances of the federal NAAQS and allow 

for corrective action to take place to avoid such federal NAAQS 

exceedances. 

ß Ambient Air Monitoring and Sampling Requirements: Each 

facility is required to collect and analyze ambient air lead 

samples to determine compliance with the ambient air quality 

lead concentration standard of Rule 1420.1. The rule requires a 

minimum of four monitors at facility locations approved by the 

District. Federal regulations require only one source-oriented 

monitor at all facilities emitting more than 0.5 tons of lead 

per year. Facilities are required to collect samples at least 

once every three days, more frequently than the federal 

requirement of once every six days. 

Facilities that exceed an ambient air lead concentration of 

0.15 μg/m3 averaged over any 30 consecutive days, measured at any 

fence line monitor, will be in violation of the rule and be 

required to increase ambient air monitoring and sampling to a 

daily frequency. Daily monitoring and sampling will be required 

to be conducted for a period of at least 60 consecutive days at 

each sampling site that measured an exceedance until no 30-day 
This document is a prepublication version, signed by Jared Blumenfeld, Regional Administrator, EPA Region 9 on 

November 26, 2013. We have taken steps to ensure the accuracy of this version, but it is not the official version. 

27

average exceedances are recorded. Sampling sites at the property 

line may be located just inside the fence line on facility 

property if logistical constraints preclude placement outside 

the fence line. As a result, monitors required under Rule 1420.1 

will be located closer to fugitive lead sources, in most cases, 

when compared to monitors required by federal monitoring 

requirements, which must be in publicly accessible areas. Along 

with the shorter averaging time described previously, all of the 

ambient air monitoring and sampling requirements of Rule 1420.1 

are more stringent than the federal requirements, such that 

potential rule violations will likely occur before exceedances 

of the lead NAAQS. 

ß Total Enclosures: All areas used in the lead-acid battery 

recycling operation for processing or storage of lead-containing 

material, and all areas where maintenance is being performed, 

are required to install total enclosures vented to a lead 

control device. This requirement provides maximum containment 

and will minimize fugitive lead-dust emissions generated in 

areas where processing, handling and storage of lead-containing 

materials occur. Rule 1420.1 also establishes requirements for 

monitoring and maintaining negative pressure and in-draft 

velocity at the openings of these enclosed areas. 

ß Lead Point Source Emission Controls: All lead emissions 

from lead point sources are required to be vented to an 
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November 26, 2013. We have taken steps to ensure the accuracy of this version, but it is not the official version. 

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emissions collection system that transports the entire gas 

stream to a lead control device. The total facility mass lead 

emission rate for all lead point sources shall not exceed 0.045 

pounds of lead per hour (lbs/hr), with a maximum emission rate 

for any single lead point source not to exceed 0.010 lbs/hr. The 

maximum emission rates of 0.045 and 0.010 lb/hr were established 

to adequately provide a protective limit for exposure to lead 

emissions and achieve the ambient federal standard of 0.15 μg/m3. 

ß Housekeeping Requirements: The housekeeping requirements in 

Rule 1420.1 include: prescribed requirements for cleaning 

frequencies of specific areas; maintenance activity; 

encapsulation of all facility grounds; removal of weather caps 

on any lead emissions source stacks; building structural 

integrity inspections; storage and transport of lead-containing 

materials; onsite mobile vacuum sweeping; and surface 

impoundment pond or reservoir cleanings. 

ß Annual Source Testing: Annual source tests are required for 

all lead control devices to demonstrate compliance with the 

facility total lead mass emission rate standard of 0.045 lb/hr, 

and the maximum individual stack lead emission rate standard of 

0.010 lb/hr. If the most recent source test for a lead point 

source demonstrates emissions of 0.0025 lb/hr or less, the 

facility may alternatively elect to conduct the next source test 

for that device within 24 months. 
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ß Recordkeeping and Reporting Requirements: Requires 

recordkeeping and reporting, including public notifications, for 

specific maintenance activity, turnarounds and shutdowns for all 

lead-containing materials processed at the facility. Records for 

all housekeeping, maintenance activity, ambient air lead 

monitoring, lead control device inspection and maintenance, and 

unplanned shutdowns of any smelting furnaces must be maintained. 

Facilities are required to submit reports for monthly ambient 

air monitoring results for lead and wind data measured at each 

sampling location on a monthly basis. The rule also requires 

notifications of planned and unplanned shutdowns, and 

turnarounds. 

ß Compliance Plan: As an additional safeguard against the 

facilities exceeding the lead NAAQS or Rule 1420.1 limits, the 

requirement to prepare and submit a compliance plan is triggered 

if the facility exceeds 0.12 μg/m3 as measured on a 30-day 

rolling average. The compliance plan must be implemented if the 

facility’s lead emissions contribute to an exceedance of the 

Rule 1420.1 ambient lead standard of 0.15 μg/m3 as measured on a 

30-day rolling average. The compliance plan provision is 

intended to ensure that measures can be identified prior to 

exceedances of the 0.15 μg/m3 NAAQS (which is measured on a 90-

day rolling average) and are ready for fast implementation if 

the 0.15 μg/m3 standard NAAQS is exceeded. 
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ß On January 27, 2012, SCAQMD approved a Compliance Plan for Exide. 

The approved Compliance Plan requires Exide to implement various 

measures and install various controls to reduce lead emissions. 

Condition 8 of the Compliance Plan states that if, after March 31, 

2012, monitored ambient lead concentrations exceed 0.15 μg/m3, Exide 

must submit to SCAQMD for approval, within 15 days of any such 

occurrence, the mitigation measures it will implement. Such 

mitigation measures include installation of second stage high 

efficient particulate air (HEPA) filters at specified locations. 

ß We discuss below how Rule 1420.1’s compliance plan 

provisions meet EPA criteria for contingency measures. 

Expeditious Implementation of RACM/RACT. We find that 

expeditious implementation of RACM/RACT at affected sources 

within the nonattainment area is an appropriate approach to 

assure attainment of the lead NAAQS in an expeditious manner.19

Rule 1420.1 establishes various deadlines for affected sources. 

Specifically, Rule 1420.1 requires affected sources to: (1) 

submit a complete permit application for all construction and 

necessary equipment within 30 days of November 5, 2010; (2) 

complete all construction within 180 days of receiving permit to 

construct approvals from the District, or by July 1, 2011, 

whichever was earlier; and (3) install, maintain, and operate 

total enclosures and lead point source emission control devices) 

by July 1, 2011. In addition, Rule 1420.1 requires expeditious 

 

19 See Lead NAAQS Rule, 73 FR 66964 (November 12, 2008) at 67038-67039. 
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November 26, 2013. We have taken steps to ensure the accuracy of this version, but it is not the official version. 

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installation of additional controls in the event monitored 

ambient lead concentrations exceed 0.15 μg/m3 on a rolling 30 day 

average. EPA believes the measures and schedule in Rule 1420.1 

are both reasonably available and provide for attainment as 

expeditiously as practicable in the Los Angeles County lead 

nonattainment area. 

Adopted Control Strategies

As described above, the primary control strategy in the 

2012 Los Angeles County Lead SIP relies on emission reductions 

achieved through the implementation of SCAQMD Rule 1420.1 – 

Emissions Standard for Lead from Large Lead-Acid Battery 

Recycling Facilities. Full implementation of Rule 1420.1 began 

on January 1, 2012, and EPA approved the rule into the SIP on 

January 25, 2013. See 78 FR 5305. 

3. Proposed Actions on RACM/RACT and Adopted Control Strategy 

We propose to find that there are, at this time, no 

additional RACM that individually or collectively would advance 

attainment of the lead NAAQS by one year or more in the Los 

Angeles County lead nonattainment area. We also propose to find 

that the RACM/RACT measure is both reasonably available and 

provides for attainment as expeditiously as practicable in the 

Los Angeles County lead nonattainment area. This proposal is 

based on our review of the 2012 Los Angeles County Lead SIP, the 

sources contributing to nonattainment of the lead NAAQS, the 
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November 26, 2013. We have taken steps to ensure the accuracy of this version, but it is not the official version. 

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District's adopted control strategy and EPA guidance. Therefore, 

we propose to find that the 2012 Los Angeles County Lead SIP 

provides for the implementation of RACM/RACT as required by CAA 

section 172(c)(1). 

D. Attainment Demonstration 

1. Requirements for Attainment Demonstrations 

CAA section 172 requires a state to submit a plan for each 

of its nonattainment areas that demonstrates attainment of the 

applicable ambient air quality standard as expeditiously as 

practicable but no later than the specified attainment date. 

This demonstration should consist of four parts: 

(1) technical analyses that locate, identify, and quantify 

sources of emissions that are contributing to violations of the 

lead NAAQS; 

(2) analyses of future year emissions reductions and air 

quality improvement resulting from already-adopted national, 

state, and local programs and from potential new state and local 

measures to meet the RACT, RACM, and RFP requirements in the 

area; 

(3) adopted emissions reduction measures with schedules for 

implementation; and 

(4) contingency measures required under section 172(c)(9) 

of the CAA. 

The requirements for the first two parts are described in 
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November 26, 2013. We have taken steps to ensure the accuracy of this version, but it is not the official version. 

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the sections on emissions inventories and RACM/RACT above and in 

the sections on air quality modeling and the attainment 

demonstration that follows immediately below. Requirements for 

the third and fourth parts are described in the sections on the 

control strategy and the contingency measures, respectively.

2. Air Quality Modeling in the 2012 Los Angeles County Lead SIP 

The lead attainment demonstration must include air quality 

dispersion modeling developed in accordance with EPA’s Modeling 

Guidance.20 The SCAQMD modeling analysis was prepared using EPA’s 

preferred dispersion modeling system, the American 

Meteorological Society/Environmental Protection Agency 

Regulatory Model (AERMOD) consisting of the AERMOD (version 

12060) model and two data input preprocessors AERMET (version 

11059) and AERMAP (version 11103). AERSURFACE (version 08009) 

was also used to develop inputs to AERMET. The Building Profile 

Input Program for Plume Rise Model Enhancements was also used in 

the downwash-modeling and incorporated good engineering 

practice. More detailed information on the AERMOD modeling 

system and other modeling tools and documents can be found on 

the EPA Technology Transfer Network Support Center for 

Regulatory Atmospheric Modeling (SCRAM)21 and in the 2012 Los 

 

20 40 CFR Part 51 Appendix W (EPA’s Guideline on Air Quality Models) (November 

2005) located at http://www.epa.gov/ttn/scram/guidance/guide/appw_05.pdf

21 http://www.epa.gov/ttn/scram/
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34

Angeles County Lead SIP in the docket for today’s proposed 

action. 

a. Modeling Approach 

The following is an overview of the lead modeling approach 

used in 2012 Los Angeles County Lead SIP. This approach was 

developed by the SCAQMD and revised based on comments received 

from the EPA. 

Model inputs were developed using the AERMOD modeling 

system. AERMET was used to develop the necessary 5-year 

meteorological data set for each facility using the 

meteorological data from the most representative monitoring 

station. For the Exide facility modeling application, the SCAQMD 

Central LA monitoring station was determined to be the most 

representative meteorological site. SCAQMD’s rationale for the 

use of these data is described in the TSD for today’s action. 

Only four years of meteorological data were available for this 

station (2006 to 2009). The La Habra monitoring station was 

determined to be the most representative site for the Quemetco 

facility, and five years (2005 to 2009) of meteorological data 

were available. The National Weather Service San Diego Miramar 

Naval Air Station were determined to be the most representative 

upper air meteorological monitoring site for Exide and Quemetco. 

A Cartesian receptor grid with 50-meter by 50-meter spacing 

was used at each facility, in addition to fence-line receptors 
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November 26, 2013. We have taken steps to ensure the accuracy of this version, but it is not the official version. 

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placed at 25-meter intervals. Receptor elevations and hill 

heights were assigned using AERMAP and terrain data, available 

from the United States Geological Survey. AERMOD output was 

processed through EPA’s LEADPOST post processor (version 12114) 

deriving the maximum 3-month average rolling design value across 

the 5-year meteorological data period for Quemetco, and the 4-

year period for Exide. 

b. Modeling Results 

Rule 1420.1 requirements were modeled to provide the 

assurance that emissions will not cause a NAAQS violation in 

2015. The modeling results for total emissions (stack and 

fugitive emissions) are provided in the SIP for each facility, 

and are discussed below. The lead NAAQS compliance results of 

the attainment modeling are summarized below in Table 3, 2008 

Lead NAAQS Attainment Demonstration Modeling Results for Exide 

and Quemetco Lead-Acid Battery Acid Recycling Facilities. 

Stack Emissions 

The Rule 1420.1 emission stack limits for 2015 were modeled 

for Exide and Quemetco. For each facility, the 0.045 lb/hr total 

stack emissions were evenly distributed throughout the stacks, 

and emissions from any individual stack were kept below the 

0.010 lb/hr per stack limit. The modeled maximum 3-month rolling 

average lead concentration from stack emissions alone for Exide 

is 0.115 μg/m3. For Quemetco, the modeled maximum 3-month rolling 
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November 26, 2013. We have taken steps to ensure the accuracy of this version, but it is not the official version. 

36

average lead concentration from stack emissions is 0.083 μg/m3. 

The 2015 modeled lead concentrations for the Quemetco facility 

are a conservative estimate of the impact because the modeling 

assumes the allowable stack emission limits set by Rule 1420.1, 

which are significantly higher than Quemetco’s current stack 

emissions. No significant increases in actual emissions are 

expected beyond the modest growth factors used in the emission 

projection. 

Fugitive Emissions

According to Chapter 6 of the 2012 Los Angeles County Lead 

SIP, Exide identified fugitive lead emissions as resulting from 

its raw materials processing system (RMPS) and from roadways. 

Quemetco did not identify fugitive lead emission to SCAQMD, so 

SCAQMD assumed fugitive emissions from Quemetco’s battery 

wrecking area (which SCAQMD assumed to be approximately 

equivalent to Exide’s RMPS) and from roadways. For 2015, for 

both Exide and Quemetco, SCAQMD relied on Rule 1420.1 emission 

standards (in particular, a requirement to use an onsite mobile 

vacuum sweeper or equivalent), and applied an 80% reduction to 

the roadway fugitive emissions (based on an assumed efficiency 

of 80% or greater for certified street sweepers). SCAQMD assumed 

that fugitive emissions for Exide’s RMPS and Quemetco’s battery 

wrecker area would not change between the current year and 2015 
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November 26, 2013. We have taken steps to ensure the accuracy of this version, but it is not the official version. 

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and therefore applied the same emissions values to the current 

year and year 2015 for these areas. 

The modeling takes a number of relevant factors into 

consideration, including emissions, receptor proximity, and wind 

direction. The modeled maximum 3-month rolling average lead 

concentration from all emissions (stack and fugitive emissions 

combined) is 0.135 μg/m3 for the Exide facility, and 0.140 μg/m3 

for Quemetco. 

NAAQS Attainment Demonstration Modeling Results

The AERMOD modeling results are presented in Table 3 below. 

A background ambient air quality concentration of 0.01 μg/m3, 

based on air quality monitoring data from the South Coast AQMD 

network,22 is included in the modeling results. The maximum 

modeled 3-month rolling average, including background data, for 

each of the facilities is less than or equal to the 2008 Lead 

NAAQS of 0.15 μg/m3. Based on these modeled attainment 

demonstration results, the SCAQMD concludes that the proposed 

controls should be sufficient to attain the 2008 lead NAAQS. A 

more detailed discussion of the modeling is included in the TSD 

for today’s action and in Chapter 5 of the 2012 Los Angeles 

County Lead SIP. 

 

22 SCAQMD’s monitoring network lead design values for 2012, based on data from 

2010, 2011 and 2012. 
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November 26, 2013. We have taken steps to ensure the accuracy of this version, but it is not the official version. 

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Table 3. 2008 Lead NAAQS Attainment Demonstration Modeling 

Results for Exide and Quemetco Lead-Acid Battery Acid Recycling 

Facilities23

Facility Lead Concentration ( 

Maximum 3-month Rolling 

Average)24, Stack and 

Fugitive Emission 

Exide 0.135 μg/m3

Quemetco 0.140 μg/m3

4. Proposed Action on Attainment Demonstration 

EPA has reviewed the modeling that SCAQMD submitted to 

support the attainment demonstration for 2012 Los Angeles County 

Lead SIP and has preliminarily determined that this modeling is 

consistent with CAA requirements, Appendix W, and EPA guidance 

for lead attainment demonstration modeling. We therefore propose 

to approve the modeling and attainment demonstration in the 2012 

Los Angeles County Lead SIP. 

E. RFP Demonstration 

1. Requirements for RFP 

CAA section 172(c)(2) requires that attainment plans shall 

provide for RFP. RFP is defined in section 171(1) as “such 

annual incremental reductions in emissions of the relevant air 

pollutant as are required by this part or may reasonably be 

 

23 Final results listed in Table 3 are rounded according to 40 CFR part 50, 

Appendix R; specifically subsection 4(a) which addresses comparison with the 

Lead NAAQS, as well as 5(a), (b), and (c) which addresses rounding 

conventions. 

24 The maximum modeled 3-month rolling average across all years of 

meteorological data (Exide 2006–2009, and Quemetco 2005-2009). 
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required by the Administrator for the purpose of ensuring 

attainment of the applicable national ambient air quality 

standard by the applicable date.” While for some pollutants, 

historically, RFP has been met through generally linear 

incremental progress toward attainment by the applicable 

attainment date, EPA believes that RFP for lead nonattainment 

areas should be met by “adherence to an ambitious compliance 

schedule” which is expected to periodically yield significant 

emission reductions, and as appropriate, linear progress.25 

EPA recommends that SIPs for lead nonattainment areas 

provide a detailed schedule for compliance of RACM (including 

RACT) in the affected areas and accurately indicate the 

corresponding annual emission reductions to be achieved.26 EPA 

expects that a detailed schedule would provide for periodic 

yields in significant emissions reductions.27 In reviewing the 

SIP, EPA believes that it is appropriate to expect early 

implementation of less technology-intensive control measures 

(e.g., controlling fugitive dust emissions at the stationary 

source, as well as required controls on area sources) while 

phasing in the more technology-intensive control measures, such 

as those involving the purchase and installation of new 

hardware. We believe the expeditious implementation of RACM/RACT 

 

25 73 FR 66964, at p. 67038. 

26 Lead Q&A, p. 2. 

27 Ibid.
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at affected sources within the nonattainment area is an 

appropriate approach to assure attainment of the lead NAAQS in 

an expeditious manner.28

2. RFP Demonstration in the 2012 Los Angeles County Lead SIP 

The RFP demonstration is contained in Chapter 6 of the 2012 

Los Angeles County Lead SIP. The demonstration uses the 2010 

actual emissions inventory as the base year inventory and 2012-

2015 projected emissions based on Rule 1420.1 allowable 

emissions limits. Below we summarize the RFP demonstration in 

the 2012 Los Angeles County Lead SIP for both the Exide and 

Quemetco facilities.29 

To demonstrate the emissions reductions associated with 

adherence to an ambitious compliance schedule and expeditious 

implementation of control measures, SCAQMD has addressed this 

requirement through the schedules in Rule 1420.1. Rule 1420.1 

contains compliance deadlines of July 1, 2011 for implementation 

of all requisite control measures and emissions limits, and 

January 1, 2012 for the ambient monitoring limit of 0.15 μg/m3. 

The emissions reductions associated with Rule 1420.1 are 

presented in Table 4 below. By the time the 2012 Los Angeles 

County Lead SIP was submitted to EPA in June of 2012, most 

compliance deadlines in South Coast Rule 1420.1 were already in 

 

28 See 73 FR 66964 (November 12, 2008) at 67038-67039. 

29 See 2012 Los Angeles County Lead SIP, pages 6-14 to 6-17. 
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November 26, 2013. We have taken steps to ensure the accuracy of this version, but it is not the official version. 

41

effect. 

Table 4. 2012 Los Angeles County Lead SIP RFP Demonstration 

(emissions in lb/yr) 

Facility 

2010 

Emissions 

(actual 

emissions) 

2012 Emissions (after 

implementation of 

South Coast Rule 

1420.1) 

2015 

Emissions 

Exide 655.5 437.4a <437.4 

Quemetco 96.2 98.1a,b 107.7a,b

a Total emissions based on requirements in South Coast Rule 

1420.1. 

b 2010 emissions were grown based on the growth factor in the 

South Coast 2007 Air Quality Management Plan. 

 

RFP for Exide is demonstrated through the achievement of a 

30 percent emissions reduction (i.e., 655.5 tpy – 437.4 tpy = 

218.1 lbs/yr) resulting from implementation of South Coast Rule 

1420.1. Quemetco’s actual emissions in 2010 were 96.21 lbs/year, 

well below the 422.3 lbs/yr allowed based on requirements in 

Rule 1420.1.30 With continued implementation of Quemetco’s 

control measures, emissions are expected to stay well below 

422.3 lbs/yr, as indicated in Table 4. 

Rule 1420.1 was determined to meet RACM (see 78 FR 5305, 

 

30 Between 2006 and 2008, Quemetco significantly reduced actual emissions at 

their facility. In response to requirements under California Assembly Bill 

2588 (The Air Toxics "Hot Spots" Information and Assessment Act), Quemetco 

submitted a Health Risk Assessment (HRA) to SCAQMD in December 2005. To 

reduce toxic emissions of metals (including lead) and particles identified in 

the HRA, Quemetco installed a wet electrostatic precipitator (WESP) that 

became fully operational and approved by SCAQMD in October 2008. The WESP, 

combined with other facility changes, significantly reduced lead emissions 

compared to prior years (e.g., 643 lbs reported by Quemetco for 2006). 
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November 26, 2013. We have taken steps to ensure the accuracy of this version, but it is not the official version. 

42

January 25, 2013 and that determination is affirmed in today’s 

action), and the emissions reductions resulting from 

implementation of Rule 1420.1 serve to meet the RFP requirements 

of the lead NAAQS. 

3. Proposed Action on the RFP Demonstration 

We propose to find that the State has demonstrated that the 

2012 Los Angeles County Lead SIP meets the requirements of 

section 172(c)(2) and relevant EPA guidance for meeting RFP. 

F. Contingency Measures 

1. Requirements for Contingency Measures 

Under CAA section 172(c)(9), all lead attainment plans must 

include contingency measures to be implemented if an area fails 

to meet RFP (“RFP contingency measures”) and contingency 

measures to be implemented if an area fails to attain the lead 

NAAQS by the applicable attainment date (“attainment contingency 

measures”). These contingency measures must be fully adopted 

rules or control measures that are ready to be implemented 

quickly without significant additional action by the State or 

EPA if the area fails to meet RFP requirements or fails to meet 

its attainment date. They must also be measures not relied on to 

demonstrate RFP or attainment in the plan and should provide 

SIP-creditable emissions reductions generally equivalent to 

about one year’s worth of RFP. Finally, the SIP should contain a 
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November 26, 2013. We have taken steps to ensure the accuracy of this version, but it is not the official version. 

43

trigger mechanism for the contingency measures and specify a 

schedule for their implementation. See CAA section 172(c)(9). 

Contingency measures can include federal measures and local 

measures already scheduled for implementation that provide 

emissions reductions in excess of those needed to provide for 

RFP or expeditious attainment. EPA has approved numerous SIPs 

under this interpretation. See, e.g., 62 FR 15844, April 3, 

1997; 62 FR 66279, December 18, 1997; 66 FR 30811, June 8, 2001; 

66 FR 586 and 66 FR 634, January 3, 2001. EPA recognizes that 

certain actions, such as the notification of sources, 

modification of permits, etc., may be needed before a measure 

could be implemented. However, states must show that their 

contingency measures can be implemented with only minimal 

further action on their part and with no additional rulemaking 

actions such as public hearings or legislative review. 

After EPA determines that a lead nonattainment area has 

failed to maintain RFP or timely attain the lead NAAQS, EPA 

generally expects all actions needed to affect full 

implementation of the contingency measures to occur within 60 

days after EPA notifies the state of such failure.31 The state 

should ensure that the measures are fully implemented as 

expeditiously as practicable after the requirement takes effect. 

 

31 73 FR 66964, at p. 67039. 
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November 26, 2013. We have taken steps to ensure the accuracy of this version, but it is not the official version. 

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If a State chooses to implement contingency measures 

earlier than would be triggered by a failure to demonstrate RFP 

or to attain, EPA does not believe the State needs to adopt 

additional contingency measures as a backfill for the early 

activation of those contingency measures.32 However, if the area 

fails to demonstrate RFP or to attain, then the State will need 

to adopt additional contingency measures.33

2. Contingency Measures in the 2012 Los Angeles County Lead SIP 

The attainment plan for the Los Angeles County lead 

nonattainment area includes contingency measures to be 

implemented if the area fails to meet RFP requirements or to 

attain by its attainment date. The contingency measures for the 

Los Angeles County lead nonattainment area can be found in 

Chapter 6 of the 2012 Los Angeles County Lead SIP.34 They are 

described below. 

SCAQMD included facility-specific contingency measures for 

Exide and Quemetco in the 2012 Los Angeles County Lead SIP.35

This is appropriate, given that these sources have historically 

been the major cause of NAAQS violations in the Los Angeles 

County lead nonattainment area. 

 

32 See Memorandum, G.T. Helms, EPA Office of Air Quality Planning and 

Standards, USEPA, to Air Branch Chiefs, EPA Regions I-X, “Early 

Implementation of Contingency Measures for Ozone and Carbon Monoxide (CO) 

Nonattainment Areas,” dated August 13, 1993. 

http://www.epa.gov/ttn/oarpg/t1/memoranda/19930813_helms_contingency_measures

_early_implementation.pdf and EPA’s Lead Q&A. 

33 Ibid. 

34 See 2012 Los Angeles County Lead SIP, pp. 6-3 to 6-14. 

35 See 2012 Los Angeles County Lead SIP, Chapter 6, pages 6-10 through 6-13. 
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45

Exide 

For the Exide facility, SCAQMD has submitted conditions 8A 

and 8B of the Exide compliance plan that was submitted to SCAQMD 

on December 20, 2011, and approved by SCAQMD on January 27, 2012 

to EPA for inclusion in the SIP.36 These measures state that as 

of March 31, 2012, if monitored ambient lead concentrations 

exceed 0.15 μg/m3 on a rolling 30-day average at any SCAQMD or 

SCAQMD-approved ambient monitor, Exide shall implement, 

individually or in combination, mitigation measures to address 

the specific problem causing the ambient value to exceed 0.15 

μg/m3 on a rolling 30-day average. 

The specific mitigation measures are described below. The 

mitigation measures can be implemented individually or in 

combination based on the specific situation surrounding the 

exceedance of the trigger concentration. 

Condition 8A: Install an additional room ventilation 

baghouse or dust collector, equipped with a second stage high 

efficiency particulate air (HEPA) filter, with sufficient blower 

capacity to move a minimum of 50,000 cubic feet per minute (CFM) 

of air from one or more of the following locations: 

a. The battery crusher room in the north end of the RMPS 

building. 

 

36 See letter, Jay Chen, P.E., Senior Engineering Manager, Engineering and 

Compliance, SCAQMD, to Corey Vodvarka, Plant Manager, Exide Technologies, 

dated January 27, 2012 and Exide compliance plan dated December 15, 2011, as 

modified January 20, 2012 in the docket for today’s action. 
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November 26, 2013. We have taken steps to ensure the accuracy of this version, but it is not the official version. 

46

b. The truck loading and unloading dock on the south end of 

the RMPS building. 

c. The furnace room in the smelter building. 

d. The cupola feed room in the south end of the smelter 

building. 

As an alternative to adding additional ventilation with 

individual baghouses or dust collectors, Exide may install a 

single larger air pollution control system with at least 200,000 

CFM of blower capacity to cover all four of these locations. 

Condition 8B: Install second stage HEPA filters on one or 

more of the following air pollution control systems: 

a. The hard lead refinery baghouse (device C47). 

b. The soft lead refinery baghouse (device C46). 

c. The MAC baghouses venting the RMPS building (devices C156 

and C157). 

d. The cupola furnace feed room baghouse (device C48). 

According to the requirements of South Coast Rule 1420.1, 

Exide must submit these measures to SCAQMD for approval within 

15 days of a triggering occurrence.37

These measures are in addition to the measures specified in 

South Coast Rule 1420.1. The trigger mechanism is an ambient 

lead concentration exceeding 0.15 μg/m3 on a rolling 30-day 

average, which is more stringent than a NAAQS violation of 0.15 

 

37 Chen, p. 3. 
This document is a prepublication version, signed by Jared Blumenfeld, Regional Administrator, EPA Region 9 on 

November 26, 2013. We have taken steps to ensure the accuracy of this version, but it is not the official version. 

47

ug/m3 on a rolling 3-month average.38 

Quemetco 

In accordance with the Helms memo on early implementation 

of contingency measures, Quemetco’s contingency measure is a 

control measure that is not needed for RFP or attainment.39

Quemetco has installed a wet electrostatic precipitator (WESP) 

device as a secondary control device for air contaminants such 

as lead present in the gas stream as condensable particulates. 

For Quemetco, the proper design and operation of the WESP serves 

as the contingency measure. The WESP has already been 

implemented, thus no trigger or implementation schedule is 

needed. The WESP goes beyond what is required under South Coast 

Rule 1420.1, and the reductions provided by the measure are not 

included in or needed for the RFP or attainment demonstrations. 

3. Proposed Action on the Contingency Measures 

We propose to find that the State has demonstrated that the 

2012 Los Angeles County Lead SIP meets the requirements of 

section 172(c)(9) and relevant EPA guidance for contingency 

measures that would be triggered for failure to make RFP and for 

failure to attain. 

V. EPA’s Proposed Action and Request for Public Comments 

A. EPA’s Proposed Approvals 

 

38For current information about recent controls that have been installed or 

will be installed at Exide see www.aqmd.gov/prdas/AB2588/Exide/Exide.html

39 See footnote 21. 
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November 26, 2013. We have taken steps to ensure the accuracy of this version, but it is not the official version. 

48

For the reasons discussed above, EPA is proposing to 

approve California’s attainment SIP for the Los Angeles County 

lead nonattainment area for the 2008 lead NAAQS. This SIP 

submittal addresses CAA requirements and EPA regulations for 

expeditious attainment of the 2008 lead NAAQS for the Los 

Angeles County lead nonattainment area. 

For the reasons discussed in this proposed rulemaking, EPA 

is proposing to approve under CAA section 110(k)(3) the 

following elements of the South Coast lead attainment SIP: 

1. the SIP’s base year emissions inventory as meeting the 

requirements of CAA section 172(c)(3) and 40 CFR 51.117(e)(1); 

2. the attainment demonstration, including air quality 

modeling, that demonstrates attainment as expeditiously as 

practicable, as meeting the requirements of CAA section 

172(c)(1); 

3. the RACM/RACT demonstration, as meeting the requirements 

of CAA section 172(c)(1); 

4. the RFP demonstration, as meeting the requirements of 

CAA section 172(c)(2); 

5. and contingency measures as meeting the requirements of 

the CAA section 172(c)(9). 

B. Request for Public Comments 
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November 26, 2013. We have taken steps to ensure the accuracy of this version, but it is not the official version. 

49

We are taking public comments for thirty days following the 

publication of this proposed rule in the Federal Register. We 

will take all comments into consideration in our final rule. 

VI. Statutory and Executive Order Reviews 

Under the CAA, the Administrator is required to approve a 

SIP submittal that complies with the provisions of the Act 

and applicable Federal regulations. 42 U.S.C. 7410(k); 40 CFR 

52.02(a). Thus, in reviewing SIP submissions, EPA’s role is to 

approve state choices, provided that they meet the criteria of 

the CAA. Accordingly, this proposed action merely approves state 

law as meeting Federal requirements and does not impose 

additional requirements beyond those imposed by state law. For 

that reason, this proposed action: 

• Is not a “significant regulatory action” subject to review by 

the Office of Management and Budget under Executive Order 12866 

(58 FR 51735, October 4, 1993); 

• does not impose an information collection burden under the 

provisions of the Paperwork Reduction Act (44 U.S.C. 3501 et 

seq.); 

• is certified as not having a significant economic impact on a 

substantial number of small entities under the Regulatory 

Flexibility Act (5 U.S.C. 601 et seq.); 
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November 26, 2013. We have taken steps to ensure the accuracy of this version, but it is not the official version. 

50

• does not contain any unfunded mandate or significantly or 

uniquely affect small governments, as described in the Unfunded 

Mandates Reform Act of 1995 (Pub. L. 104–4); 

• does not have Federalism implications as specified in 

Executive Order 13132 (64 FR 43255, October 7, 1999); 

• is not an economically significant regulatory action based on 

health or safety risks subject to Executive Order 13045 (62 FR 

19885, April 23, 1997); 

• is not a significant regulatory action subject to Executive 

Order 13211 (66 FR 28355, May 22, 2001); 

• is not subject to requirements of Section 12(d) of the 

National Technology Transfer and Advancement Act of 1995 (15 

U.S.C. 272 note) because application of those requirements would 

be inconsistent with the CAA; and 

• does not provide EPA with the discretionary authority to 

address, as appropriate, disproportionate human health or 

environmental effects, using practicable and legally permissible 

methods, under Executive Order 12898 (59 FR 7629, February 16, 

1994). In addition, this proposed rule does not have tribal 

implications as specified by Executive Order 13175 (65 FR 67249, 

November 9, 2000), because the SIP is not approved to apply in 

Indian country located in the State, and EPA notes that it will 

not impose substantial direct costs on tribal governments or 

preempt tribal law.
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November 26, 2013. We have taken steps to ensure the accuracy of this version, but it is not the official version. 

51

List of Subjects in 40 CFR Part 52

Environmental protection, Air pollution control, Incorporation 

by reference, Intergovernmental relations, Lead, Reporting and 

recordkeeping requirements.

AUTHORITY: 42 U.S.C. 7401 et seq. 

___________________ ___________________________ 

Dated: Jared Blumenfeld, 

Regional Administrator, 

 EPA Region IX.