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E.O. 12866 Secondary Lead Smelting 2060-AQ68 Proposal 20111122

6560-50-P 

ENVIRONMENTAL PROTECTION AGENCY 

40 CFR Part 63 

[EPA–HQ–OAR–2011–0344; FRL-XXXX-X] 

RIN 2060–AQ68 

National Emissions Standards for Hazardous Air Pollutants: From

Secondary Lead Smelting 

AGENCY: Environmental Protection Agency (EPA). 

ACTION: Final rule. 

SUMMARY: This action finalizes the residual risk and technology 

review conducted for the Secondary Lead Smeltingsecondary lead 

smeltingSmelting source category regulated under national emission 

standards for hazardous air pollutants. These finalfinalizedfinal

amendments include revisions to the emissions limits for lead 

compounds;,; revisions to the standards for fugitive emissions;,; the 

addition of total hydrocarbon and dioxin and furan emissions limits 

for reverberatory and electric furnaces;,; the addition of a work 

practice standard for mercury emissions;,; the modification and 

addition of testing and monitoring, recordkeeping, and reporting 

requirements;,; related notifications; and revisions to the 

regulatory provisions related to emissions during periods of startup, 

shutdown, and malfunction. 
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DATES: This final action is effective on [INSERT THE DATE OF 

PUBLICATION OF THIS FINAL RULE IN THE FEDERAL REGISTER]. The 

incorporation by reference of certain publications listed in the rule 

is approved by the Director of the Federal Register as of [INSERT THE 

DATE 60 DAYS AFTER THE DATE OF PUBLICATION OF THISTHETHIS FINAL RULE 

IN THE FEDERAL REGISTER]. 

ADDRESSES: The EPA has established a docket for this action under 

Docket ID No. EPA–HQ–OAR–2011–0344. All documents in the docket are 

listed on the www.regulations.govhttp://www.regulations.gov website. 

Although listed in the index, some information is not publicly 

available, e.g., confidential business information (CBI) or other 

information whose disclosure is restricted by statute. Certain other 

material, such as copyrighted material, is not placed on the 

Internet, and will be publicly available only in hard copy form. 

Publicly available docket materials are available either 

electronically through http://www.regulations.gov, or in hard copy at 

the EPA Docket Center, EPA West Building, Room Number 3334, 1301 

Constitution Ave., NW, Washington, DC. The Public Reading Room hours 

of operation are 8:30 a.m. to 4:30 p.m. Eastern Standard Time (EST), 

Monday through Friday. The telephone number for the Public Reading 

Room is (202) 566–1744, and the telephone number for the Air and 

Radiation Docket and Information Center is (202) 566–1742. 
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FOR FURTHER INFORMATION CONTACT: For questions about this final 

action, contact Mr. Nathan Topham, Office of Air Quality Planning and 

Standards, Sector Policies and Programs Division, U.S. Environmental 

Protection Agency, Research Triangle Park, NC 27711; telephone 

number: (919) 541–0483; fax number: (919) 541-3207; and email 

address: topham.nathan@epa.gov. For additional contact information, 

see the following SUPPLEMENTARY INFORMATION section. 

SUPPLEMENTARY INFORMATION: For specific information regarding the 

risk assessment and exposure modeling methodology, contact Dr. 

Michael Stewart, Office of Air Quality Planning and Standards, Health 

and Environmental Impacts Division, Air Toxics Assessment Group 

(C504–06), U.S. Environmental Protection Agency, Research Triangle 

Park, NC 27711; telephone number: (919) 541–7524; fax number: (919) 

541–0840; and email address: stewart.michael@epa.gov. For information 

about the applicability of this NESHAP to a particular entity, 

contact the appropriate person listed in Table 1 to this preamble.

Table 1. –. List of EPA Contacts for the NESHAP Addressed in 

This Action 

NESHAP for: OECA 

ContactaContact1Contac

t

a

OAQPS 

ContactbContact2Contac

tb

Secondary Lead 

Smelting 

Maria Malave 

(202) 564-7027 

malave.maria@epa.gov

Nathan Topham 

(919) 541-0483 

topham.nathan@epa.gov

a1a EPA’s Office of Enforcement and Compliance Assurance. 

b2b EPA’s Office of Air Quality Planning and Standards. 
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Acronyms and Abbreviations. The following acronyms and 

abbreviations are used in this document. 

CAA Clean Air Act 

CBI confidential business information 

CDX Central Data Exchange 

CEMS continuous emission monitoring system 

CPMS continuous parameter monitoring system 

D/F dioxins and furans 

ERT ElectronicEmissionsElectronic Reporting Tool 

HAP hazardous air pollutants 

HQ hazard quotient

ICR information collection request 

lbs/yr pounds per year 

MACT maximum achievable control technology

MIR maximum individual risk

NAAQS National Ambient Air Quality Standards

NESHAP Nationalnational emission standardsNational Emission 

Standards for Hazardoushazardous air pollutantsHazardous 

Air Pollutants

ng/dscm nanograms per dry standard cubic meter 

NTTAA National Technology Transfer and Advancement Act 

OP Office of Policy 

ppbv parts per billion by volume 

ppbw parts per billion by weight 

ppmv parts per million by volume 

ppmw parts per million by weight 

REL recommended exposure limit

RFA Regulatory Flexibility Act 

RIA Regulatory Impact Analysis

RIN Regulatory Information Number 

RTR Risk and Technology Review 

SRF short rotary furnace

TEF toxic equivalency factor 

TEQ toxic equivalencyequivalentequivalency quotient

THC total hydrocarbons 

TTN Technology Transfer Network 

UMRA Unfunded Mandates Reform Act 

UPL upper prediction limit 

WWW World Wide Web 
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Background Information Document. On May 19, 2011 (76 FR 29032), 

the EPA proposed revisions to the Secondary Lead Smelting NESHAP 

based on evaluations performed by the EPA in order to conduct our 

risk and technology review. In this action, we are finalizing 

decisions and revisions for the rule. Some of the significant 

comments and our responses are summarized in this preamble; a. A

summary of the public comments on the proposal not presented in the 

preamble, and the EPA’s responses to those comments, is available in 

Docket ID No. EPA-HQ-OAR-2011-0344. A trackedred-linetracked changes

version of the regulatory language that incorporates the changes in 

this action is available in the docket.

Organization of This Document. The following outline is provided 

to aid in locating information in the preamble. 

I. General Information

A. Does this action apply to me?

B. What is the affected source?

C. Where can I get a copy of this document?

D. Judicial Review

II. Background

III. Summary of the Final Rule

A. What are the final rule amendments for the Secondary Lead Smelting 

source category?

1. Stack and Fugitive Metal HAP Emission Standards

2. Organic HAP Emissions Standards

3. Startup, Shutdown and Malfunction

B. What are the effective and compliance dates of the standards?

C. What are the requirements for submission of performance test data 

to the EPA?

IV. Summary of Significant Changes Since Proposal

A. Changes to the Risk Assessment Performed Under CAA Section 112(f)
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B. Changes to the Technology Review Performed Under CAA Section 

112(d)(6)

C. Other Changes Since Proposal

V. Summary of Significant Comments and Responses

A. Total Enclosure Requirements

B. Work Practice Standard Requirements

C. Emission Standards for Organic HAP from Rotary Furnaces

D. The EPA’s Risk Assessment Supporting the Proposed Rule

E. Miscellaneous Changes to the Regulatory Text

F. Emission Testing Methods and Frequency

G. Startup, Shutdown and Malfunction

VI. Summary of Cost, Environmental and Economic Impacts

A. What are the affected facilities?

B. What are the air quality impacts?

C. What are the cost impacts?

D. What are the economic impacts?

E. What are the benefits?

VII. Statutory and Executive Order Reviews

A. Executive Orders 12866: Regulatory Planning and Review, and 

Executive Order 13563: Improving Regulation and Regulatory Review

B. Paperwork Reduction Act

C. Regulatory Flexibility Act

D. Unfunded Mandates Reform Act

E. Executive Order 13132: Federalism

F. Executive Order 13175: Consultation and Coordination With Indian 

Tribal Governments

G. Executive Order 13045: Protection of Children From Environmental 

Health Risks and Safety Risks

H. Executive Order 13211: Actions Concerning Regulations That 

Significantly Affect Energy Supply, Distribution or Use

I. National Technology Transfer and Advancement Act

J. Executive Order 12898: Federal Actions To Address Environmental 

Justice in Minority Populations and Low-Income Populations

K. Congressional Review Act

I. General Information

A. Does this action apply to me?

B. What is the affected source?

C. Where can I get a copy of this document?

D. Judicial Review

II. Background

III. Summary of the Final Rule 
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A. What are the final rule amendments for the Secondary Lead Smelting 

source category?

B. What are the effective and compliance dates of the standards?

C. What are the requirements for submission of performance test data 

to the EPA?

IV. Summary of Significant Changes Since Proposal

A. Changes to the Risk Assessment Performed Under CAA Section 112(f)

B. Changes to the Technology Review Performed Under CAA Section 

112(d)(6)

C. Other Changes Since Proposal

V. Summary of Significant Comments and Responses

A. Use of Lead Primary NAAQS as a Measure of Acceptability of Risk 

for Public Health

B. Total Enclosure Requirements

C. Work Practice Standard Requirements

D. Emission Standards for Organic HAP from Rotary Furnaces

E. The EPA’s Risk Assessment Supporting the Proposed Rule

F. Miscellaneous Changes to the Regulatory Text

G. Emission Testing Methods and Frequency

H. Startup, Shutdown, and Malfunction

VI. Summary of Cost, Environmental, and Economic Impacts

A. What are the affected facilities?

B. What are the air quality impacts?

C. What are the cost impacts?

D. What are the economic impacts?

E. What are the benefits?

VII. Statutory and Executive Order Reviews

A. Executive Orders 12866: Regulatory Planning and Review, and 

Executive Order 13563: Improving Regulation and Regulatory Review

B. Paperwork Reduction Act

C. Regulatory Flexibility Act

D. Unfunded Mandates Reform Act

E. Executive Order 13132: Federalism

F. Executive Order 13175: Consultation and Coordination With Indian

Tribal Governments

G. Executive Order 13045: Protection of Children From Environmental 

Health Risks and Safety Risks

H. Executive Order 13211: Actions Concerning Regulations That 

Significantly Affect Energy Supply, Distribution, or Use

I. National Technology Transfer and Advancement Act

J. Executive Order 12898: Federal Actions To Address Environmental 

Justice in Minority Populations and Low-Income Populations
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K. Congressional Review Act

I. General Information 

A. Does this action apply to me?

Regulated Entities. Categories and entities potentially 

regulated by this action are shown in Table 2. of this preamble. 

Table 2. –. NESHAP and Industrial Source Categories Affected By This 

Final Action 

NESHAP and Source Category NAICSaNAICS1NAICSa

Code

MACTbMACT2MACTb

Code

Secondary Lead Smelting 331492 0205 

a1a North American Industry Classification System.

b2b Maximum Achievable Control Technology.

Table 2 of this preamble is not intended to be exhaustive, but 

rather provides a guide for readers regarding entities likely to be 

affected by the final action for the source category listed. To 

determine whether your facility would be affected, you should examine 

the applicability criteria in the appropriate NESHAP. As defined in 

the source category listing report published by the EPA in 1992, the 

Secondary Lead Smelting source category is defined as any facility at 

which lead-bearing scrap materials (including, but not limited to 

lead acid batteries) are recycled by smelting into elemental lead or 

lead alloys.1 For clarification purposes, all reference to lead 

emissions in this preamble means “lead compounds” (which is a 

hazardous air pollutant) and all reference to lead production means 

 

1 USEPA. Documentation for Developing the Initial Source Category List – Final 

Report, USEPA/OAQPS, EPA-450/3-91-030, July, 1992. 
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elemental lead (which is not a hazardous air pollutant) as provided 

under CAA section 112(b)(7). 

If you have any questions regarding the applicability of any 

aspect of this NESHAP, please contact the appropriate person listed 

in Table 1 of this preamble in the preceding FOR FURTHER INFORMATION 

CONTACT section. 

B. What is the affected source?

The final rule applies to owners and operators of secondary lead 

smelters. The affected source for this subpart is any of the 

following sources at a secondary lead smelter: blast, reverberatory, 

rotary, and electric furnaces; refining kettles; agglomerating 

furnaces; dryers; process fugitive emissions sources; buildings 

containing lead bearing materials; and fugitive dust sources. A new 

affected source is any affected source at a secondary lead smelting 

facility of which the construction or reconstruction commenced after 

May 19, 2011. If components of an existing affected source are 

replaced such that the replacement meets the definition of 

reconstruction in 40 CFR 63.2 and the reconstruction commenced on or 

after May 19, 2011, then the existing source becomes a reconstructed 

source and is subject to the relevant standards for a new affected 

source. The reconstructed source must comply with the requirements 

for a new affected source upon initial startup of the reconstructed 

source, or by [INSERT THE DATE 60 DAYS AFTER THE DATE OF PUBLICATION 
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OF THISTHETHIS FINAL RULE IN THE FEDERAL REGISTER], whichever is 

later. 

C. Where can I get a copy of this document?

In addition to being available in the docket, an electronic copy 

of this final action will also be available on the World Wide Web 

through the Technology Transfer Network (TTN). Following signature, a 

copy of the final action will be posted on the TTN’s policy and 

guidance page for newly proposed and promulgated rules at the 

following address: http://www.epa.gov/ttn/caaa/new.html. The TTN 

provides information and technology exchange in various areas of air 

pollution control. 

Additional information is available on the residual risk and 

technology review (RTR) web page at 

http://www.epa.gov/ttn/atw/rrisk/rtrpg.html.http://www.epa.gov/ttn/at

w/rrisk/rtrpg.html. This information includes source category 

descriptions and detailed emissions and other data that were used as 

inputs to the risk assessments. 

D. Judicial Review

Under CAA section 307(b)(1) of the Clean Air Act (CAA), judicial 

review of this final action is available only by filing a petition 

for review in the United States Court of Appeals for the District of 

Columbia Circuit by [INSERT THE DATE 60 DAYS AFTERFROMAFTER THE DATE 

OF PUBLICATION]. OF THIS FINAL RULE IN THE FEDERAL REGISTER]. Under 
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CAA section 307(b)(2),) of the CAA,), the requirements established by 

this final rule may not be challenged separately in any civil or 

criminal proceedings brought by the EPA to enforce the requirements. 

Section 307(d)(7)(B) of the CAA further provides that “[o]nly an 

objection to a rule or procedure which was raised with reasonable 

specificity during the period for public comment (including any 

public hearing) may be raised during judicial review.” This section 

also provides a mechanism for us to convene a proceeding for 

reconsideration, “[i]f the person raising an objection can 

demonstrate to the EPA that it was impracticable to raise such 

objection within [the period for public comment] or if the grounds 

for such objection arose after the period for public comment (but 

within the time specified for judicial review) and if such objection 

is of central relevance to the outcome of the rule.” Any person 

seeking to make such a demonstration to us should submit a Petition 

for Reconsideration to the Office of the Administrator, U.S. EPA, 

Room 3000, Ariel Rios Building, 1200 Pennsylvania Ave., NW, 

Washington, DC 20460, with a copy to both the person(s) listed in the 

preceding FOR FURTHER INFORMATION CONTACT section, and the Associate 

General Counsel for the Air and Radiation Law Office, Office of 

General Counsel (Mail Code 2344A), U.S. EPA, 1200 Pennsylvania Ave., 

NW, Washington, DC 20460. 

II. Background 
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Section 112 of the CAA establishes a two-stage regulatory 

process to address emissions of hazardous air pollutants (HAP) from 

stationary sources. In the first stage, after the EPA has identified 

categories of sources emitting one or more of the HAP listed in CAA 

section 112(b),) of the CAA,), section 112(d) calls for us to 

promulgate NESHAP for those sources. “Major sources” are those that 

emit, or have the potential to emit, any single HAP at a rate of 10 

tons per year (tpyTPYtpy) or more, or 25 tpyTPYtpy or more of any 

combination of HAP. For major sources, these technology-based 

standards must reflect the maximum degree of emission reductions of 

HAP achievable (after considering cost, energy requirements, and nonair quality health and environmental impacts) and are commonly 

referred to as maximum achievable control technology (MACT) 

standards. 

For MACT standards, the statute specifies certain minimum 

stringency requirements, which are referred to as floor requirements 

and may not be based on cost considerations. See CAA section 

112(d)(3). For new sources, the MACT floor cannot be less stringent 

than the emission control that is achieved in practice by the best 

controlled similar source. The MACT standards for existing sources 

can be less stringent than floors for new sources, but they cannot be 

less stringent than the average emission limitation achieved by the 

best-performing 12 percent of existing sources in the category or 
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subcategory (or the best-performing five sources for categories or 

subcategories with fewer than 30 sources). In developing MACT, we 

must also consider control options that are more stringent than the 

floor, under CAA section 112(d)(2). We may establish standards more 

stringent than the floor, based on the consideration of the cost of 

achieving the emissions reductions, any non-air quality health and 

environmental impacts, and energy requirements. In promulgating MACT 

standards, CAA section 112(d)(2) directs us to consider the 

application of measures, processes, methods, systems, or techniques 

that reduce the volume of or eliminate HAP emissions through process 

changes, substitution of materials, or other modifications; enclose 

systems or processes to eliminate emissions; collect, capture, or 

treat HAP when released from a process, stack, storage, or fugitive 

emissions point; and/or are design, equipment, work practice, or 

operational standards.

In the second stage of the regulatory process, we undertake two 

different analyses, as required by the CAA: section 112(d)(6) of the 

CAA calls for us to review these technology-based standards and to 

revise them “as necessary (taking into account developments in 

practices, processes, and control technologies)” no less frequently 

than every 8 years; and within 8 years after promulgation of the 

technology standards, CAA section 112(f) calls for us to evaluate the 

risk to public health remaining after application of the technology-
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based standards and to revise the standards, if necessary, to provide 

an ample margin of safety to protect public health or to prevent, 

taking into consideration costs, energy, safety, and other relevant 

factors, an adverse environmental effect. In doing so, the EPA may 

adopt standards equal to existing MACT standards if the EPA 

determines that the existing standards are sufficiently protective. 

NRDC v. EPA, 529 F.3d 1077, 1083 (D.C. Cir. 2008). 

On May 19, 2011, the EPA published a proposed rule in the 

Federal Register for the Secondary Lead Smelting NESHAP, 40 CFR 

partPartpart 63 Subpart, subpart X that took into consideration the 

residual risk and technology review (RTR) analyses. 

Today’sThisToday’s action provides the EPA’s final determinations 

pursuant to the RTR provisions of CAA section 112 for the Secondary 

Lead Smelting source category. As a result of our analyses, and also 

promulgates first-time standards under section 112 (d)(2) (MACT) for 

certain hazardous air pollutants emitted by secondary lead smelters. 

Specifically, we are taking the following actions: 

• Revising some requirements of the NESHAP related to control of 

metal HAP emissions based on our risk assessment and technology 

reviews. 

• Finalizing firstnewfirst-time total hydrocarbon (THC) and dioxin 

and furan (D/F) emissions limits and a plastic separation work 

practice standard to prevent dioxin formation. 

• Finalizing work practice standards for mercury. 

• Revising the requirements in the NESHAP related to emissions 

during periods of startup, shutdown, and malfunction (SSM). 

• Incorporating the use of plain language into the rule. 
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• Addressing technical and editorial corrections in the rule. 

III. Summary of the Final Rule 

A. What are the final rule amendments for the Secondary Lead Smelting 

source category?

EPA promulgated the National Emission Standards for 

Hazardous Air Pollutant Emissions: Secondary Lead Smelting on June 

13, 1997 (62 FR 32216). The standards are codified at 40 CFR part 63, 

subpart X. The secondary lead smelting industry consists of 

facilities that recycle lead-bearing scrap material, typically lead 

acid batteries, into elemental lead or lead alloys. The source 

category covered by this MACT standard currently includes 16 

facilities, including one facility that is not currently operating 

and one facility that is in the construction process of being 

constructed. 

This section describes the final amendments to the 

secondary lead smelting NESHAP. These revisions include changes to 

the stack and fugitive metal HAP emission standards, the addition of 

new THC and D/F emission limits, the addition of a work practice 

standard to separate plastics from automotive batteries to prevent 

dioxin emissions, the addition of work practice standards to minimize 

mercury emissions, and changes to the requirements that apply during 

periods of startup, shutdown, and malfunction. In addition to these 

changes described below, we are also making minor changes to the 

regulatory text to correct editorial errors and to make plain 
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language revisions. We have evaluated the cost, emissions reductions, 

energy implications and cost effectiveness of all of the standards 

being promulgated in this final rule and have determined that these 

measures are cost effective, technically feasible and will provide 

the public with an ample margin of safety. from exposure to emissions 

from the secondary lead smelter source category. See Cost Impacts of 

the Revised NESHAP for the Secondary Lead Smelting Source Category, 

which is available in the docket, for information on the costs and 

cost effectiveness of each of the standards being promulgated in this 

final rule. 

1. Stack and Fugitive Metal HAP Emission Standards

For the reasons provided in Section IV.A of this preamble and in 

the support documents in the docket, we have determined that the 

risks associated with emissions from this source category are 

unacceptable primarily due to fugitive emissions of lead. We have 

further determined that there have been developments in practices, 

processes, and control technologies that warrant revisions to the 

existing MACT standard (i.e..,. the standards promulgated pursuant to 

section 112 (d)(2) and (3)) for this source category. Therefore, to 

satisfy the requirements of CAA sections 112(d)(6) and 112(f),) of 

the CAA,), we are revising the existing MACT standard to include: 
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• A facility- wide, flow- weighted average lead2 emissions limit 

from stacks of 0.20 mg/dscm and an individual stack lead 

emissions limit of 1.0 mg/dscm for each stack at existing 

sources. For new sources, a lead emissions limit of 0.20 mg/dscm 

applies to each individual stack at aan existinga modified or

"greenfield" new facility. 

• A requirement for the facility to operatelocateoperate sources 

of fugitive lead emissions within total enclosures that are 

maintained under negative pressure and vented to a control 

device. These sources of fugitive emissions sources include the 

smelting furnaces, smelting furnace charging areas, lead taps, 

slag taps, molds during tapping, battery breakers, refining 

kettles, casting areas, dryers, material handling areas, and 

areas where dust from fabric filters, sweepings or used fabric 

filters are processed. The facilities are also required to adopt 

a list of specified work practice standards to minimize fugitive 

emissions. 

2. Organic HAP Emissions Standards

To satisfy CAA sections 112(d)(2) and 112(d)(3),) of the CAA,),

we are also revising the existing MACT standard to include 

firstnewfirst-time D/F and THC emission limits (with THC serving as a 

surrogate for non-dioxin organic HAP). These emission limits are 

summarized in Table 3 below. of this preamble.

Table 3. Summary of new THC and D/F emission limits.

Source Type

D/F Emission 

Limita

THC Emission 

Limitb

New and Existing Collocated Blast and 

Reverberatory FurnacesTable 3. Summary of 

new THC and D/F emission limits.

0.50 20c

Existing Blast Furnaces 170 360c

New Blast Furnaces 10 70c

Source Type

D/F Emission 

Limit1Limita

THC Emission 

Limit2Limitb

New and Existing Collocated 0.50 20320c

 

2 Throughout this preamble, all references to lead emissions means lead compounds 

as listed by Congress at section 112 (b)(1) of the Act.
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Blast and Reverberatory Furnaces

Existing Blast Furnaces 170 3603360c

New Blast Furnaces 10 70370c

New and Existing Reverberatory 

and Electric Furnaces 

1.0 12 

a1a ng/dscm on a TEQ basis, corrected to 7% percent O2

b2b ppmv as propane, corrected to 4% percent CO2

c3c Emission limit is unchanged from 1997 NESHAP 

3. Startup, Shutdown, and Malfunction

The United States Court of Appeals for the District of Columbia 

Circuit vacated portions of two provisions in the EPA’s CAA 

sectionSectionsection 112 regulations governing the emissions of HAP 

during periods of startup, shutdown, and malfunction (SSM). Sierra 

Club v. EPA, 551 F.3d 1019 (D.C. Cir. 2008), cert. denied, 130 S. Ct. 

1735 (U.S. 2010). Specifically, the Court vacated the SSM exemption 

contained in 40 CFR 63.6(f)(1) and 40 CFR 63.6(h)(1), that was part 

of a regulation, commonly referred to as the “General Provisions 

Rule,” that the EPA promulgated under CAA section 112 of the CAA. 

When incorporated into CAA sectionSectionsection 112(d) regulations 

for specific source categories, these two provisions exempted sources 

from the requirement to comply with the otherwise applicable CAA 

section 112(d) emission standard during periods of SSM. 

We have eliminated the SSM exemption for secondary lead 

smelting facilities in this rule. Consistent with Sierra Club v. EPA, 

the EPA has established standards in this rule for all times.periods 

of operation. We have also revised Table 1 to subpart X (the General 
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Provisions table) in several respects. For example, we have 

eliminated that incorporation of the General Provisions’ requirement 

that the source develop an SSM plan. We have also eliminated or 

revised certain recordkeeping and reporting that related to the SSM 

exemption. The EPA has attempted to ensure that we have not included 

in the regulatory language any provisions that are inappropriate, 

unnecessary, or redundant in the absence of the SSM exemption. 

In establishing the standards in this rule, the EPA has taken 

into account startup and shutdown periods and, for the reasons 

explained below, has established different standards for non-dioxin 

organic HAP during those periods. 

Information on periods of startup and shutdown in the industry 

indicate that lead emissions during these periods do not increase.

(consistent with our engineering judgment that lead emissions would 

not increase during these periods because lead-bearing feed is not 

being smelted during these periods). Furthermore, all lead-emitting 

processes are controlled by either control devices or work practices 

and these controls would not typically be affected by startup or 

shutdown. Therefore, the EPA is not adopting separate lead-emission 

standards for periods of startup and shutdown are not being 

promulgated. .3 

 

3 Since startup and shutdown refers to the smelting process, and not to ancillary 

management activities, there are no startup and shutdown standards for process 

fugitive emissions since startup and shutdown do not occur for the activities 

generating such emissions. 
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TheHowever, theThe EPA has revised this final rule to require 

sources to meet a work practice standard that requires the 

development of standard operating procedures designed to minimize 

emissions of THC and D/F for each start-up and shutdown scenario 

anticipated for all units subject to THC and D/F limits. Temperature 

monitoring is the metric used to determine continuous compliance with 

emission standardslimits. We considered whether performance testing

and, therefore, enforcementstandards for THC. This metric is 

inappropriate as a measure of thenumeric emission limits would be 

practicablethe destruction efficiency of these organic pollutants 

during periods of startup and shutdown. 

The EPA is not including a standard for dioxins and furans

during periods of startup and shutdown. This is because dioxins and 

furans will not be emitted during those periods. During startup and 

shutdown, scrap feed materials (including chlorinated plastics and 

flame retardants) that contain the precursors needed for dioxin 

formation are not introduced into the smelter4 so there are no 

conditions that could give rise to dioxin and furan emissions.

The EPA determined that it is not technically and economically 

feasible for units subject to THC and D/F emission limits to perform 

stack testing for thisthese pollutantsthis pollutant during periods 

of startup and shutdown due to a number of technical andchallengesand 

 

4 “Shutdown” is defined as a period “when no lead bearing materials are being fed 

to the furnace and smelting operations have ceased...”. Section 63.542 (definition of 

“shutdown”).
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economic impracticality associated with testing secondary lead 

smelting furnaces during these periods. The furnaces are heated 

during periods of startup through slow feeding of natural gas and 

small amounts of coke, with no lead acid batteries fed to the furnace 

during these periods. During these periods, many stack gas 

characteristics including temperature, flow rate, flow 

characteristics, moisture content and CO2 content of the gas change

far more dramatically and rapidly than they would during steady-state 

sampling under normal operating conditions. These changing parameters 

must be accounted for during stack tests and require near-constant 

measurements and adjustment. Test crews would have to be on-site 

prior to a period of startup or shutdown occurring and may need to 

break up a single test over multiple startups or shutdowns, the 

length of which could vary depending on the type of secondary lead 

smelting furnace being tested, that would happen infrequently to 

gather enough data to complete a three-run test. See also section V.G 

of this preamble discussing these standards -run test. Additionally, 

testing for dioxins and furans requires isokinetic sampling which 

would be difficult or impossible to maintain during periods of 

turbulent gas flow and changing gas flow rates. Because of the 

technical and economic impracticability associated with attempting to 

perform stack tests during See also section V.G of this preamble 

discussing these periods, we have established a separate work 
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practice standard for emissions of D/F and THC during periods of 

startup and shutdownstandards further. 

Periods of startup, normal operations, and shutdown are all 

predictable and routine aspects of a source’s operations. However, by 

contrast, malfunction is defined as a “sudden, infrequent, and not 

reasonably preventable failure of air pollution control and 

monitoring equipment, process equipment or a process to operate in a 

normal or usual manner * * * ”(40 CFR 63.2). The EPA has determined 

that CAA section 112 does not require that emissions that occur 

during periods of malfunction be factored into development of CAA 

section 112 standards. Under section 112, emissions standards for new 

sources must be no less stringent than the level “achieved” by the 

best controlled similar source and for existing sources generally 

must be no less stringent than the average emission limitation 

“achieved” by the best performing 12 percent of sources in the 

category. There is nothing in section 112 that directs the agency to 

consider malfunctions in determining the level “achieved” by the best 

performing or best controlled sources when setting emission 

standards. Moreover, while the EPA accounts for variability in 

setting emissions standards consistent with the section 112 case law, 

nothing in that case law requires the agency to consider malfunctions 

as part of that analysis. Section 112 uses the concept of “best 

controlled” and “best performing” unit in defining the level of 
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stringency that section 112 performance standards must meet. Applying 

the concept of “best controlled” or “best performing” to a unit that 

is malfunctioning presents significant difficulties, as malfunctions 

are sudden and unexpected events.

Further, accounting for malfunctions would be difficult, if not 

impossible, given the myriad different types of malfunctions that can 

occur across all sources in the category and given the difficulties 

associated with predicting or accounting for the frequency, degree,

and duration of various malfunctions that might occur. As such, the 

performance of units that are malfunctioning is not “reasonably” 

foreseeable. See, e.g., Sierra Club v EPA, 167 F. 3d 658, 662 

(D.C.Cir. 1999) (EPA typically has wide latitude in determining the 

extent of data-gathering necessary to solve a problem.) We generally 

defer to an agency's decision to proceed on the basis of imperfect 

scientific information, rather than to "invest the resources to 

conduct the perfect study"..").". See also, Weyerhaeuser v Costle, 

590 F.2d 1011, 1058 (D.C. Cir. 1978) (“ In the nature of things, no 

general limit, individual permit, or even any upset provision can 

anticipate all upset situations. After a certain point, the 

transgression of regulatory limits caused by ‘uncontrollable acts of 

third parties,’ such as strikes, sabotage, operator intoxication or 

insanity, and a variety of other eventualities, must be a matter for 

the administrative exercise of case-by-case enforcement discretion, 
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not for specification in advance by regulation.”). In addition, the 

goal of a best controlled or best performing source is to operate in 

such a way as to avoid malfunctions of the source and accounting for 

malfunctions could lead to standards that are significantly less 

stringent than levels that are achieved by a well-performing nonmalfunctioning source. The EPA’s approach to malfunctions is 

consistent with CAA section 112 and is a reasonable interpretation of 

the statute. We respond in In section 3IV.G below3.2.1 of the 

separate response to comment document, we respond to comments that 

emissions during malfunctions should be accounted for in assessing 

risk pursuant to CAA section 112 (f)(2). 

In the event that a source fails to comply with the applicable 

CAA section 112(d) standards as a result of a malfunction event, the 

EPA would determine an appropriate response based on, among other 

things, the good faith efforts of the source to minimize emissions 

during malfunction periods, including preventative and corrective 

actions, as well as root cause analyses to ascertain and rectify 

excess emissions. The EPA would also consider whether the source's 

failure to comply with the CAA section 112(d) standard was, in fact, 

“sudden, infrequent, not reasonably preventable” and was not instead 

“caused in part by poor maintenance or careless operation.” 40 CFR

section 63.2 (definition of malfunction). 
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Finally, the EPA recognizes that even equipment that is properly 

designed and maintained can sometimes fail and that such failure can 

sometimes cause an exceedance of the relevant emission standard. 

(See, e.g., State Implementation Plans: Policy Regarding Excessive 

Emissions During Malfunctions, Startup, and Shutdown (Sept.September

20, 1999); Policy on Excess Emissions During Startup, Shutdown, 

Maintenance, and Malfunctions (Feb.February 15, 1983).) The EPA is 

therefore adding to the final rule an affirmative defense to civil 

penalties for exceedances of emission limits that are caused by 

malfunctions. See 40 CFR 63.542 (defining “affirmative defense” to 

mean, in the context of an enforcement proceeding, a response or 

defense put forward by a defendant, regarding which the defendant has 

the burden of proof, and the merits of which are independently and 

objectively evaluated in a judicial or administrative proceeding). We 

also have added other regulatory provisions to specify the elements 

that are necessary to establish this affirmative defense; the source 

must prove by a preponderance of the evidence that it has met all of 

the elements set forth in 63.552. (See (see 40 CFR 22.24). The 

criteria ensure that the affirmative defense is available only where 

the event that causes an exceedance of the emission limit meets the 

narrow definition of malfunction in 40 CFR 63.2 (sudden, infrequent, 

not reasonable preventable and not caused by poor maintenance and or 

careless operation). For example, to successfully assert the 
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affirmative defense, the source must prove by a preponderance of the 

evidence that excess emissions “[w]ere caused by a sudden, 

infrequent, and unavoidable failure of air pollution control and 

monitoring equipment, process equipment, or a process to operate in a 

normal or usual manner....” The criteria also are designed to ensure 

that steps are taken to correct the malfunction, to minimize 

emissions in accordance with 40section40 CFR 63.552 and to prevent 

future malfunctions. For example, the source must prove by a 

preponderance of the evidence that “[r]epairs were made as 

expeditiously as possible when the applicable emission limitations 

were being exceeded...” and that “[a]ll possible steps were taken to 

minimize the impact of the excess emissions on ambient air quality, 

the environment and human health....” In any judicial or administrative 

proceeding, the Administrator may challenge the assertion of the 

affirmative defense and, if the respondent has not met its burden of 

proving all of the requirements in the affirmative defense, 

appropriate penalties may be assessed in accordance with 

CAASectionCAA section 113 of the Clean Air Act (see also 40 CFR Part 

22.27). 

The EPA is including an affirmative defense in the final rule in 

an attempt to balance a tension, inherent in many types of air 

regulations, to ensure adequate compliance while simultaneously 

recognizing that despite the most diligent of efforts, emission 
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limits may be exceeded under circumstances beyond the control of the 

source. The EPA must establish emission standards that “limit the 

quantity, rate, or concentration of emissions of air pollutants on a 

continuous basis”.”” 42 U.S.C. § 7602(k)(defining “emission 

limitation and emission standard”). See generally Sierra Club v. EPA, 

551 F.3d 1019, 1021 (D.C. Cir. 2008). Thus, the EPA is required to 

ensure that section 112 emissions limitations are continuous. The 

affirmative defense for malfunction events meets this requirement by 

ensuring that even where there is a malfunction, the emission 

limitation is still enforceable through injunctive relief. While 

“continuous” limitations, on the one hand, are required, there is 

also case law indicating that in many situations it is appropriate 

for the EPA to account for the practical realities of technology. For 

example, in Essex Chemical v. Ruckelshaus, 486 F.2d 427, 433 (D.C. 

Cir. 1973), the D.C. Circuit acknowledged that in setting standards 

under CAA section 111 “variant provisions” such as provisions 

allowing for upsets during startup, shutdown and equipment 

malfunction “appear necessary to preserve the reasonableness of the 

standards as a whole and that the record does not support the ‘never 

to be exceeded’ standard currently in force.” See also, Portland 

Cement Association v. Ruckelshaus, 486 F.2d 375 (D.C.Cir. 1973).

Though intervening caselaw such as Sierra Club v. EPA and the CAA 

1977 amendments undermine the relevance of these cases today, they 
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support the EPA’s view that a system that incorporates some level of 

flexibility is reasonable. The affirmative defense simply provides 

for a defense to civil penalties for excess emissions that are proven 

to be beyond the control of the source. By incorporating an 

affirmative defense, the EPA has formalized its approach to upset 

events. In a Clean Water Act setting, the Ninth Circuit required this 

type of formalized approach when regulating “upsets beyond the 

control of the permit holder.” Marathon Oil Co. v. EPA, 564 F.2d 

1253, 1272-73 (9th Cir. 1977). But see Weyerhaeuser Co. v. Costle, 

590 F.2d 1011, 1057-58 (D.C. Cir. 1978) (holding that an informal 

approach is adequate). The affirmative defense provisions give the 

EPA the flexibility to both ensure that its emission limitations are 

“continuous” as required by 42 U.S.C. § 7602(k) and account for 

unplanned upsets and thus support the reasonableness of the standard 

as a whole. 

B. What are the effective and compliance dates of the standards?

The revisions to the MACT standards being promulgated in this 

action are effective on [INSERT THE DATE OF PUBLICATION OF THIS FINAL 

RULE IN THE FEDERAL REGISTER]. For the MACT standards being addressed 

in this action, the compliance date for the revised SSM requirements 

is the effective date of the standards, [INSERT THE DATE OF 

PUBLICATION OF THIS FINAL RULE IN THE FEDERAL REGISTER]. The 

compliance date for existing sources for the revised stack lead 
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emission limit and the revised fugitive emission standard including 

the requirement to adopt work practice standards and install total 

enclosures for specified process fugitive emission sources, and for 

the new D/F and THC emission limits, is 2 years from the effective 

date of the standard, [INSERT THE DATE 2 YEARS AFTERFROMAFTER THE

DATE OF PUBLICATION]. OF THIS FINAL RULE IN THE FEDERAL REGISTER].

New sources must comply with the allstandard within two years fromall 

of the standards immediately upon the effective date of the standard, 

[INSERT THEDATE 2 YEARS FROMTHE DATE OF PUBLICATION OF THIS FINAL 

RULE IN THE FEDERAL REGISTER], or upon startup, whichever is later. 

C. What are the requirements for submission of performance test data 

to the EPA?

In this action, as a step to increase the ease and efficiency of 

data submittal and improve data accessibility, the EPA is requiring 

the electronic submittal of select performance test data. 

Specifically, the EPA is requiring owners and operators of secondary 

lead smelting facilities to submit electronic copies of performance 

test reports required under section §40 CFR 63.543 to the EPA’s 

WebFIRE database. The WebFIRE database was constructed to store 

performance test data for use in developing emission factors. A 

description of the WebFIRE database is available at 

http://cfpub.epa.gov/oarweb/index.cfm?action=fire.main. 
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The EPA must have performance test data to conduct effective 

reviews of CAA sections 112 and 129 standards, as well as for many 

other purposes including compliance determinations, emission factor 

development, and annual emission rate determinations. In conducting 

these required reviews, the EPA has found it ineffective and time 

consuming, not only for us, but also for other regulatory agencies 

and for source owners and operators, to locate, collect, and submit 

performance test data because of varied locations for data storage 

and varied data storage methods. In recent years, though, stack 

testing firms have typically collected performance test data in 

electronic format, making it possible to move to an electronic data 

submittal system that would increase the ease and efficiency of data 

submittal and improve data accessibility. 

One major advantage of submitting performance test data through 

the ElectronicERTElectronic Reporting Tool (ERT) is a standardized 

method to compile and store much of the documentation required to be 

reported by this rule. Another advantage is that the ERT clearly 

states what testing information would be required. Another important 

benefit of submitting these data to the EPA at the time the source 

test is conducted is that it should substantially reduce the effort 

involved in data collection activities in the future. When the EPA 

has performance test data in hand, there will likely be fewer or less 

substantial data collection requests in conjunction with prospective 
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required residual risk assessments or technology reviews. This 

results in a reduced burden on both affected facilities (in terms of 

reduced labor to respond to data collection requests) and the EPA (in 

terms of preparing and distributing data collection requests and 

assessing the results). 

State, local, and tribal agencies can also benefit from a more 

streamlined and accurate review of electronic data submitted to them. 

The ERT allows for an electronic review process rather than a manual 

data assessment making review and evaluation of the data and 

calculations easier and more efficient. 

As mentioned above, data entry will be through an electronic 

emissions test report structure called the Electronic Reporting Tool 

(or ERT.).. The ERT will generate an electronic report which will be 

submitted using the Compliance and Emissions Data Reporting Interface 

(CEDRI). The submitted report is transmitted through the EPA’s 

Central Data Exchange (CDX) network for storage in the WebFIRE 

database making submittal of data very straightforward and easy. A 

description of the ERT can be found at 

http://www.epa.gov/ttn/chief/ert/index.html and CEDRI can be accessed 

through the CDX website (www.epa.gov/cdx). 

The requirement to submit performance test data electronically 

to the EPA does not create any additional performance testing and 

would apply only to those performance tests conducted using test 
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methods that are supported by the ERT. The ERT contains a specific 

electronic data entry form for most of the commonly used EPA 

reference methods. A listing of the pollutants and test methods 

supported by the ERT is available at 

http://www.epa.gov/ttn/chief/ert/index.html. We believe that industry 

will benefit from this new electronic data submittal requirement. 

Having these data, the EPA will be able to develop improved emission 

factors, make fewer information requests, and promulgate better 

regulations. The information to be reported is already required for 

the existing test methods and is necessary to evaluate the 

conformance to the test method. 

Finally, another benefit of submitting data to WebFIRE 

electronically is that these data will greatly improve the overall 

quality of the existing and new emission factors by supplementing the 

pool of emissions test data for establishing emissions factors and by 

ensuring that the factors are more representative of current industry 

operational procedures. A common complaint heard from industry and 

regulators is that emission factors are outdated or not 

representative of a particular source category. With timely receipt 

and incorporation of data from most performance tests, the EPA will 

be able to ensure that emission factors, when updated, represent the 

most current range of operational practices. In summary, in addition 

to supporting regulation development, control strategy development, 
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and other air pollution control activities, having an electronic 

database populated with performance test data will save industry, 

state, local, tribal agencies, and the EPA significant time, money, 

and effort while improving the quality of emission inventories and, 

as a result, air quality regulations. 

IV. Summary of Significant Changes Since Proposal 

A. Changes to the Risk Assessment Performed Under CAA Section 112(f)

In the proposed rulemaking, the EPA presented a number of 

options for additional controls on the Secondary Lead Smelting source 

category. In that notice, the EPA solicited comment on the proposed 

options as well as on all of the analyses and data upon which the 

options were based, including the risk methods and results presented 

in the draft document: Draft Residual Risk Assessment for the 

Secondary Lead Smelting Source Category. 

During the public comment period for the proposed rule, several 

parties submitted comments and suggested revisions regarding the 

emissions used for the risk assessment, and also submitted other 

information relevant to the risk assessment (see docket number:ID

EPA-HQ-OAR-2011-0344 for all public comments). After considering 

these submissions, the EPA revised its analyses. Revised methods, 

model inputs, and risk results are presented in the report: Residual 

Risk Assessment for the Secondary Lead Smelting Source Category,

which is available in the docket for this rulemaking. In addition, a 
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discussion of the updated emissions information used in the final 

risk assessment can be found in the memorandum titled: Development of 

the RTR Emissions Dataset for the Secondary Lead Smelting Source 

Category, which can also be found in the docket for this rulemaking. 

Considering the updated emissions information received during 

the public comment period for the proposed rule, results of the final 

risk analysis estimate that the NAAQS for lead could be exceeded at 

10 of 15 facilities, largely due to fugitive dust emissions (see 

Table 1). This analysis also estimates that 3-month maximum lead 

concentrations could be as high as about 20 times the NAAQS for lead 

and that more than half these facilities have estimated 3-month 

maximum lead concentrations that are at least 2 times higher than the 

NAAQS for lead (again, largely due to fugitive dust emissions).

Considering the updated emissions information received during 

the public comment period for the proposed rule, our final risk 

analysis estimates that the primary NAAQS for lead, used in this rule 

as a measure of acceptable risk from air-borne lead emissions, could 

be exceeded at 9 of 15 facilities based on actual emissions, largely 

due to fugitive dust emissions (see Table 4). At these 9 facilities, 

fugitive dust emissions account for about 94 to 99 percent of the 

estimated 3-month maximum lead concentrations.5 Our analysis also 

estimates that approximately 200 people live in areas around 

 

5 For all facilities, the percent contribution of fugitive and stack emissions to 

modeled ambient lead concentrations has only been estimated for the model receptor 

representing the site of maximum lead impact. 
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fourthreefour of these facilities where 3-month maximum lead 

concentrations are estimated to be between one and three times above 

the lead NAAQS. Allowable stack emissions of lead also resulted in 

modeled concentrations exceeding the NAAQS, with modeled lead ambient 

air levels as high as 8 and 10 times above the NAAQS. This analysis 

also estimates that 3-month maximum lead concentrations from a 

secondary lead smelter could be up to about 20 times the NAAQS for 

lead based on actual emissions. The maximum lead exceedances at 

populated census block centroids were between one and three times the 

NAAQS. There is some uncertainty associated with the fugitive 

emissions estimates that is derived from the uncertainty involved in 

determining the housekeeping and enclosure factors. This uncertainty 

could have important impacts on the estimated fugitive emissions and 

the resulting modeled ambient concentration. For example, if the 

level of control assumed through the use of full enclosure and robust 

housekeeping were both increased from 75 percent to 85 percent, the 

estimated fugitive emissions at the RSR facility would be about 43 

pounds (roughly three times lower than those estimated in this rule). 

If the level of control assumed through the use of full enclosure and 

robust housekeeping were both decreased from 75 percent to 65

percent, the estimated fugitive emissions at the RSR facility would 

be about 240 pounds (roughly two times higher than those estimated in 

this rule). As shown in this example, changing the estimates of 
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control efficiency achieved with full enclosure and robust 

housekeeping practices by 10 percent each could impact the resulting 

fugitive emission estimates for facilities employing that level of 

control by two to three times. These estimates could significantly 

impact the resulting risk estimates since most of the impact of lead 

emissions was due to fugitive dust emissions. While there are 

uncertainties associated with estimating fugitive emissions, we 

conclude that the methodology used in this rulemaking provided 

reasonable estimates of fugitive emissions for these sources. For 

further details, see Development of the RTR Emissions Dataset for the 

Secondary Lead Smelting Source Category, available in docket ID EPAHQ-OAR-2011-0344, which describes how we developed these fugitive 

emissions estimates and provides a presentation of our estimates 

compared to estimates submitted via the ICR and estimates reported to 

the TRI. 

Table 1 -4. Secondary Lead Smelting Facility Modeled Maximum AmbientLead Concentrations

• Considering Actual Emissionsa (rolling 3three3-month average 

values) 

Facility Name City State

Highest 

Modeled Lead 

Concentration 

(μg/m3) 

Concentration 

is X times 

higher than 

the NAAQS 

DoeDOE RUN 

COMPANY-BUICK 

MILLDoe Run 

Company-Buick 

Mill

BossBOSS 

Boss

MO 

2.38[NET1]36538 20 
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Table 1 -4. Secondary Lead Smelting Facility Modeled Maximum AmbientLead Concentrations

• Considering Actual Emissionsa (rolling 3three3-month average 

values) 

Facility Name City State

Highest 

Modeled Lead 

Concentration 

(μg/m3) 

Concentration 

is X times 

higher than 

the NAAQS 

SandersSANDERS 

LEAD COSanders 

Lead Co.

TroyTROYTroy AL 

2.16 10 

ExideEXIDE 

CORPORATIONExide 

Corporation

VernonVERNONV

ernon

CA 

1.14 8 

BatteryEXIDE 

TECHNOLOGIES/B R 

SMELTERBattery 

Recycling Co. 

AreciboBATON 

ROUGEArecibo

PRLAP

R

0.769276 565

GulfBATTERYGulf 

Coast Recycling

CO. , Inc.

TampaARECIBOT

ampa

FLPRF

L

0.387638 353

GULF COAST 

RECYCLING, 

INC.Exide 

TechnologiesCanon Hollow 

Plant

ForestTAMPAFo

rest City

MOFLM

O

0.475247 343

GopherEXIDE 

TECHNOLOGIESCANON HOLLOW 

PLANTGopher 

Resource Corp.

EaganFOREST 

CITYEagan

MNMOM

N

0.354735 232

FriscoGOPHER 

RESOURCE 

CORPFrisco 

Battery Recycling

FriscoEAGANFr

isco

TXMNT

X

0.233523 2 

ExideFRISCO 

BATTERY 

RECYCLINGExide 

Tech/Reading 

Smelter

ReadingFRISCO

Reading

PATXP

A

0.253225 2 
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Table 1 -4. Secondary Lead Smelting Facility Modeled Maximum AmbientLead Concentrations

• Considering Actual Emissionsa (rolling 3three3-month average 

values) 

Facility Name City State

Highest 

Modeled Lead 

Concentration 

(μg/m3) 

Concentration 

is X times 

higher than 

the NAAQS 

QuemetcoEXIDE 

TECH/READING 

SMELTERQuemetco, 

Inc.

IndustryREADI

NGIndustry

CAPAC

A

0.172517 121

QUEMETCO INC 

Exide 

Technologies

MuncieINDUSTR

YMuncie

INCAI

N

0.151715 1 

ExideEXIDE 

TECHNOLOGIESExide 

Technologies/ B R

Smelter

BatonMUNCIEBa

ton Rouge

LAINL

A

0.141514 1 

RevereREVERE 

SMELTING & 

REFINING 

CORPRevere 

Smelting & 

Refining Corp

MiddletownMID

DLETOWNMiddle

town

NY 

0.10 0.7 

QUEMETCO, 

INC.Quemetco, 

Inc.

IndianapolisI

NDIANAPOLISIn

dianapolis

IN 

0.07 0.5 

EastEAST PENN MFG 

CO INC/SMELTER 

PLTEast Penn Mfg. 

Co Inc/Smelter 

Plt

LyonLYON 

STATIONLyon 

Station

PA 

0.02 0.1 

aValues of 1 or less in the last column indicate that modeled lead concentrations 

are at or below the NAAQS for lead.

We also note that there were changes to our cancer, acute, and 

PB-HAP multipathway case study analyses (see section 3.4 of the risk 
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assessment document) for non-lead HAP as a result of the updated risk 

assessment performed for the final rule. With respect to our updated 

cancer risk assessment, we estimate that the maximum individual risk 

(MIR) of cancer due to actual emissions is 504050 in a million 

predominantly due to fugitive dust emissions of arsenic and cadmium 

(as compared to the analysis at proposal of risk of 50 in a million 

but based on athe risk assessmenta different secondary lead facility. 

Moreover, approximately 700 people were estimated to havesupporthave 

cancer risks above 10 in a million and approximately 80,000 people 

were estimated to have cancer risks above 1 in a million considering 

all facilities in this source category(as compared to the 

analysisproposed rule); notablyanalysis at proposal of 1,500 above 10 

in a million and 128,000 above 1 in a million). In addition, the MIR 

due to MACT allowable emissions remains 200 in a million 

predominantly from stack emissions of arsenic. In addition, the The

updated worst-case acute hazard quotient (HQ) value is 20 at two 

facilities (based on the REL for arsenic; the REL is the only 

available acute health benchmark value for arsenic and all other 

pollutants had HQ values less than or equal to 1), driven by both 

stack and fugitive dust emissions of arsenic (as compared to analysis 

at proposal of an acute HQ value of 30 based on the REL for arsenic 

at one facility driven by emissions from stacks). Finally, in the 

risk assessment supportingto supportsupporting the final rulemaking, 
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it is estimated estimates that the cancer MIR values from both 

multipathway case study analyses (i.e., in Frisco, TX and Middletown, 

NY; see section 3.2 of the final risk assessment document) are less 

than 1 in a million (as compared to an estimated multipathway MIR of 

30- in a million and less than 1- in a million in the Frisco, TX and 

Middletown, NY multipathway case study analyses forto supportfor the 

proposed rule). Notably, the reduction in multipathway risks resulted 

from updated emissions information received during the public comment 

period with respect to these facilities. 

Taking into account all the results of the final risk 

assessment, and similar to the proposed rulemaking, we conclude that 

risks to public health due to emissions from this source category are 

unacceptable. Our conclusion is primarily based on risk from exposure 

to air-borne lead emissionsriskemissions but also considers other 

risk metrics such as cancer and non-cancer risks associated with 

actual and allowable stack emissions of non-lead HAPs, especially 

arsenic and cadmium. As mentioned above, actual lead emissions 

resulted in modeled concentrations of lead above the lead NAAQS at 9 

of 15 facilities. Thus, we note that allowable stack emissions of 

lead and other HAP metals and fugitive emissions of lead and other 

HAP metals must be reduced to assure that lead concentrations in 

ambient air beyond the facility fenceline are acceptable – that is, 

do not exceed the lead NAAQS. Therefore (the measure of risk 
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acceptability for exposure to air-borne lead in this rule). The fact 

that maximum individual cancer risks due to actual emissions are 

above 1 in a million also contributes to our determination of 

unacceptability, but to a lesser extent. While the estimated maximum 

individual cancer risks due to actual emissions would, by themselves, 

not generally lead us to a determination that risks are unacceptable, 

the fact that they occur along with the exceedences of the lead 

primary NAAQS adds to our concern about these exposures, and further 

supports our proposed determination that risks are unacceptable. To 

provide acceptable levels of risk with an ample margin of safety, we 

are finalizing the requirement that secondary lead smelting 

facilities must operatelocateoperate the following fugitive dust 

emissions sources withinin awithin total 

enclosuresenclosureenclosures that mustismust be maintained at 

negative pressure at all times and vented to a control device 

designed to capture lead particulate: smelting furnaces, smelting 

furnace charging areas, lead taps, slag taps, molds during tapping, 

battery breakers, refining kettles, casting areas, dryers, material 

handling areas managing lead bearing materials, and areas where dust 

from fabric filters, sweepings, or used fabric filters are processed. 

AsHowever, asAs further described in SectionsectionSection IV.C of 

this preamble, based on public comments, we are not adopting the 

proposed alternative to demonstrate compliance by monitoring lead at 
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or near thetheirthe property boundary based on a 3-month rolling 

average in lieu of constructing total enclosures. (See 76 FR at 

29056.)..) We are finalizing the proposed requirement for facilities 

to conduct fugitive emission work practices as well as to enclose 

fugitive emission sources. AsHowever, asAs further described in 

SectionsectionSection IV.C of this preamble, we are also promulgating 

a revised list of required work practices based on a number of 

comments received regarding the necessity and, efficacy, and safety

of the work practices whichpresented inwhich the EPA proposed rule. 

We are also finalizing the proposed requirement limiting 

stack lead emissions to 0.2 mg/dscm as a facility-wide emissions 

average and limiting stack lead emissions from any single stack to 

1.0 mg/dscm as proposed. 

After implementation of the controls required in this final 

rule, we estimate that there will be no one living in an areaat a 

census block centroidarea exposed to ambient concentrations above the 

NAAQS due to these facilities and the cancer MIR due to actual 

emissions will decrease from 50 in a million to 7 in a million.

B. Changes to the Technology Review Performed Under Conducted 

Pursuant to CAA Section 112(d)(6)

Based on the technology review under CAA section 112(d)(6), 

the EPA proposed to change the stack lead emission limits from 2.0 

mg/dscm for any individual stack to a facility-wide, flow-weighted 
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average emission limit of 0.20 mg/dscm with a limit of 1.0 mg/dscm 

applicable to any individual stack. The proposed limit was based on 

emissions data collected from industry, which indicated that wellperforming baghouses currently used by much of the industry are 

capable of achieving outlet lead concentrations significantly lower 

than the limit of 2.0 mg/dscm adopted in the 1997 MACT standard. We 

have considered the public commentscommentcomments on this issue and 

are adopting the limits as proposed. 

Under CAA section 112(d)(6), we also proposed a fugitive 

emission standard requiring operation of the following process 

fugitive emission sources in total enclosures that are maintained 

under negative pressure at all times and vented to a control device: 

smelting furnaces, smelting furnace charging areas, lead taps, slag 

taps, and molds during charging, battery breakers, refining kettles, 

casting areas, dryers, agglomerating furnaces and agglomerating 

furnace product taps, material handling areas for any lead bearing 

materials, and areas where dust from fabric filters, sweepings, or 

used fabric filters are processed. This proposed requirement was 

based on information collected from the industry that indicated that 

several operating facilities currently enclose most or all of their 

process fugitive emission sources, and that the ambient lead 

concentrations near these facilities are significantly lower than 

those facilities that do not have enclosures. We have considered the 
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public comments on this issue, and have decided to adopt the 

requirements largely as proposed. This requirement is identical to 

that adopted to eliminate unacceptable risk for fugitiveleadfugitive

emissions pursuant to CAA section 112 (f)(2). However, as described 

in SectionsectionSection IV.C of this preamble, based on public 

comments, we are not adopting the proposed alternative to demonstrate 

compliance by monitoring lead at or near their property boundary 

based on a 3-month rolling average in lieu of constructing total 

enclosures. (See 76 FR at 29056.)..) We are finalizing the proposed 

requirement for facilities to conduct fugitive emission work 

practices as well as to enclose fugitive emission sources. AsHowever, 

asAs further described in SectionsectionSection IV.C of this 

preamble, we are also promulgating a revised list of required work 

practices based on a number of comments received regarding the 

necessity and, efficacy, and safety of the work practices 

whichpresented inwhich the EPA proposed rule. 

We are also finalizing the requirement limiting stack lead 

emissions to 0.2 mg/dscm as a facility-wide emissions average and 

limiting stack lead emissions from any single stack to 1.0 mg/dscm as 

proposed. 

We note that although we have adopted the same standards 

under both CAA sections 112(f)(2) and 112(d)(6), these standards rest 

on independent statutory authorities and independent rationales. 
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Consequently, these standards remain independent and legally 

severable. 

C. Other Changes Since Proposal

We received over 30 public comments on the proposed rule. 

After considering these comments, we are making the following 

additional changes to the proposal. The rationale for these and any 

other significant changes can be found in this preamble and in the 

comment response document available in the docket. 

1. 1. Stack Emission Limits

• The EPA is not adopting numerical limits for THC and D/F 

emissions from rotary furnaces pending further data-gathering 

and analysis for this furnace type. 

• ForTheFor units constructed after June 9, 1994, the EPA is 

adding a limit for THC and D/F for collocated blast and 

reverberatory furnaces when the reverberatory furnace is not 

operating, and is amending for units constructed after June 9, 

1994, and is correctingamending the D/F limits for blast 

furnaces for units that commenced construction after June 9, 

1994. We also added a THC and D/F new source limit for blast 

furnaces that commence construction or reconstruction after May 

19, 2011. 

2. 2. Definitions

• Definitions have been added for “affected source” and “new 

source” to clarify when the standards for new sources would 

apply. 

• A definition of “lead-bearing material” has been added to the 

rule to clarify requirements for material handling area 

enclosures and work practices for fugitive emissions. 

• The definition of “material storage and handling” has been 

revised to exclude transfer of raw materials in enclosed 

containers. 

• The definition of “plant roadway” has been revised to exclude 

roadways inside total enclosures. 
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• The definition of “process vent” has been revised to specify 

that it includes only vents from lead processing equipment and 

from buildings containing lead bearing material. 

• Definitions for “leeward,””,,” “windward,””,” and “natural draft 

opening” have been added to the rule to clarify the differential 

pressure and monitoring requirements and the requirement to 

maintain an inward flow of air through enclosure openings. 

• The definition of “total enclosure” was modified by specifically 

including modified text from 40 CFR 265.1101 and EPA method 204 

“Criteria for and Verification of a Permanent or Temporary Total 

Enclosure” rather than citing the reference to the requirements 

for a hazardous waste containment area. We also clarified the 

requirement for total enclosures to be vented to a control 

device designed to capture lead particulates. 

3. 3. Enclosure Requirements

• The proposed requirement to maintain an in-draft velocity of 300 

feet per minute at enclosure openings (see 76 FR at 29072) was 

replaced with a requirement to maintain an inward flow of air 

through all natural draft openings. 

• The proposed requirement for a back-up power source for the 

differential pressure monitors required for the total enclosures 

(seeSeesee 76 FR at 29077) was eliminated, and a reporting 

requirement was added to identify periods when the power was 

lost to the monitoring system. 

• The proposed rule (seeSeesee 76 FR at 29072) has been modified 

to clarify that activities required for inspection of fabric 

filters and maintenance of filters that are in need of removal 

and replacement are not required to be conducted inside of total 

enclosures. 

• Lead ingot product handling, storm water and wastewater 

treatment, intact battery storage areas, and clean battery 

casing plastic handling activities are not subject to the total 

enclosure requirement. 

4. 4. Fugitive Emission Work Practice Requirements

• The proposed maintenance requirements (see 76 FR at 29073) have 

been modified to allow emergency repairs of ductwork or 

structure leaks to occur outside of enclosures if the time to 

construct a temporary enclosure would exceed the time to make a 

temporary or permanent repair. The proposed rule has been 

modified to extend the deadline for required maintenance and 
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repair on total enclosures to one week after identification of 

any gaps, breaks, separations, leak points or other possible 

routes for emissions of lead to the atmosphere. The final rule 

also clarifies that once an item that is not otherwise subject 

to total enclosure requirements has been cleaned, its 

maintenance is no longer subject to the enclosure requirement. 

• The proposed rule has been edited to allow for existing control 

devices to treat the ventilation from temporary enclosures 

constructed for maintenance purposes if the device and its 

permit account for increased airflow and emissions for this 

activity. 

• The roof washing proposed work practice (seeSeesee 76 FR at

29073) has been removed from the list of required fugitive 

emission work practices. 

• The specific proposed water application rate of 0.48 gallons per 

square yard (seeSeesee 76 FR at 29073) has been removed from the 

road washing requirement. 

• The proposed battery storage area inspection frequency 

(seeSeesee 76 FR at 29073) has been changed from twice per day 

to oncetwiceonce per week to maintain consistency with 

inspection frequency required under other regulatory programs. 

• The proposed requirement to collect wash water in a container 

that is not open to the atmosphere (seeSeesee 76 FR at 29073) 

has been removed. 

• The proposed rule (seeSeesee 76 FR at 29073) has been revised to 

clarify that lead-bearing dust must be collected and transported 

within closed conveyor systems or in sealed, lead-proof 

containers while other lead bearing material must be contained 

and covered in a manner that prevents spillage or dust 

formation. 

• The proposed requirement for cleaning after an accidental 

release (seeSeesee 76 FR at 29073) has been clarified to include 

only those releases that exceed the CERCLA reportable quantity 

for lead (e.g., 10 pounds). 

5. 5. Testing and monitoring requirements

• The performance testing requirements (seeSeesee 76 FR at 29074) 

have been modified to allow facilities to use EPA Method 12 or 

Method 29 for lead compounds. 

• A provision was added allowing for biannual testing of lead 

compounds and THC for sources that demonstrate concentrations 

that are less than 50 percent of the applicable limit. 
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• An exemption was provided for THC testing if a facility has a 

CEMS installed for and is using a THC. CEMS. 

• The time between D/F testing (seeSeesee 76 FR at 29072) was 

changed from once every 5 years to once every 6 years, in 

anticipation that most facilities would be on a biannual testing 

schedule for lead and THC, and this schedule would allow 

coordination of the two required tests. 

• The conditions for the performance tests (seeSeesee 76 FR at

29072) were changed from “under such conditions as the 

Administrator specifies...” to “maximum representative operating 

conditions for the process”. 

• The EPA also added a provision stating that sources which 

operate a HEPA filter or WESP system downstream of a primary 

particulate (lead) control device are not subject to a bag leak 

detection system (BLDS) requirement. 

6. 6. Other changes 

• A provision was added for sources to develop procedures to 

minimize emissions of THC and D/F emission limits during periods 

of startup and shutdown. 

• We modified the proposed plastic separation work practice 

requirement (seeSeesee 76 FR at 29072) to include only plastic 

battery casing materials from automotive batteries (which 

comprise the vast majority of input plastics). 

• The proposed recordkeeping and reporting requirements were 

revised to be consistent with the other changes made to the 

rule. 

A trackedred-linetracked changes version of the regulatory 

language incorporating the changes in this action is available in the 

docket. Additionally, a summary of the public comments that are not 

in the preamble can be found in the comment response document 

available in the docket. 

V. Summary of Significant Comments and Responses 

AAA. Use of Lead Primary NAAQS as a Measure of Acceptability of Risk 

for Public Health
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Commenters from both the environmental and industry sectors 

challenged the EPA’s use of the lead primary NAAQS as a measure of 

acceptability of risk in this rule. The EPA disagrees with these 

comments. The EPA has reasonably applied the lead primary NAAQS as a 

measure of evaluating acceptability or unacceptability of risk from 

exposure to lead emissions from sources in this category. The lead 

primary NAAQS targets protection to children living near sources, 

such as secondary lead smelters, who are exposed at the level of the 

standard -- the population most sensitive to the health impacts of 

these emissions. Moreover, using the lead primary NAAQS to assess 

acceptability of risk does not amount to an impermissible 

implementation of the lead primary NAAQS as industry commenters would 

have it. Full responses to these comments are found in the Response 

to Comment Document for this rulemaking, available in docket ID EPAHQ-OAR-2011-0344.

B. Total Enclosure Requirements

Comment: Several commenters supported a requirement for 

total enclosures of enumerated sources of fugitive emissions. Some of 

those commenters did not support the alternative that would have 

allowed ambient monitoring in lieu of total enclosures. 

According to one commenter, “The purpose of establishing 

emission standards and control technology regulations is to reduce, 

by empirically proven technical means, the release of hazardous air 
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pollutants into the atmosphere.” The commenter therefore recommended 

that the EPA require enclosures in all instances to limit fugitive 

emissions. 

According to another commenter, “The non-cancer and cancer 

risk reductions associated with total enclosures of all lead bearing 

processes to reduce fugitive emissions are clearly demonstrated for 

all facilities in the post control scenario contained in the residual 

risk assessment. These benefits also have been observed based on our 

experience with total enclosures that are under negative pressure and 

vented to air pollution controls....The annual geometric mean of lead 

measured [in ambient air near the facility] dropped from a high of 

0.71 μg/m3 (1987) to 0.06 μg/m3 (1993) after all of the point source 

and fugitive emission controls were in place. The benefits of 

requiring total enclosures as demonstrated by the ambient monitoring 

results were clearly apparent to the Department and surrounding 

community. Based on that experience, we do not support the 

alternative of allowing partial enclosures with an air monitoring 

requirement option in this rulemaking.”

Another commenter stated “We do not support allowing 

partial enclosures with an air monitoring requirement option, since 

the total enclosures have been shown to be extremely effective in 

reducing fugitive emissions of lead and the other metal HAPs from 

these sources.”
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One commenter indicated that neither proposed alternative 

(total enclosure or the ambient monitoring alternative) complies with 

CAA section 112(d)(6) but did state that “additional health risk 

reductions would occur if a facility used total enclosure.””..” This 

commenter also stated that the EPA should require total enclosures 

and work practice standards beyond those included in the proposed 

rule to control fugitive dust emissions of arsenic and cadmium and 

achieve reductions in cancer and non-cancer risks from these 

pollutants. 

Alternatively, one commenter disagreed that total enclosure 

is the most effective method to reduce emissions. According to the 

commenter, “Capturing emissions from secondary lead smelting sources 

at the point of emission and controlling such emissions through the 

use of baghouses equipped with secondary HEPA filtration systems 

represents a better alternative to constructing and maintaining total 

enclosures around secondary lead smelting sources.”

Response: As explained at 76 FR 29059 in the proposed rule 

and below, the EPA is amending the NESHAP for fugitive emissions of 

lead both because these emissions pose an unacceptable risk under CAA 

section 112 (f) and because it is technically appropriate and 

necessary to do so pursuant to section 112 (d)(6). With respect to 

what changes to adopt, we agree with those commenters who argued that 

total enclosures maintained under negative pressure are the most 
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effective means by which to reduce fugitive emissions. Facilities in 

this source category that implement total enclosures as a means of 

controlling fugitive emissions are able to achieve significantly 

lower ambient lead concentrations near the boundaries of their 

facilities, as clearly demonstrated in the Summary of Ambient Lead 

Monitoring Data Around Secondary Lead Smelting Facilities document 

available in the docket ID EPA-HQ-OAR-2011-0344. About half of the 

existing facilities currently have such full enclosures, and a few 

other facilities are currently constructing such enclosures. The 

prevalence of total enclosures in the secondary lead smelting source 

category suggestsdemonstratessuggests that this measure is clearly 

cost effective and it is clearly technically feasible. There is more 

certainty that fugitive emissions are well controlled through the use 

of total enclosures than would exist with the proposed alternative to 

use fenceline ambient monitoring. The work practice standards in the 

final rule have been revised from those proposed to ensure that there 

are no requirements that pose safety hazards, are unnecessary to 

achieve emission reductions, or result in duplicative burden on 

regulated facilities. The work practice standards in the final rule 

are already implemented at some of the facilities. 

Furthermore, we assumed at proposal that total enclosures 

would be required at all facilities regardless of which option they 

chose. The facilities that do not operate total enclosures are 
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unlikely to achieve fenceline ambient concentrations at or below the 

lead primary NAAQS. The monitoring data just mentioned and the ICR 

responses indicated that the facilities whichwhowhich have totally 

enclosed their processes are generally achieving ambient 

concentrations substantially lower than those whichwhowhich have not 

totally enclosed. Since we based our analysis at proposal on the 

assumption that all facilities would have to construct total 

enclosures, our analysis does and assumed that the rule would impose 

those costs on all sources which have not yetindicate additional cost 

burden associated with requiringyet installed total enclosures

without the alternative, our cost analysis has already accounted for 

ambient monitoring.the cost of total enclosure. See 76 FR at 29064 

and the cost impacts memo that supported the proposed rule 

(docketDocketdocket ID: EPA-HQ-OAR-2011-0344-0040). at page 8). The 

total enclosure requirements in section 63.544 ensure that process 

fugitive emissions sources and other fugitive dust emissions sources 

will not generate fugitive emissions that escape the facility 

uncontrolled. The work practice standards for process fugitive 

emissions sources and fugitive dust emissions sources in section 

63.545 ensure that fugitive dust is not generated outside of total 

enclosures and that fugitive dust generated inside total enclosures 

is not carried outside of those enclosures.
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We note that one commenter’s statements appear to pertain 

to process fugitive emissions from secondary lead smelters that are 

captured by enclosure hoods and vented to a control device. We agree 

that enclosure hoods near sources of process fugitive emissions 

(e.g., lead taps, charging hoppers, etc.) can be an effective method 

to control emissions from these sources. We also recognize that these 

devices are important to minimize exposure of workers to lead dust. 

However, we note that the enclosure hoods are not 100 percent 

effective at controlling these emissions, and that process fugitives 

that are amenable to control with hoods are not the only source of 

fugitive emissions from secondary lead processes. We thus disagree 

that enclosure hoods without total enclosures represent a better 

alternative for controlling all fugitive emissions.

Comment: Several commenters objected to requiring 

monitoring of both building pressure differential and the in-draft 

velocity at building openings for the total enclosures and stated 

that the duplicate monitoring requirements are redundant and 

unjustified. The commenters also requested that the EPA abandon its 

proposed specific minimum velocity requirement at doorway openings or 

lower the proposed requirement of 300 feet per minute. Two commenters 

stated that “A number of the existing total enclosures in this 

industry do not meet the proposed 300 feet per minute in-draft 

velocity requirement, and their modification to achieve 300 feet per 
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minute would require substantial expenditures.” One commenter stated 

that much larger volumes of air would be exhausted from the smelter 

buildings and that “the greater the volume of air exhausted, the 

greater the emissions of lead. Therefore increasing exhaust volumes 

above current levels could possibly have negative impacts.” The 

commenters requested an exemption from demonstration of compliance 

with the in-draft requirements for access points that are normally 

closed. One commenter requested clarification of the use of the terms 

“leeward” and “windward” in the context of the differential pressure 

monitoring. 

One commenter stated that they have demonstrated that none 

of these total enclosure monitoring requirements and continuous 

monitoring systems are necessary to reduce actual emissions of HAP. 

The commenter recommended continued compliance with the original 1997 

NESHAP, which requires facilities to demonstrate that total 

enclosures were maintained under constant negative pressure by 

maintaining process enclosure hoods at the prescribed face 

velocities. As an alternative, measurements of face velocity at 

doorways and windows and pressure measurements at prescribed 

intervals would provide a viable monitoring option. 

Response: We agree with the commenters that monitoring of 

both building differential pressure and in-draft velocity at building 

openings is unnecessary. However, we disagree that continuous 
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monitoring of differential pressure is overly prescriptive. We 

believe that monitoring of building differential pressure is the most 

accurate means by which to ensure that the building is under negative 

pressure at all times. This method provides direct measurements that 

the building is indeed maintained at negative pressure. Some 

commenters stated persuasively that specifying doorway velocities 

could require substantial additional in-draft, which could cause 

strain to building structures, wind chill problems for workers, and 

pilot lights being extinguished. We have therefore notremovednot 

adopted the proposed requirement to measure in-draft velocity at the 

openings of the total enclosures but have retained the continuous 

differential pressure monitoring requirement. However, we have 

altered the differential pressure requirement from 0.02 mm of mercury 

to 0.013 mm of mercury to be consistent with EPA Method 204’s 

criteria for verification of a permanent or temporary total 

enclosure. With regard to the comment that increased volumes of air 

exhausted through control devices would increase overall emissions, 

it is unclear to us how directing previously uncontrolled fugitive 

emissions through a fabric filter would increase the overall 

emissions from a structure.

Comment: Several commenters objected to requiring a back-up 

power source for the differential pressure monitors. According to the 

commenters, during a power outage, the “negative pressure would not 
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be maintained and the pressure drop monitors would simply be 

measuring and documenting this known and predictable fact.... The same 

information could be obtained by requiring facilities to note periods 

when power has been lost to the ventilation fans such that negative 

pressure could not be maintained.””..” One commenter recommended 

requiring an uninterruptible power supply for the control device as 

well as the total enclosure monitoring system or removing the current 

requirement. 

Response: We agree with the commenters’ assessment that a 

back-up power source for the building differential pressure monitors 

is not needed. We also agree with the 

commenters’commenter’scommenters’ suggestion to include a 

recordkeeping provision for power outages that occur for the building 

ventilation systems. The regulatory text has been edited accordingly.

Comment: Several commenters objected to the enclosure 

requirement at all areas where fabric filters are handled or 

processed. One commenter stated that “This is impractical in that all 

baghouses are not and cannot be located within enclosures. Therefore, 

in the replacement of used bag filters, there will always be a point 

in which the bags must be handled in order to get them into a closed 

container for transport.” Two commenters stated that “The first point 

at which used fabric filters are ‘handled’ is upon removal from the 

baghouse cell, usually on a catwalk running along the side of the 
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baghouse. It is not appropriate to require all such areas to be 

placed within total enclosures. Best practices in the industry when 

replacing fabric filters are to place the used filter bags in sealed 

plastic bags or other closed containers in the cell while the filters 

are being replaced, but prior to removing the used filters to the 

catwalk.””..”

Response: We agree that the proposed requirement to enclose 

all areas where fabric filters are handled or processed may be 

impractical at times, the enclosure of a catwalk being an example. We 

also agree that fabric filters cannot be enclosed under the 

circumstances described in these comments. We have therefore revised 

the regulatory text to require used fabric filters to be placed in 

sealed plastic bags or containers before removal from the baghouse 

cell. 

CBC. Work Practice Standard Requirements for Fugitive Emissions

Comment: Several industry respondents expressed concern 

about the proposed requirement to perform all maintenance activities 

for any equipment potentially contaminated with lead bearing material 

inside an enclosure. 

Two commenters requested clarification that once an item 

that is not already subject to total enclosure requirements has been 

cleaned, its maintenance or repair is not subject to the enclosure 

requirements. Both commenters also gave an example of circumstances 
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where the best course of action would be to make an immediate repair 

on a leak in an elevated duct rather than wait until a temporary 

structure was constructed. One commenter expressed concern that 

inspection and maintenance of filters that are in need of removal and 

replacement would need to be performed within a total enclosure. 

Two commenters stated that 72 hours to make repairs to any 

gaps or leak points in enclosures or structures was not feasible to 

implement. One commenter suggested that the rule “be changed to 

require initiation of repairs within 24 hours of discovery and 

completion of repairs as soon as practicable. Rather than seeking and 

obtaining approval for extensions from the Administrator, the source 

should be required to file and to keep a record listing when the 

problem was discovered, when the repair was initiated and when the 

repair was completed.” Another commenter stated that “the presence of 

leak points is irrelevant to collection as long as the size and 

location of these leak points does not change over time. Once a 

facility documents that any total enclosure criteria (for negative 

pressure) are met, the presence of existing leak points is 

irrelevant.” 

One commenter requested that the EPA allow facilities to 

route emissions from partial or temporary enclosures to control 

devices that meet the performance requirements stated in the rule. 

According to the commenter, “This compliance option is requested, 
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because as written, the provisions would require manufacturer’s 

specification alone and not allow use of an otherwise compliant 

control device.”

Response: With regard to the comment that the proposed 

maintenance practices in the proposed rule were overly prescriptive, 

we have revised the regulatory text to require performance of 

maintenance “in a manner that minimizes emissions of fugitive dust” 

that includes several options to control fugitive emissions. With 

regard to the comment pertaining to inspection and maintenance of 

fabric filters, we have edited the regulatory text such that this 

enclosure requirement does not apply to inspection and maintenance 

practices for fabric filters.

We also agree with commenters that making prompt and timely 

repairs for leaks is often more effective than first constructing a 

total enclosure around the leak. However, we believe that the 

formulation to initiate repairs “as soon as practicable” is too 

vague. We have edited the regulatory text to require completion of 

repairs to enclosures within one week and inserted language allowing 

facilities to initiate immediate repairs of ductwork or structure 

leaks without an enclosure provided that the time necessary to 

construct a temporary enclosure would exceed the time necessary to 

make a temporary or permanent repair. This change ensures that the 

requirement is technically practicable and the most cost-effective 
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means for fixing leaks while minimizing the period during which the 

leak causes emissions. 

We disagree with the commenter that the presence of a leak 

point is irrelevant to collection as long as the size and location of 

these leak points do not change over time. Total enclosures are 

designed with openings of specific size and location to provide 

appropriate airflow into a building and to maintain the negative 

pressure at all locations. Multiple leak points at different 

locations of non-uniform size would be difficult to measure and 

document. It would also be difficult to ensure that the building 

negative pressure is uniform at all locations.

We agree with the commenter that facilities should be 

allowed to route emissions from partial temporary enclosures to 

existing control devices that meet the performance specification 

stated in the rule provided the control device has the capability to 

accommodate the additional air flow and that its permit accounts for 

the additional air flow and emissions. The regulatory text has been 

edited accordingly. 

Comment: Several commenters expressed concerns about the 

requirement in the proposed rule for cleaning of building rooftops. 

The commenters stated that the EPA did not provide a basis to 

demonstrate that roof washing is effective or necessary. One 

commenter stated that roof cleaning was unnecessary to operate in 
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compliance with the current lead NAAQS, and that current work 

practices are sufficient to meet the standard. Several commenters 

also stated that roof cleaning is potentially dangerous to workers 

and in some cases not possible due to the rooftop construction and 

weather conditions. Several commenters noted that the requirement 

unnecessarily applied at all times, even when natural precipitation 

makes cleaning unnecessary.

Response: We agree that the proposed roof washing 

requirement may not be feasible and may cause worker safety hazards 

in some cases, and we have therefore removed this activity from the 

list of required fugitive emission work practices.

Comment: Several commenters opposed the specific 

requirement for a mobile vacuum sweeper used for pavement cleaning 

when a water flush is used. The commenters stated that the EPA 

provides no justification for the minimum water application rate of 

0.48 gallons per square yard of pavement cleaned or evidence that 

equipment currently used could achieve this rate. The commenters 

suggested that this specific requirement be replaced with a 

“requirement that pavement be periodically cleaned, leaving methods, 

and minimum water application rates to individual facilities and, as 

relevant, their permitting authorities.” According to the commenter, 

“EPA should further exempt pavement cleaning on days when natural 

precipitation makes cleaning unnecessary or when sand or a similar 
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material has been spread on plant roadways to provide traction on ice 

or snow.” 

Two commenters also expressed concerns that the rule 

requires pavement cleaning in the battery breaking, furnace, refining 

and casting areas when a total enclosure is not used. According to 

the commenters, certain locations within these areas are not capable 

of being cleaned on a routine basis due to safety, access, or other 

reasons. The commenters give an example of paved areas under process 

equipment as being an area that is not safe to access during 

operation of the equipment. One commenter also stated that roadway 

cleaning and washing of truck tires and undercarriages are redundant 

requirements with no incremental benefit. 

Response: We agree with the commenters’ suggestion to 

remove the minimum water application rate requirement from the 

regulatory text. We note that the proposal did include an exemption 

for cleaning on days when natural precipitation makes cleaning 

unnecessary or when sand or a similar material has been spread on 

plant roadways to provide traction on ice or snow. That exemption 

remains in the final rule. See 40 CFR 63.545(c)(2).

With regard to the comments regarding pavement cleaning 

requirements when total enclosures are not used, we note that the 

final rule requires total enclosures rather than including them as an 

option. Furthermore, it is our understanding that in the cases where 
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mobile sweeping or wet washing equipment is not feasible (e.g., 

underneath process equipment), facilities can utilize hand held 

vacuum equipment to clean these areas. Therefore, we do not believe 

it is appropriate to exempt these areas from the cleaning 

requirements since these areas contain fugitive lead which can be 

emitted and reach human and environmental receptors.

We disagree with the commenter that roadway cleaning and 

undercarriage washing are redundant requirements. While truck tires 

may be a significant source of lead bearing material on the roadway, 

we understand that they are not the only source. Therefore, we have 

maintained both requirements in the final rule.

Comment: One commenter recommended modifying the 

requirement to pave “all areas subject to vehicle traffic” to “all 

areas subject to routine vehicle traffic.” The commenter noted that 

areas not subject to routine traffic do not have the potential to 

generate significant quantities of fugitive dust and that paving 

these areas would increase the amount of storm water generated.

Response: We agree with the commenter that there may be 

some instances where paving and cleaning a roadway is impractical. We 

have included an exemption in the rule for limited access and limited 

use roadways that access remote, infrequently used locations on the 

facility’s property. See 40 CFR 63.545(c)(2).
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Comment: Two commenters objected to the proposed frequency 

of inspection of the unenclosed battery storage areas. One commenter 

“finds this requirement to impose an administrative burden of minimal 

value.” According to the commenter, “Spent lead acid batteries, even 

if accidentally broken and leaking, pose minimal potential for 

generation of fugitive dust containing HAPs. Inspection of these 

areas is typically required on a weekly basis as part of the 

facilities’ Resource Conservation and Recovery Act obligations and 

such frequency is sufficient to satisfy the intent of this proposed 

rule as well.” One commenter suggests that identifying and mitigating 

leaks within 72 hours will prevent generation of fugitive lead 

emissions. The commenter also states that it is unclear whether 

batteries stored in partial enclosures are exempted from the twice 

daily inspection requirement and proposes the following regulatory 

language incorporating both of these issues. 

You must inspect any batteries that are not stored in a 

partial or total enclosure once each day and move any 

broken batteries to a partial or total enclosure within 72 

hours of detection. You must also clean residue from broken 

batteries within 72 hours of identification. Storage of 

batteries in trucks and railcars consistent with Department 

of Transportation requirements are specifically exempted 

from these requirements. 
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Response: We agree with the commenters that requiring 

inspection of these areas on a twice daily basis is not necessary. We 

have modified the regulatory text to require inspection of these 

areas oncetwice per weekonce per week – consistent with requirements 

implementing the hazardous waste subtitle of RCRA (see 40 CFR 

sections 264.174 and 264.1101(c)(4) (and the EPA sees no reason to 

deviate from these long-standing requirements here, given that they 

were adopted to be “protective of human health and the environment” 

from management of hazardous waste) - with removal of broken 

batteries within 72 hours of detection. We have also clarified that 

the inspection requirement does not apply to battery storage areas 

that are in a total enclosure. We do not believe that an exemption 

for storage of batteries in trucks and railcars is necessary since 

the inspection frequency was reduced to oncetwiceonce per week.

Comment: One commenter objected to the requirement to 

collect wash water in a container that is not open to the atmosphere. 

The commenter stated that “Covering of these collection tanks is not 

necessary because lead dissolved and/or suspended in water does not 

have a pathway for becoming a fugitive emission.” 

Response: We agree with the commenter that so long as the 

contents in the container are wet, there should be no fugitive 

emissions. We have removed the requirement to collect wash water in a 

sealed container. 
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Comment: Two commenters requested changes to the 

requirement to transport lead bearing materials in sealed leak-proof 

containers. One commenter proposed that containers be “covered” 

rather than “sealed leak-proof” and that an exemption be made for 

off-road dump trucks. The suggestion was made because “sealed leakproof containers ...cannot be attained, but covers can be for most 

trucks used in such transport....no approved sealing covers are made 

for the 30-ton, 6-wheel, off-road dump trucks used at the facility.” 

One commenter supported the requirement for transporting lead bearing 

materials within an enclosure or in a sealed container, but suggested 

that lead bearing materials with little potential for production of 

fugitive lead dust from transportation should be excluded, including 

intact batteries, raw materials with lead content that is not 

considered recoverable such as iron, caustic, coal, wood, sulfur and 

other similar materials, and products from the recycling process. 

Response: We agree that the proposed requirement for 

material transport should be modified. The intent of the proposed 

requirement was to prevent fugitive lead dust formation outside of a 

total enclosure. We have therefore modified the requirement at 

63.545(c)(7) to read as follows: 

“You must transport all lead bearing dust within closed 

conveyor systems or in sealed, leak-proof containers, unless the 

transport activities are contained within an enclosure. All 
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other lead bearing material must be contained and covered for 

transport outside of a total enclosure in a manner that prevents 

spillage or dust formation. Intact batteries and lead ingot 

product are exempt from the requirement to be covered for 

transport.” 

The definition of lead bearing material in the rule 

clarifies that lead content below the threshold of bearing materials 

must contain at least 100 ppm of lead (measured via 

ToxicityTCLPToxicity Characteristic Leaching Procedure (EPA Method 

1311) lead test results <5 mg/l) is). Intact batteries and lead ingot 

product are excluded from this requirement. 

Comment: Some commenters agreed that the secondary lead 

facilities operate a separation process at their battery breakers to 

separate polypropylene battery case material as a valuable recyclable 

commodity. However, not all spent lead acid batteries are amenable to 

separation. Certain battery types such as small sealed-lead-acid 

batteries and certain industrial lead-acid batteries are fed into the 

blast furnace without ever passing through the facility’s battery 

breaker. These batteries are either too small or too large to be 

broken by the automated battery breaking equipment. One commenter 

requested that the EPA estimate the cost of the systems that would be 

required. Another commenter offered that mandatory separation could 

be used for facilities that are not meeting TEQ limits as one of 
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several options to reduce emissions. Two commenters stated that the 

current dioxin emission levels pose no incremental health risk 

presented by background dioxin and that there is no valid 

justification for imposing this burden.

Response: Based on these comments, we have revised the 

proposed plastics separation work practice requirement to be specific 

to automotive batteries, which should be amenable to separation based 

on current practices used in the industry. We agree with the 

commenters that some industrial batteries are not easily processed in 

battery breakers and that the retrofits or additional equipment 

required to process such batteries are not justified since automotive 

batteries make up the vast majority of lead acid batteries processed 

at these facilities. We believe that plastics separation from 

automotive batteries is sufficient to minimize emissions of organic 

HAP. We further note that the use of battery breakers to separate 

plastics from automotive batteries is clearly a development in 

practices that limits emissions of organic HAP, including dioxin, and 

is therefore an appropriate partwork practicepart of a standard under

CAA section 112(d)(6). 

DCD. Emission Standards for Organic HAP from Rotary Furnaces

Comment: We received several comments on the proposed D/F 

and THC MACT floor limits for the rotary furnace subcategory that 

were based on data (two test runs, see 76 FR at 29049) from the slag-
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processing rotary furnace at RSR’s Middletown, NY facility. One 

commenter stated that rotary furnace standards should not be based on 

emissions that are not from stand-alone rotary furnace operations. 

The commenter stated that the EPA should not derive standards for 

rotary furnaces from performance of a different source type or 

subcategory that includes a furnace combination (i.e., 

reverberatory/short rotary furnace). The commenter also contends that 

there are insufficient data available to establish limits for D/F and 

THC from rotary furnaces. The commenter contends that the EPA used 

one source that is not representative of or similar to true rotary 

furnace operation to establish the limits for “rotary furnaces.” The 

commenter stated that the emissions limit established in the proposed 

rule is arbitrary because it is not based on operations of rotary 

furnaces using lead bearing materials from lead acid batteries as 

feedstock.

The commenter notes that RSR’s Middletown, NY facility, 

whose test data were used as the basis for the THC and D/F limits, 

only uses their rotary furnace to process one type of lead bearing 

material, reverberatory slag, and this furnace is not representative 

of the full capabilities of rotary furnace operation. The commenter 

notes that JCI’s Florence Recycling Center plans to utilize standalone rotary furnaces to process lead paste, battery components, and 

“other materials with recoverable quantities of lead.” The commenter 
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further notes that the emissions from RSR’s short rotary furnace 

(SRF) and drying kiln are combined, and it is unclear from 

information in the docket whether testing of the SRF occurred at a 

location prior to the combination of these exhaust streams.

The commenter also stated that JCI and RSR differ in raw 

materials used in the facilities’ operations. RSR’s Title V 

application for its Middletown facility indicates that RSR may 

process automotive, industrial, and specialty-type lead-acid 

batteries as well as lead bearing materials received from lead-acid 

battery manufacturing plants and scrap metal in its reverberatory 

furnace. JCI’s furnace feed is from automotive and marine batteries 

and from lead bearing materials from other JCI facilities. The 

commenter contends that, since the EPA considered no data 

representative of a rotary furnace operation such as that which will 

be operated at the JCI Florence Recycling Center, a numeric limit for 

this category cannot be assigned.

One commenter also stated that the stack test for RSR’s SRF 

that was used to develop D/F and THC emission limits for “rotary 

furnaces” included only two successful test runs and therefore must 

be considered inadequate for setting emission limits since 40 CFR 

63.7(e)(3) requires three test runs for compliance demonstration 

purposes.
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One commenter supports the individual stack emission limits 

for THC and D/F but provides comment on the EPA’s consideration of 

statistical variability for the rotary furnace subcategory. The 

commenter stated that the Upper Prediction Limit (UPL) tends to 

inflate the variability because the statistical procedure attempts to 

accommodate the highest emission measurement at the same facility and 

not necessarily the variability between facilities as the MACT floor 

is intended to achieve. Additionally, the UPL is very dependent on 

the number of valid samples. The commenter contends that, when a 

suitable number of samples have been collected, the 99% percent

confidence limit (CL) represents a range for which there is 99%

percent certainty that the interval contains the true mean. The 

commenter suggests that caution be used when determining a MACT floor 

from limited test data and that the 99% percent CL is more 

appropriate for this particular industry.

One commenter noted that the EPA did not consider a 

secondary lead smelting facility in Puerto Rico that operates a 

stand-alone rotary furnace. The commenter contends that even if it 

were appropriate to set MACT floor emission rates or standards for 

rotary furnaces, the EPA would have to obtain and consider data from 

the Puerto Rico facility. According to the commenter, failure to 

consider data from the facility “undermines the RTR Proposed Rule and 

any attempt by EPA to establish emission standards for the rotary 
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furnace subcategory.” The commenter contends that the EPA should 

issue a separate ICR for the Puerto Rico facility and publish a 

supplemental notice of proposed rulemaking that takes into account 

the emission information for this facility.

Response: The EPA agrees that rotary furnaces fueled by 

natural gas could be different from rotary furnaces operating using 

different fuel types, and that rotary furnaces processing slag could 

be different types of rotary furnaces than those processing lead acid 

batteries. More basically, the EPA simply has insufficient data on 

which to promulgate organic HAP standards for rotary furnaces. The 

proposed standardsstandard wasstandards for THC and D/F were based on 

less than one single complete test, consisting only of two test runs 

from the natural gas fueled rotary furnace processing slag. See 76 FR 

at 29049-29050. (A complete test consists of three test runs.) When 

calculating variability using a limited dataset (in this case, the 

two test runs) the effect of variability can be substantial. See 76

FR at 29049. Id. The proposed THC and D/F standards likewise were 

based on two test runs and similarly reflected enormous statistical 

variability due to the limited data. Id. at 29049/1. The EPA does not 

believe that these data are sufficient to adopt a standard even for 

the rotary furnace which was tested, much less a rotary furnace which 

may be different. Accordingly, we are not adopting standards for 

organic HAP emissions from rotary furnaces at this time and instead 
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we intend to issue CAA section 114 information requests to sources 

operating rotary furnaces to obtain more representative emission data 

and plan to propose standards for organic HAP in a future action. 

However, we note that the lead emission standards included in this 

action do apply to rotary furnaces processing slag or lead acid 

batteries. 

EDE. The EPA’s Risk Assessment Supporting the Proposed Rule

Comment: Two commenters stated that the EPA’s methodology 

is unreliable and incorrect. The commenters stated that the EPA 

overestimated the baseline fugitive emissions for the Exide Frisco 

facility whose (faulty) estimates then became the basis for 

estimating all other facilities’ fugitive emission rates. The 

commenter stated that the EPA scaled Exide’s reported fugitive 

emissions of 0.296 tpy for the blast and reverberatory furnace 

fugitive emissions to 0.32 tpy based on the assumption that fugitives 

wouldwouldn’twould not be on the same operating schedule as process 

emissions. The commenter contends that this scaling is inappropriate 

since furnace fugitives can only occur when the associated process 

furnaces are operating. The commenter further stated that the EPA

then also double-counted the fugitives of 0.32 tpy by assigning the 

value to each of the blast and reverberatory furnaces, despite the 

fact that Exide reported the value as combined emissions for both the 

reverberatory and blast furnace.
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Response: TheWe recognize the errorThe commenter is correct

in boththeboth respects. The EPA has accordingly adjusted its

calculation of the fugitive emissions from Exide’s Frisco facility 

and have(thereby reducing the facility’s fugitive dust emissions 

estimate) and adjusted the emissions estimates for each facility 

toaccordinglyto reflect the revised estimate of the Frisco facility. 

The resulting risk results have also been adjusted. We note that the 

updated emissions estimates and risk results did not substantively 

alter our decisions under section 112(f). The modeling showed 9 of 

15 facilities above the lead NAAQS, down from 12 of 14 facilities at 

proposal. The maximum modeled lead concentration in the source 

category decreased from about 23 times the NAAQS to about 16 times 

the NAAQS. We still find that risks from this source category are not 

acceptable and that revisions under section 112 (f)(2) are therefore 

required, and further find that it is necessary under section 

112(d)(6) to revise the standards for fugitive emissions considering 

the developments in cost-effective control technologies for their 

control.

Comment: Three commenters stated that the EPA’s 

multipathway risk estimates are incorrect because they relied on 

incorrect dioxin and furan emissions from Exide’s Frisco, Texas 

facility. The commenters contend that a dioxin and furan test 

conducted in October 2010 at the Frisco facility revealed an 
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emissions rate of 6.2E-08 tons/year on a toxicTEQtoxic equivalency 

quotient (TEQ) basis, 69 times lower than the estimate used by the 

EPA. One commenter noted that the exact effect that the difference in 

emissions would have on the calculated risks is unknown since the EPA 

has not placed the full methodology behind its multipathway risk 

calculations in the record. However, the commenter noted that 

assuming the relationship between emissions and risk is approximately 

linear, the EPA’s calculated risk would be approximately 69 times 

lower, than that estimated at proposal and less than 1 in a million. 

The commenter further requested that the EPA disclose its 

multipathway risk calculation methodology and allow for public 

notice-and-comment. AnotherOneAnother commenter statedexpressed 

concernstated that the EPA’s overestimation of dioxin and furan

emissions may lead to unwarranted public concern about the Frisco 

facility. The commenter requested that the EPA include a clarifying 

explanation regarding the Frisco emissions data and the lower 

multipathway risk in the final rule as well as in the risk assessment 

document.

Response: As noted in previous responses, the final risk 

assessment reflectsconsideredreflects updated emission information 

received during the public comment period for the proposed rule. We 

also note that the updated dioxin/furan test data were not made 

available to the EPA, despite repeated requests, until June 2011.
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With respect to the estimated emissions of D/F, the commenter is 

correct that EPA overestimated these emissions at proposal by a 

factor of 69 for the reasons stated. Considering this updated 

emissions information, the EPA estimates that multipathway risk 

associated with the Exide Frisco facility is less than 1 in a 

million. (and so contributes very little to the estimates of risk 

posed by this source category, and is not a driver of the 

determination that risks from this source category are unacceptable).

See Residual Risk Assessment for the Secondary Lead Smelting Source 

Category, available in the docket, at pages 32-33. 

This additional information does not warrant any reopening 

of the proposed rule or comment period, however. First, the EPA fully 

disclosed its multipathway risk methodology; the commenter’s 

assertions to the contrary are simply mistaken. ThusTheThus, the risk 

assessment document along with its appendices was available in the 

docket for the proposed rulemaking and describes in detail the 

methodology used in the assessment. See theThethe Residual Risk 

Assessment for the Secondary Lead Smelting Source Category, at page 

10, available in the docket. Also see docketDocketdocket ID EPA-HQOAR-2011-0344-0037 for a thorough discussion of the EPA’s human 

health multipathway risk assessment methodology. 

Second, the new information reinforces the tentative conclusion 

the EPA reached at proposal: risks associated with emissions of 
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dioxin and furans from the secondary lead source category are not 

primary drivers in the unacceptable risks from this source category.

(i.e. dioxin and furan emissions are not the reason that risks from 

secondary lead smelter emissions are unacceptable). See 76 FR at 

29055/2. The new analysis reinforcesindicates thatreinforces that 

risks posed by dioxin and furan emissions are acceptable, since 

emission levels are 69 times less than estimated at proposal (when 

risks from CDD and CDFs were already considered to be at an 

acceptable level). Thus, this already acceptable level of risk is 

less than estimated and less than one in a million., but (obviously). 

The EPA does not alter the conclusion. Thus,agree that further 

comment on this issue is warranted, since further comment would not 

have a practical effect on the rule. 6

CommentEComment: One commenter stated that the EPA 

inappropriately summed risks from the inhalation and multipathway 

risk assessments at the Exide Frisco facility. The commenter noted 

that it is impossible for the person with the highest chronic 

inhalation cancer risk to also be the same person with the highest 

individual multipathway cancer risk since the two MIR values are 

location dependent and are at locations that are widely separated. 

The commenter further noted that the EPA has indicated in other 

 

6 The comment that EPA’s standards for dioxin and furans do not result in 

significant risk reduction is misplaced given that the EPA is not adopting any 

risk-based (i.e..,. section 112 (f)(2)) standards based on the need for reduction 

of emissions of dioxin and furan. 
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contexts that when populations are exposed via more than one pathway, 

the combination of exposures across pathways must also represent a 

reasonable maximum exposure.

Response: The EPA disagrees with the commenter. While highly 

unlikely (and noted as being highly unlikely in the risk assessment 

document), it is theoretically possible for the person with the 

highest chronic inhalation cancer risk to also be the same person 

with the highest individual multipathway cancer risk. The EPA notes 

that the multipathway risk assessment does not provide a specific 

location for the MIR; thus, it is possible (although highly unlikely) 

that the person with the highest inhalation MIR is also consuming 

fish (at the fish ingestion rates described in the multipathway 

report) from the theoretically contaminated lake. That being said, 

however, we note that considering updated emissions information for 

this facility, updated multipathway results indicate multipathway 

risk associated with the Exide Frisco facility are well below 1-in a 

million. Considering these updated results, multipathway risk would 

not appreciable add to any inhalation risk associated with this 

facility. 

Comment: Commenter 94 stated that the EPA improperly calculated 

the inhalation cancer MIR for the Exide Frisco facility in a vacant 

field to the north of the facility within the facility’s property 
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line. The commenter noted that the lifetime cancer risk of the MEI 

cannot be at a location within the facility property line. 

Response: The commenter is correct and the EPA has corrected the 

receptor location resulting in a change in the results in the final 

risk assessment. The MIR for this facility is now located at a 

populated census block (based on the 2001 census).

F. Miscellaneous Changes to the Regulatory Text

Comment: Three commenters requested that the EPA replace 

the term “modified source” with “reconstructed source.””..” Neither 

the proposed rule nor the EPA’s general Part 63 regulations define 

the term “modified source.””..” The term is defined in the CAA, but 

that definition would require a source to install maximum achievable 

control technology and impose a “new source” requirement like CEMS on 

a modified source, rather than appropriately imposing the existing 

source provisions that do not require installation of a CEMS.

Response: The term “modified source” appeared in the 

proposed rule at 40 CFR 63.548(l) under the proposed requirement to 

install a CEMS for measuring lead emissions on all new or modified 

sources. We agree with the commenter that the terminology of 

“reconstructed” source would be more appropriate for this requirement 

and have changed the regulatory language accordingly. 

Comment: Three commenters requested clarification of the 

term “affected source” as used in the proposed rule. The proposed 
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rule uses the terms “new sources”, “existing source” and “modified 

source” without clarifying whether it is referring to secondary lead 

smelters generally, or to potential emissions sources within 

secondary lead smelters. There is a seeming contradiction between the 

use of the term “affected source” in the proposed rule and the 

definition in 40 CFR Part 63, Subpart A general provisions. One 

commenter also understands that the terms “new sources” and “existing 

sources”, as used in the proposed rule, are consistent with the 

definitions as used in CAA § 112(a). The commenter “understands EPA 

intends to address any addition of units to an “existing source” 

consistent with the provisions of the CAA” and understands that the 

analysis as explained in Nine Metal Fabrication and Finishing Area 

Source Categories, 40 CFR Part 63 (6X) NESHAP, Questions and Answers, 

April 2011 would apply with respect to implementation of any 

amendments to subpartSubpartsubpart X requirements. The Q&A explains 

that the “CAA uses the word “source”’source’ to mean the entire 

facility in terms of the classification of “new”’new’ vs. 

“existing”’existing’ whereas for the Subpart 6X rule, what is 

referred to as the “affected source”’affected source’ is actually one 

of the processes at the facility”.

Response: The EPA has clarified the application of these 

terms has been clarified in the final rule. The definition in 40 CFR 

partPartpart 63, subpartSubpartsubpart A requires each relevant 
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standard to define the “affected source,” as the collection of 

equipment, activities, or both within a single contiguous area and 

under common control that is included in a CAA section 112(c) source 

category or subcategory for which a section 112(d) standard or other 

relevant standard is established pursuant to CAA section 112 of the 

Act unless a different definition is warranted based on a published 

justification as to why this definition would result in significant 

administrative, practical, or implementation problems and why the 

different definition would resolve those problems. We have adopted a 

definition of “affected source” in this rulemaking as any of the 

listed individual sources at a secondary lead smelter. This 

application of the term “affected source” is the same as was used in 

the 1997 NESHAP for secondary lead. The term “affected source” is 

used in the final rule primarily in the context of new sources. This 

definition is appropriate for the secondary lead source category 

because the chiefprimarychief source of emissions from these 

facilities are the furnaces, and as these furnaces are replaced or 

reconstructed, the replacement equipment would be subject to the 

standard for a new source.

A “new source” has also been defined as any affected source 

at a secondary lead facility that undergoes construction or 

reconstruction after May 19, 2011, the date of the proposed rule.CAA 

section 112(f)(2) and 112(d)(6) rules. A building that is constructed 
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for the purpose of controlling fugitive emissions from an existing 

source is not considered to be a new source because it is effectively 

a control device for fugitive emissions.

Comment: One commenter noted that the last sentence in the 

current definition of “Materials storage and handling area” has been 

deleted in the proposed definition. This sentence reads: “Materials 

storage and handling area does not include areas used exclusively for 

storage of blast furnace slag.””..” The commenter disagreed with the 

EPA’s assessment that this is a minor change. “EPA should provide an 

explanation of what changed circumstances justify a new rule.””..”

Two other commenters requested that the definition be modified to 

exclude the transfer of raw materials of any type in enclosed 

conveyors. The commenter stated that “as currently worded, the 

enclosure requirement proposed would apply to handling of fabric 

filter dust in enclosed conveyors, containers, or in wet slurried 

form, which is unnecessary.””..” The commenter suggested revising the 

definition to include the following: “Material storage and handling 

area shall not include any closed containers or enclosed mechanical 

conveyors.”

Response: A definition of “lead bearing material” has been 

added to the final rule. Rather than include or exclude any one 

particular material in the definition of “materials storage and 

handling area” based on the originating process, this definition 
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establishes lead content as the criterion for determining whether 

materials must be handled in such a manner as to prevent lead dust 

formation. The definition of “materials storage and handling area” 

remains essentially unchanged from the definition in the proposed 

rule.

Fugitive dust formation has been identified as the major 

contributor to ambient lead concentrations near secondary lead 

smelters. Piles where lead bearing materials are stored were 

identified as one of the major sources of fugitive lead emissions. 

However, there was no definition for lead-bearing material in the 

proposed rule that could be used to make a determination of which 

materials needed to be handled in a manner that prevents dust 

formation. By adding a definition of “lead bearing material” to the 

rule, we have clarified and quantified the definition of “materials 

storage and handling area.””..”

The EPA is using the Toxicity Characteristic Leaching 

Procedure (TCLP), EPA Method 1311 to measure which materials are 

lead-bearing, and using the characteristic level of 5.0 mg/l (in the 

extract from the test) as the specific level for being lead-bearing. 

See 40 CFR 261.24. This assures that only materials with at least 100 

ppm total lead will be considered to be ‘lead-bearing’. See EPA 

Method 1311 section 2.2 which describes that the liquid to solid 

ratio of material tested should be 20:1 (i.e. 5 mg/l in the TCLP 
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extract is equal to at least 100 ppm in the material being tested). 

The specific definition of lead bearing material chosen ensures that 

all materials that contain relatively substantial amounts of lead 

(0.01 percent) are included while minimizing additional testing 

burden for facilities who must determine what does or doesdoesn’tdoes

not meet the definition. Testing burden is minimized because 

facilities already use the TCLP to determine whether or not the 

wastes they manage are hazardous, pursuant to subtitle C of the 

Resource Conservation and Recovery Act. Imposing a different 

threshold for defining material as “lead bearing” could thus impose 

duplicative or conflicting requirements between subpart X and other 

regulatory regimes. Secondary lead smelters are already required to 

determine whether materials meet the definition we’ve chosen for 

compliance with RCRA requirements related to how material is handled 

and disposed of.Furthermore, the TCLP is a test protocol which 

includes a grinding step, which is a conservative measure of 

determining whether a material could generate fugitive emissions. See 

Method 1311 steps 7.1.3 and 7.2.10. 

To address the concern that fabric filter dust in enclosed 

conveyors, containers or wet slurries must be additionally handled 

only inside an enclosure, we have added an exemption from the 

enclosure requirement for materials that are “lead bearing” but are 

not expected to generate fugitive lead dust. While these materials do 
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contain lead in amounts that could otherwise meet the definition of 

lead bearing material, they are either in a stabilized form that will 

not create fugitive dust or in a container that prevents fugitive 

dust formation. These materials include: lead ingot products, 

stormwater and wastewater, intact batteries, lead bearing material 

that is stored in closed containers or enclosed mechanical conveyors, 

and clean battery casing material. 

Comment: One commenter requested a change to the definition 

of “plant roadway” specifically to exclude finished lead product 

storage areas and roadways or traffic areas located within enclosed 

buildings.

Response: We accept the commenter’s suggestion to exclude 

roadways or traffic areas located within enclosed buildings from the 

definition of “plant roadway.” However, we do not believe that it is 

appropriate to exclude finished lead product storage areas since 

these areas may be located in close proximity to areas that may 

require cleaning (e.g., slag storage areas).

Comment: One commenter requested a change to the definition 

of process vent. As currently drafted, it appears overly broad and 

could lead to confusion concerning the ventilation systems that must 

be tested. 

Response: We have made revisions to the regulatory text to 

clarify that the term “process vent” includes various process vents 
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and vents from buildings containing lead bearing material. Vents from 

office or other non-process areas are not considered to be process 

vents. 

Comment: Two comments were received on the terminology used 

for a lead CEMS. According to the commenter, “Paragraph 63.548(m) 

specifies that lead CEMS be ‘“‘continuous emission rate

monitors.".’”.." The standard is a concentration standard, not an 

emission rate standard, so the term "“"continuous emission rate

monitor"”" is not appropriate”. Since flow and concentration monitors 

are needed to calculate compliance with the flow weighted average, 

one commenter recommended a requirement for flow and concentration 

monitors rather than citing a type of monitoring system that is not 

applicable to the standard.

Response: We agree with the commenter that the term 

continuous emissions rate monitor is not appropriate. We have 

replaced the term “continuous emissions rate monitor” with 

“continuous emissions monitoring system”..””.

Comment: Two commenters noted that the term “accidental 

release” is not defined in the rule. The commenters recommended that 

the EPA use the CERCLA reportable quantity threshold of 10 pounds to 

define an accidental release of lead-containing dust. Two commenters 

recommended that the requirement to initiate cleaning within one hour 

of a release be changed to require that the facility initiate 
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cleaning activities within one hour after discovery of an accidental 

release.

Response: We accept the commenters’ suggestion to use the 

CERCLA reportable quantity threshold of 10 pounds to define an 

accidental release of lead-containing dust. We also accept the 

commenters’ suggestion to require initiation of cleaning within one 

hour of discovery of an accidental release.

Comment: One commenter recommended that the definition of 

“maintenance activity” be changed from “any of the following routine 

maintenance and repair activities that generate fugitive lead dust:” 

to “any of the following maintenance and repair activities when they

generate fugitive lead dust:” 

Response: We do not agree with the commenter’s proposed 

change to the definition of “maintenance activity.” If this 

definition was adopted, the facility would be allowed to proceed with 

a maintenance activity and then, if the activity began generating 

dust, controls would need to be adopted but otherwise-controllable 

lead emissions would be released to ambient air. However, we have 

modified the definition to read “any of the following routine 

maintenance and repair activities that could generate fugitive lead 

dust.””..” This definition ensures that proactive, rather than 

reactive, actions would be taken for activities with the potential to 

generate lead dust. 
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Comment: One commenter stated that a definition of leadbearing material should be added and should include such 

characteristics as the material should be semi-granular, have a lead 

content of greater than 10%, percent, and produce visible fugitive 

emissions when handled or transported.

Response: AsWeAs noted above, we have added a definition of 

lead-bearing material to the regulatory text. However, we believe 

that a 10 percent lead content is too high. We have defined leadbearing material in the rule as material with a lead content of 

5equal to5 mg/l or greater than 100 ppm as measured by theEPA 

methodthe TCLP (Method 1311), (TCLP solution concentration 5 mg/l).), 

which means that materials would need to contain at least 100 ppm of 

lead. This is equivalent to the toxicity characteristic 

levelstandardlevel for a hazardous waste containing lead as defined 

at 40 CFR §261.24.

Comment: One commenter noted that 40section40 CFR 63.544(d) 

of the proposed rule makes reference to the requirements in 

subsections (d)(1) through (d)(4). However, as the commenter points 

out, there are eight subsections applicable to 40section40 CFR

63.544(d) and subsection (d)(2) further refers to meeting 

requirements through (d)(8).
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Response: The EPA agrees with the commenter and has made 

the suggested change in the regulatory text at 40section40 CFR

63.544(d). 

Comment: One commenter noted that proposed 40section40 CFR

63.543(i) requires that sources conduct testing for process vents, 

“...under such conditions as the administrator specifies based on 

representative performance of the affected source for the period 

being tested.””..” The commenter requested that the EPA replace this 

“cumbersome” language with “...under normal operating conditions.”

Response: We have modified the text to require sources to 

conduct testing “under maximum representative operating conditions 

for the process.” The term maximum is included to ensure that the 

testing occurs during a time period of full production at the 

facility that is representative of normal operation. This language 

allows sources to develop test conditions which approximate the 

variability they can reasonably encounter during normal operation. 

Parametric monitoring requirements, based on parameters measured 

during the performance test, would then reasonably reflect this 

operating variability and afford the source flexibility in its dayto-day operation. Cf. Cement Kiln Recycling Coalition v. EPA, 255 

F.855, 866-67 (D.C. Cir. 2001) (upholding use of such data to set 

MACT standards under CAA section 112 (d)(3)).
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Comment: One commenter noted that Table 3 of the proposed 

rule is improperly labeled, “table 3 to Subpart X of Part 60 – Toxic 

Equivalency Factors.””..” As the commenter points out, the table is 

included in 40Part40 CFR part 63, not 40Part40 CFR part 60.

Response: The EPA agrees with the commenter and has made 

the suggested change to Table 3 of the proposed rule.

Comment: Two commenters pointed out that there is a 

typographical error in Equation 2 of the proposed rule at 40section40 

CFR 63.543(c). The definition of the term CELI includes the word lead, 

though the equation is not applicable to lead.

Response: The EPA agrees with the commenter and has 

adjusted the definition of the term CELI in Equation 2 of 40section40 

CFR 63.543(c) accordingly.

GFG. Emission Testing Methods and Frequency

Comment: Two commenters stated their support for biannual 

testing for well performing facilities. One commenter contends that 

the East Penn facility currently conducts biannual testing for lead 

and still maintains compliance with the lead NAAQS and applicable 

subpartSubpartsubpart X emission standards. The commenter further 

argued that the EPA has not demonstrated any environmental benefits 

associated with annual testing versus biannual testing for well 

controlled facilities. The commenter contends that the East Penn 

facility has made strategic decisions to invest capital resources to 
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reduce lead emissions and that the removal of the biannual testing 

exemption would unnecessarily increase the annual operating costs of 

the facility.

Response: We agree with the commenter that a biannual 

testing exemption for well performing facilities can be retained in 

this NESHAP. We have added an exemption for any stacks that report a 

lead concentration of 0.1 mg/dscm or lower allowing biannual testing. 

The concept of decreased testing frequency for well-performing 

sources was discussed in the proposal as a part of the fenceline 

monitoring approach (seeSeesee 76 FR at 29057). 

Comment: Two commenters disagreed with the annual testing 

requirement for total hydrocarbons (THC). One commenter stated that 

since the risk assessment did not identify significant risks drivers 

among the organic HAP represented by THC, the THC testing should be 

conducted concurrently with the dioxin and furan tests every 5five5

years with continuous compliance demonstrated via afterburner 

temperature monitoring. Another commenter stated that requiring 

annual THC tests is redundant and unnecessary if a CEMS is installed 

and operated per 40section40 CFR 63.543(k).

Response: We disagree with the commenter that THC testing 

should be conducted on the same schedule as dioxins and furans. 

Testing for THC is substantially less expensive than testing for 

dioxins and furans and we do not believe annual THC testing presents 
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an unnecessary burden. However, we have added an exemption allowing 

biannual testing of THC for any stack that reports concentrations 

that are less than half of the applicable emissions limit. Annual 

stack testing is obviously not required if a THC CEMS is used.

Comment: Three commenters stated that the EPA should allow 

facilities to use EPA Method 12 for lead compounds to calculate 

compliance with the process vent limitations in order to be 

consistent with testing requirements that exist in many facility 

permits.

Response: We agree that facilities should be given the 

option of using EPA Method 12. The regulatory text has been edited 

accordingly.

Comment: Three commenters stated that the BLDS exemption 

for baghouses equipped with HEPA filters should be retained. One 

commenter stated that to install BLDS’s on HEPA filtered stacks is 

excessive and unwarranted. The commenter also believes that annual 

stack testing for sources equipped with HEPA filtration is not 

necessary. Another commenter argued that the cost associated with 

using BLDS is not commensurate with their limited ability. The 

commenter stated that BLDS’s are inherently reactive whereas 

baghouses equipped with HEPA filtration actually prevent emissions in 

the event of a bag failure. Further, the commenter argued that HEPA 

secondary collection pressure differential is an effective method to 
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monitor baghouse performance. The commenter contends that the BLDS 

requirement will pose an unnecessary and redundant burden on 

facilities that proactively chose to install HEPA filtration systems 

and that the proposed revisions are a disincentive for facilities to 

install HEPA filters. Finally, the commenter stated that the proposed 

BLDS requirement and the elimination of the BLDS exemption for HEPA 

filters are arbitrary and not supported by test data.

Response: We agree with the commenters that baghouses 

equipped with HEPA filters do not need bag leak detection systems as 

well. The The measurement of pressure drop across a HEPA filter 

provides the indicia of superior performance. for determining 

continuous compliance. However, we disagree that sources should be 

exempt from annual stack testing based solely on the use of a HEPA 

filter. The emission standard includes calculation of a facility-wide 

emission average and testing the process vents subject to that limit 

is needed to determine compliance. Monitoring pressure drop across 

HEPA filters is a means for determining continuous compliance, 

similar to a bag leak detection system in baghouses without HEPA 

filters. In both cases, periodic stack tests are necessary to ensure 

that lead emissions are below the applicable emission standard. 

However, we note that we have included a biannual testing exemption 

for stacks that report lead concentrations less than 0.1 mg/dscm.

HGH. Startup, Shutdown, and Malfunction
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Comment: One commenter expressed concerns related to the 

total hydrocarbon (THC) standard during start-up periods. According 

to the commenter, it will be impossible to meet the minimum 

temperature at which compliance with the THC standard has been 

demonstrated during startup of a furnace. The blast furnace crucible 

must be heated for up to 12 hours before raw materials can be 

charged. The reverberatory furnace cold startups occur over an 

extended period also. There is no introduction of feedstock during 

the warm-up process and, therefore, no emissions of process-related 

THC emissions. Emissions during this time period will consist 

entirely of combustion products associated with the fuels natural gas 

and foundry coke. The afterburner or post combustion system are 

equipped with rudimentary burners that provide supplementary heat but 

rely on the excess heat contained within the combined furnace exhaust 

gases during production operations to achieve an afterburner 

temperature that assures the efficient combustion of the process offgases. The afterburner supplementary burners are not sufficient to 

maintain the required temperature during furnace startup and shutdown 

sequences. The proposed revisions to subpartSubpartsubpart X should 

include definitions of startup and shutdown for collocated blast and 

reverberatory furnaces that clearly define when alternative THC 

standards would apply and how compliance with an alternative standard 

is monitored. 
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Response: The EPA has revised this final rule to require 

sources to meet a work practice standard that requires the 

development of standard operating procedures designed to minimize 

emissions of THC and D/F for each start-up and shutdown scenario 

anticipated for all units subject to THC and D/F emission limits. We 

considered whether temperature (the metric used to determine 

continuous compliance for the THC standard in this rule) or 

performance testing and enforcement of numeric emission limits would 

be practicable during periods of startup and shutdown. The EPA 

determined that there are a number of significant technical 

challenges associated with emissions measurements of THC and D/F

emissions during periods of startup and shutdown for this industry. 

These challenges make establishing and complying with numerical 

emissions limits impracticable. 

There are multiple factors informing this decision. Temperature 

is obviously an inappropriate measure to determine continuous 

compliances for these furnaces during periods of startup and shutdown 

when the furnaces are being heated during startup (or cooled during 

shutdown) from ambient to the steady state operating temperature. The 

furnaces are heated during periods of startup through slow feeding of 

natural gas and small amounts of coke with no lead acid batteries fed 

to the furnace. During these periods, many stack gas characteristics 

including temperature, flow rate, pollutant and flow stratification, 
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molecular weight and moisture content of the gas change far more 

dramatically and rapidly than they would during normal operating 

conditions. These changing parameters must be accounted for during 

stack tests and require near-constant measurements and adjustment 

during multiple contiguous test runs (i.e., more than the typical 

three test runs required for compliance determination under normal 

operating conditions). In terms of staff scheduling, test crews would 

have to be on-site and ready to begin It is impossible for furnace 

exhaust to be maintained within the window prescribed by 40 CFR 

63.548(h)(4) during periods of startup and shutdown. However, the 

inability to maintain this temperature in secondary lead smelter 

furnace exhaust does not indicate high emissions of THC during these 

periods. In fact, the emissions are likely minimal because there are 

no plastics being fed to the furnace and minimal fuel use (mostly 

natural gas). Temperature is thus not the appropriate measure of 

continuous compliance during these periods and we are unaware of 

another metric that can be used to determine continuous compliance 

with a numerical standard for these furnaces during startup and 

shutdown. In terms of staff scheduling, test crews would have to be 

on-site and ready to begin THC testing at the beginning of a period 

of startup or shutdown, have multiple test crews on site for startup 

or shutdown periods lasting longer than 12 hours, and be prepared to 

stop and restart measurements to coincide with process trips that can 
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occur. Scheduling during startup and shutdown of secondary lead 

smelting furnaces. Since startups and shutdowns of these furnaces are 

not necessarily scheduled long in advance, scheduling such testing to 

coincide with the beginning of startup or shutdown periods, which are 

less predictable than startup operations, would require having 

testing crews on-site nearly full time. These staff resource issues 

would dramatically increase the cost of testing during startup and 

shutdown periods. 

In addition to the technical problems of collecting 

representative samples in stratified stack conditions, sampling for 

dioxins and furans must be isokinetic and sampling for THC 

concentrations must be proportional in order to assure representative 

results. Maintaining isokinetic or other proportional sampling when 

stack gas flows range from zero to nearly full load conditions during 

either startup or shutdown with measurement equipment commonly 

applied for this testing would be an extremely difficult measurement 

challenge and very likely lead to unacceptable test runs. For these 

technical and economic reasons, we have determined that conducting 

manual test methods during these secondary lead furnace startup or 

shutdown periods for THC to be impracticable withininwithin the 

meaningcontextmeaning of CAA section 112(h)(2)(B).) of the Clean Air 

Act.). As a result, we have established a separate work practice 

standard for emissions of D/F and THC during periods of startup and 
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shutdown. This work practice standard requires the development of 

standard operating procedures designed to minimize emissions of THC 

for each start-up and shutdown scenario anticipated for all units 

subject to THC limits. 

This startup and shutdown work practice applies only to the 

THC and dioxin and furan emission limits. We have no reason to 

provide startup or shutdown provisions for emissions of lead from any 

source because the fabric filters used to control particulate and 

lead emissions are not less effective during startup or shutdown 

periods (nor would we expect sources to have any difficulty meeting 

the lead standard since lead-bearing feed is not charged during 

either startup or shutdown conditions). Additionally, the metrics for 

determining continuous compliance with these standards are 

appropriate for periods of startup and shutdown. Therefore, we have 

established the separate work practice standard only for THC for 

periods of startup and shutdown. 

During these periods, we do not believe dioxins and furans 

can form because there are no chlorinated plastics or flameretardants being fed as these materials are only introduced as 

impurities with the lead feed material. Therefore, we have not 

included a standard for dioxins and furans during periods of startup 

and shutdown because these pollutants are not emitted.
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Periods of startup, normal operations, and shutdown are all 

predictable and routine aspects of a source’s operations. However, by 

contrast, malfunction is defined as a “‘‘“sudden, infrequent, and not 

reasonably preventable failure of air pollution control and 

monitoring equipment, process equipment or a process to operate in a 

normal or usual manner * * * ’’*” (40 CFR 63.2). The EPA has 

determined that malfunctions should not be viewed as a distinct 

operating mode and, therefore, any emissions that occur at such times 

do not need to be factored into development of CAA section 112(d) 

standards, which, once promulgated, apply at all times.

VI. Summary of Cost, Environmental, and Economic Impacts 

A. What are the affected facilities?

We anticipate that the 15 secondary lead smelting facilities 

currently or recently operating in the continental United States and 

Puerto Rico as well as one facility currently under construction in 

South Carolina will be affected by this final rule. 

B. What are the air quality impacts?

The EPA estimated the emissions reductions that are expected to 

result from these final amendments to the 1997 NESHAP compared to the 

2009 baseline emissions estimates calculated based on ICR data. The 

ICR data and RTR emissions memo are available in the docket to this 

action. A detailed documentation of the analysis can be found in the 
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document in the docket titled: Cost Impacts of the Revised NESHAP for 

the Secondary Lead Smelting Source Category. 

Emissions of lead and arsenic from secondary lead smelters have 

declined over the last 15 years as a result of federal rules, state 

rules and on the industry’s own initiative. The final rule will cut 

lead and arsenic emissions by an estimated 68 percent from current 

actual emission levels based on the ICR data collected for this 

rulemaking., for a total reduction of more than 90% over the last 15 

years.. The final rule will result in estimated annual lead emissions 

reductions of 76.97.2 tpy from process and process fugitive sources 

and 6.annual lead emissions reductions of 6.4 tpy from fugitive dust 

sources fromover thefrom 2009 baseline. emissions (for a total annual 

reduction of 13.6 tons per year). The expected annual reduction in 

total metal HAP7 is 8.272 tpy from process and process fugitive 

sources and the expected annual reduction is 7.2 tpy from fugitive 

dust sources. (total annual metal HAP reductions are estimated at 

15.4 tons). We estimate that these controls will also reduce 

emissions of particulate matter (PM) (combined total of fine and 

coarse PM) by 135 tpy. 

Based on the emissions data available to the EPA, we believe 

that all facilities will be able to comply with the final emissions 

limits for THC and D/F without additional controls. However, we 

 

7 Total metal HAP consists of antimony, arsenic, beryllium, cadmium, chromium, 

lead, manganese, nickel and selenium.
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expect that some emissions reductions will occur due to increased 

temperatures of afterburners and from improved work practices. 

Nevertheless, it is difficult to estimate accurate reductions from 

these actions and, therefore, we are not providing quantified 

estimates of reductions for THC and D/F. 

C. What are the cost impacts?

As a result of this final rule, certain secondary lead smelting 

facilities are expected to incur capital costs for the following 

types of control measures: replacement of existing baghouses with 

new, higher-performing baghouses, replacement of bags in existing 

baghouses with better-performing materials, construction of new 

enclosures for processes not currently enclosed, modification of 

partially enclosed structures to meet the requirements of total 

enclosure, and installation of fabricbaghousesfabric filters on 

enclosures. 

The capital costs for each facility were estimated based on the 

number and types of upgrades we estimate that facility will require. 

Each facility was evaluated for its ability to meet the final limits 

for lead emissions, THC emissions, D/F emissions, and fugitive dust 

emissions. The memorandum titled: Cost Impacts of the Revised NESHAP 

for the Secondary Lead Smelting Source Category includes a complete 

description of the cost estimate methods used for this analysis and 

is available in the docket. 
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The majority of the capital costs estimated for compliance with 

this action are for purchasing new enclosures and the associated 

control devices that would be required for these enclosures. For each 

facility, we estimated the square footage of new enclosures required 

based on the size of enclosures currently in place compared to 

facilities that we considered to be totally enclosed with a similar 

production capacity. We further assumed that the facilities that 

required a substantial degree of new enclosure would re-configure 

their facilities, particularly the storage areas, to reduce the 

footprint of areas subject to total enclosure requirements. 

Based on our analysis of the facility configurations, seven 

facilities were considered already to be totally enclosed. Two 

facilities are currently installing enclosure structures and 

equipment that we anticipate will meet the requirements. 

Consequently, the capital costs do not include estimates for these 

nine facilities. We estimate that the remaining six facilities will 

require new building installations, thereby incurring capital costs. 

For the one facility currently under construction, we estimated one 

additional baghouse would be required. 

Typical enclosure costs were estimated using information and 

algorithms from the Permanent Total Enclosures chapter in the EPA Air 

Pollution Control Cost Manual. New baghouse costs were estimated 

using a model based primarily on the cost information for recent 
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baghouse installations submitted by facilities in the ICR survey. The 

total capital cost estimate for the enclosures, the ductwork system, 

and control devices at the seven facilities is approximately $38 

million, at an annualized cost of $6.4 million in 2009 dollars (an 

average of about $1 million per facility). 

We also estimated annual costs for the required work practices 

in this action. Based on the ICR survey information, we estimated 

that additional costs would be required to implement the work 

practices at 12 of the 16 facilities. The total annual costs to 

implement the fugitive emissions work practices are approximately $3 

million per year. 

For compliance with the stack lead concentration limit, we 

compared each stack emission point’s lead concentration (reported to 

the EPA under the ICR) to the requirement of 1.0 mg/dscm of lead for 

any one stack. If the reported concentration exceeded 0.5 mg/dscm 

(one half the standard), we assumed that the facility would either 

upgrade the baghouse with new bags and additional maintenance or 

completely replace the baghouse, depending on the age of the baghouse 

(as explained further below). This cost estimate presents an upperend estimate of the cost impacts of the final rule that assumes 

facilities will strive to operate well below the standard to ensure 

process variability does not cause emission rates approaching the 

maximum level allowed by the standard. If the baghouse was less than 
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10 years old and the lead concentration in the outlet was not 

appreciably over one half the standard (i.e.,.., 0.5 mg/dscm), we 

assumed that the baghouse would require maintenance and bag 

replacement. If the baghouse was more than 10 years old and the lead 

concentration was appreciably over the standard, we assumed the 

baghouse would be replaced. We then compared each facility’s 

emissions with the flow-weighted, facility-wide concentration limit 

of 0.20 mg/dscm using the assumption that baghouses needing 

replacement based on the 1.0 mg/dscm individual stack limit would be 

replaced with units that performed at least as well as the average 

baghouse identified in our data set. These analyses indicate that 

nine baghouses would need to be replaced, and two baghouses would 

require additional maintenance. To estimate costs, we used a model 

based primarily on the cost information submitted in the ICR for 

recent baghouse installations in this industry. We assumed an 

increase in maintenance cost based on more frequent bag changes (from 

once every 5 years to once every 2 years). The total capital cost for 

nine new baghouses at five facilities is estimated to be 

approximately $1112.611.5 million, and total annual costs were 

estimated to be approximately $23.02.7 million. 

New limits are being promulgated for THC and D/F emissions from 

reverberatory and electric furnaces. We anticipate all operating 

affected units will be able to meet the limits without installing 
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additional controls; however, we have estimated additional costs of 

$260,000 per year for facilities to increase the temperature of their 

existing afterburners to ensure continuous compliance with the 

standards. (We also considered this additional energy use as part of 

our analysis of whether the standards are warranted under CAA section 

112 (d)(6). See Draft Cost Impacts of the Revised NESHAP for the 

Secondary Lead Smelting Source Category, available in the docket ID

EPA–HQ–OAR–2011–0344, at page 7)..)).

The capital cost estimated for additional differential pressure 

monitors for total enclosures is $106,000. The cost for all 

additional monitoring and recordkeeping requirements, including the 

baghouse monitoring, is estimated at $791,000. 

The total annualized costs for the final rule are estimated at 

$13.4 million (2009 dollars). Table 5 of this preamble provides a 

summary of the estimated costs and emissions reductions associated 

with the final amendments to the Secondary Lead Smelting NESHAP 

presented in today’s action. More detail on the estimated costs of 

today’s final rule can be found in Cost Impacts of the revised NESHAP

for the Secondary Lead Smelting Source Category, available in the 

docket ID EPA–HQ–OAR–2011–0344. 

Table 5. Estimated Costs and Reductions for the Promulgated Standards 

in this Action 

Final 

Amendment 

Estimated 

Capital 

Cost 

Estimated 

Annual 

Cost 

Total HAP 

Emissions 

Reductions 

(tons per year)

Cost Effectiveness 

in $ per ton total 

HAP reduction

($ per pound) 
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($MM) ($MM)

Revised stack 

lead 

emissions 

limit 

1112.611.

5

23.02.7 8.7 (2 of metal 

HAPaHAPHAPa

(7.2 of which 

is lead) 

$0.333433 MM per 

ton 

($170 per pound) 

Total 

enclosure of 

fugitive 

emissions 

sources 

38 6.4 5.2 (of metal 

HAPaHAPHAPa

(4.6 of which 

is lead) 

$1.0 MM per ton 

($500 per pound) 

Fugitive 

control work 

practices 

0 3.0 2.0 (of metal 

HAPaHAPHAPa

(1.8 of which 

is lead) 

$1.5 MM per ton 

($750 per pound) 

THC and D/F 

concentration 

limits 

0 0.3 29.6

b

6

16

b $0.01 MM per ton 

Additional 

testing and 

monitoring 

0.3 0.79 N/A N/A 

aMetal1BasedaMetal HAP consisting of antimony, arsenic, beryllium, 

cadmium, chromium, lead, manganese, nickel, and selenium.

bBased on total organic HAP reductions as a co-benefit of compliance 

with standards for dioxins and furans. 

The EPA notes that the cost effectiveness of the controls for 

stack emissions of metal HAP are within the range of values the 

agency has determined to be reasonable in other section 112 rules. 

Indeed, EPA determined that a value of $175 per pound of metal HAP 

removed was reasonable when determining standards for the iron and 

steel foundry source category, an area source standard reflecting the 

less rigorous Generally Available Control Technology under section 

112(d)(5). See 73 FR at 249. Thus, EPA regards the cost 

effectiveness of the standards for metal HAP here as reasonable, for 

purposes of the standards adopted pursuant to sections 112 (f)(2) 

(ample margin of safety determination) and 112 (d)(6). The measures 
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required to control fugitive emissions are also cost effective, based 

largely on the fact that much of the industry has implemented some or 

all of the measures required in this final rule. The cost 

effectiveness for THC and D/F is presented as a point of information. 

Since those standards are MACT floor standards adopted pursuant to 

sections 112 (d)(3), considerations of cost and cost-effectiveness 

played no part in EPA’s consideration.

D. What are the economic impacts?

We performed an economic impact analysis for secondary lead 

consumers and producers nationally. Most secondary lead producers 

will incur annual compliance costs of much less than 1 percent of 

their sales, but one firm will incur costs of greater than 1 percent.

Both demand and supply in this sector are generally inelastic to 

price changes as shown in the Economic Impact Analysis at page 4. 

Thus, if producers could pass through the entire cost of the rule to 

consumers, we would expect prices to increase by no more than one 

percent, with no change in output. Conversely, if producers could not 

pass through any of the cost by increasing the price, we would expect 

output to decline by less than one percent. 

Hence, the overall economic impact of this proposed rule should 

be low on most of the affected industry and its consumers. For more 

information, please refer to the Economic Impact Analysis for this 

rulemaking that is in the public docket ID EPA–HQ–OAR–2011–0344. 
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E. What are the benefits?

The estimated reductions in lead emissions that will be achieved 

by this final rule will provide significant benefits to public 

health. For example, as described in the EPA’s 2008 Regulatory Impact 

Analysis (RIA) that was completed for the lead NAAQS (which is 

available in the docket for this action and also on the EPA’s 

website) populations aged less than age 7 would receive significant 

benefits from reductions in lead exposure (for example: averted IQ 

loss among children less than 7 years of age). 8 described monetized 

benefits calculated for that action associated with reduced exposure 

to lead.

As noted in that RIA, there were also several other lead-related 

health effects for which the EPA was unable to quantify a monetized 

benefit--particularly among adults. These potential impacts included 

hypertension, non-fatal strokes, reproductive effects and premature 

mortality, among others. 

When viewed in this context, the reductions in concentrations of 

ambient lead that will be achieved with this RTR for secondary lead 

smelters are expected to provide importantsignificantimportant

benefits to both children and adults.adult populations, butadults. 

The EPA did not quantify these benefits becausecannot be quantified 

duebecause this rule did not trigger the requirement for conducting 

 

8 http://www.epa.gov/ttn/ecas/regdata/RIAs/finalpbriach5.pdf8

http://www.epa.gov/ttn/ecas/regdata/RIAs/finalpbriach5.pdf.
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an RIA under Executive Order 12866, in addition to resource and data 

limitations for this rule. However, as noted at proposal, this rule 

should result in areas attaining the lead NAAQS where the secondary 

lead smelting source dominates the areas’areasareas’ ambient lead 

concentrations. See 76 FR at 29063-64. Although these standards are 

not adopted to implement the lead NAAQS, and rest on legal and policy 

justifications thatwhichthat are unrelated to the requirements for 

adopting, revising, and implementing a NAAQS (e.g..,. CAA sections 

112 (d) (2), (3), 6; and CAA section 112 (f)(2) as opposed to CAA 

sections 107-110), nonetheless these rules will aid in the attainment 

of the lead NAAQS. and this is a tangible benefit of the rules..9

In addition to the benefits likely to be achieved for lead 

reductions, we also estimate that this final RTR rule will achieve 

about 39 to 63 tons of reductions in PM2PM 2PM2.5 emissions as a cobenefit of the HAP reductions annually. See Development of the RTR 

Emissions Dataset for the Secondary Lead Smelting Source Category, 

which is available in the docket for information on how the PM2.5 cobenefits were calculated based on total PM reductions. These PM 2.5 

reductions would result in an average of about $19.5 to $31.5 million 

in benefits per year. at section 8.3, which is available in the 

docket for information on how the PM2.5 emission reductions were 

 

9 It is possible that SIPs may require some of the same types of controls on these 

sources (or may rely on the controls in these rules as part of a control strategy). 

EPA cannot, of course, pre-judge the SIP process. What is clear is that this rule 

should contribute significantly to attainment of the lead NAAQS.
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calculated based on total PM reductions. Reducing exposure to PM2.5 is 

associated with significant human health benefits, including avoiding 

mortality and respiratory morbidity. Researchers have associated PM2.5 

exposure with adverse health effects in numerous toxicological, 

clinical and epidemiological studies (U.S. EPA, 2009)10. When 

adequate data and resources are available and an RIA is required, the 

EPA generally quantifies several health effects associated with 

exposure to PM2.5 (e.g., U.S. EPA, 2010)11. These health effects 

include premature mortality for adults and infants, cardiovascular 

morbidities such as heart attacks, hospital admissions, and 

respiratory morbidities such as asthma attacks, acute and chronic 

bronchitis, hospital and emergency department visits, work loss days, 

restricted activity days, and respiratory symptoms. Although the EPA 

has not quantified certain outcomes including adverse effects on 

birth weight, pre-term births, pulmonary function and other 

cardiovascular and respiratory effects, the scientific literature 

suggests that exposure to PM2.5 is also associated with these impacts 

(U.S. EPA, 2009).

 

10 U.S. Environmental Protection Agency (U.S. EPA). 2009. Integrated Science 

Assessment for Particulate Matter (Final Report). EPA-600-R-08-139F. National 

Center for Environmental Assessment—RTP Division.

<http://cfpub.epa.gov/ncea/cfm/recordisplay.cfm?deid=216546>. 

11 U.S. Environmental Protection Agency (U.S. EPA). 2010. Regulatory Impact 

Analysis for the Proposed Federal Transport Rule. Office of Air Quality Planning 

and Standards, Research Triangle Park, NC.

<http://www.epa.gov/ttn/ecas/regdata/RIAs/proposaltrria_final.pdf>. 
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Finally, the final rule will provide human health benefits 

through reductions in arsenic and cadmium emissions. , as well as 

reductions in emissions of organic HAP (including dioxins and 

furans).

VII. Statutory and Executive Order Reviews 

A. Executive Orders 12866: Regulatory Planning and Review, and 

Executive Order 13563: Improving Regulation and Regulatory Review

Under Executive Order 12866 (58 FR 51735, October 4, 1993), this 

action is a “significant regulatory action.” This action is a 

significant regulatory action because it raises novel legal and 

policy issues. Accordingly, the EPA submitted this action to the 

Office of Management and Budget (OMB) for review under Executive 

Order 12866 and Executive Order 13563 (76 FR 3821, January 21, 2011), 

and any changes made in response to OMB recommendations have been 

documented in the docket for this action. 

B. Paperwork Reduction Act

The information collection requirements in this rule have been 

submitted for approval to the Office of Management and Budget (OMB) 

under the Paperwork Reduction Act, 44 U.S.C. 3501 et seq. The 

Information Collection Request (ICR) document prepared by the EPA has 

been assigned EPA ICR number 1686.09. The information collection 

requirements are not enforceable until OMB approves them. The 

information requirements are based on notification, recordkeeping, 
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and reporting requirements in the NESHAP General Provisions (40 CFR 

part 63, subpart A), which are mandatory for all operators subject to 

national emissions standards. These recordkeeping and reporting 

requirements are specifically authorized by CAA section 114 (42 

U.S.C. 7414). All information submitted to the EPA pursuant to the 

recordkeeping and reporting requirements for which a claim of 

confidentiality is made is safeguarded according to 

AgencyagencyAgency policies set forth in 40 CFR part 2, subpart B. 

We are promulgating new paperwork requirements to the Secondary 

Lead Smelting source category in the form of stack testing for THC 

and D/F as described in 40 CFR 63.543(h)-(k). In conjunction with 

setting THC limits for reverberatory and electric furnaces, 

additional monitoring and recordkeeping is required for furnace 

outlet temperature on these units. We believe temperature monitors 

currently exist in these locations and that the facilities will not 

incur a capital cost due to this requirement(.(and received no 

comments to indicate otherwise). Additionally, increased monitoring 

is required for demonstrating negative pressure in all total 

enclosures. To provide the public with an estimate of the relative 

magnitude of the burden associated with an assertion of the 

affirmative defense position adopted by a source, the EPA has 

provided administrative adjustments to this ICR to show what the 

notification, recordkeeping and reporting requirements associated 
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with the assertion of the affirmative defense might entail. The EPA’s 

estimate for the required notification, reports and records for any 

individual incident, including the root cause analysis, totals $3,141 

and is based on the time and effort required of a source to review 

relevant data, interview plant employees, and document the events 

surrounding a malfunction that has caused an exceedance of an 

emissions limit. The estimate also includes time to produce and 

retain the record and reports for submission to the EPA. The EPA 

provides this illustrative estimate of this burden because these 

costs are only incurred if there has been a violation and a source 

chooses to take advantage of the affirmative defense. 

Given the variety of circumstances under which malfunctions 

could occur, as well as differences among sources' operation and 

maintenance practices, we cannot reliably predict the severity and 

frequency of malfunction-related excess emissions events for a 

particular source. It is important to note that the EPA has no basis 

currently for estimating the number of malfunctions that would 

qualify for which an affirmative defense to penalties might be 

asserted. Current historical records would be an inappropriate basis, 

as source owners or operators previously operated their facilities in 

recognition that they were exempt from the requirement to comply with 

emissions standards during malfunctions. Of the number of excess 

emissions events reported by source operators, only a small number 
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would be expected to result from a malfunction (based on the 

definition above), and only a subset of excess emissions caused by 

malfunctions would result in the source choosing to assert the 

affirmative defense. Thus we believe the number of instances in which 

source operators might be expected to assertavail themselves ofassert

the affirmative defense will be extremely small. For this reason, we 

estimate no more than 2 or 3 such occurrences for all sources subject 

to subpart X over the 3-year period covered by this ICR. We expect to 

gather information on such events in the future and will revise this 

estimate as better information becomes available. We estimate 16 

regulated entities are currently subject to subpart X and will be 

subject to all standards. The annual monitoring, reporting, and 

recordkeeping burden for this collection (averaged over the first 3 

years after the effective date of the standards) for these amendments 

to subpart X (Secondary Lead Smelting) is estimated to be $790,000 

per year. This includes 1,600 labor hours per year at a total labor 

cost of $347,000 per year, and total non-labor capital and operation 

and maintenance (O&M) costs of $440,000 per year. This estimate 

includes performance tests, notifications, reporting, and 

recordkeeping associated with the new requirements for front-end 

process vents and back-end process operations. The total burden for 

the FederalfederalFederal government (averaged over the first 3 years 

after the effective date of the standard) is estimated to be 1,150 
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hours per year at a total labor cost of $52,000 per year. Burden is 

defined at 5 CFR 1320.3(b). 

An agency may not conduct or sponsor, and a person is not 

required to respond to, a collection of information unless it 

displays a currently valid OMB control number. The OMB control 

numbers for the EPA's regulations in 40 CFR are listed in 40 CFR part 

9. When these ICRs are approved by OMB, the AgencyagencyAgency will 

publish a technical amendment to 40 CFR part 9 in the Federal 

Register to display the OMB control numbers for the approved 

information collection requirements contained in the final rules. 

C. Regulatory Flexibility Act

The Regulatory Flexibility Act (RFA) generally requires an 

agency to prepare a regulatory flexibility analysis of any rule 

subject to notice and comment rulemaking requirements under the 

Administrative Procedure Act or any other statute unless the agency 

certifies that the rule will not have a significant economic impact 

on a substantial number of small entities. Small entities include 

small businesses, small organizations, and small governmental 

jurisdictions. 

For purposes of assessing the impacts of this final rule on 

small entities, small entity is defined as: (1) AaA small business as 

defined by the Small Business Administration’s (SBA) regulations at 

13 CFR 121.201; (2) a small governmental jurisdiction that is a 
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government of a city, county, town, school district or special 

district with a population of less than 50,000; and (3) a small 

organization that is any not-for-profit enterprise that is 

independently owned and operated and is not dominant in its field. 

For this source category, which has the NAICS code 331419 (i.e., 

Secondary Smelting and Refining of Nonferrous Metal (except copper 

and aluminum)), the SBA small business size standard is 750 employees 

according to the SBA small business standards definitions. We have 

estimated the cost impacts and have determined that the impacts do 

not constitute a significant economic impact on a substantial number 

of small entities (see: Small Business Analysis for the Secondary 

Lead Smelting Source Category, which is available in the docket for 

this action). 

After considering the economic impacts of today’s final rule on 

small entities, I certify that this action will not have a 

significant economic impact on a substantial number of small 

entities. Two of the eight parent companies affected are considered a 

small entity per the definition provided in this section. However, we 

estimate that this action will not have a significant economic impact 

on those companies (SeeseeSee: Small Business Analysis for the 

Secondary Lead Smelting Source Category). All other affected parent 

companies are not small businesses according to the SBA small 

business size standard for the affected NAICS code (NAICS 331419). 
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Although this final rule will not have a significant economic 

impact on a substantial number of small entities, the EPA nonetheless 

has tried to reduce the impact of this rule on small entities. To 

reduce the impacts, we are promulgating stack limits for lead that 

allow sources to meet a standard based on aggregated emissions that 

are based on a weighted average approach (with each stack required to 

achieve a specified minimum level of control) and have been 

established at the least stringent levels that we estimate will still 

result in acceptable risks to public health. Thus, the promulgated

stack limits are based on the least costly approach that will still 

provide with an ample margin of safety for human health and the 

environment. Moreover, the compliance testing requirements were 

established in a way that minimizes the costs for testing and 

reporting while still providing the AgencyagencyAgency the necessary 

information needed to ensure continuous compliance with the 

standards. For more information, please refer to Smallthe small 

business analysis that is in the docketSmall Business Analysis for 

the Secondary Lead Smelting Source Category, which is available in 

docket ID EPA-HQ-OAR-2011-0344. 

D. Unfunded Mandates Reform Act

This action does not contain a FederalfederalFederal mandate 

under the provisions of Title II of the Unfunded Mandates Reform Act 

of 1995 (UMRA), 2 U.S.C. 1531-1538 for StatestateState, local, or 
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tribal governments or the private sector. The action would not result 

in expenditures of $100 million or more for StatestateState, local, 

and tribal governments, in aggregate, or the private sector in any 1 

year. The action imposes no enforceable duties on any 

StatestateState, local or tribal governments or the private sector. 

Thus, this action is not subject to the requirements of sections 202 

or 205 of the UMRA. 

This action is also not subject to the requirements of section 

203 of UMRA because it contains no regulatory requirements that might 

significantly or uniquely affect small governments because it 

contains no requirements that apply to such governments nor does it 

impose obligations upon them. 

E. Executive Order 13132: Federalism

This action does not have federalism implications. It will not 

have substantial direct effects on the StatesstatesStates, on the 

relationship between the national government and the 

StatesstatesStates, or on the distribution of power and 

responsibilities among the various levels of government, as specified 

in Executive Order 13132. These final rules primarily affect private 

industry, and do not impose significant economic costs on 

StatestateState or local governments. Thus, Executive Order 13132 

does not apply to this action. 
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F. Executive Order 13175: Consultation and Coordination With Indian 

Tribal Governments

This action does not have tribal implications, as specified in 

Executive Order 13175 (65 FR 67249, November 9, 2000). It will not 

have substantial direct effect on tribal governments, on the 

relationship between the FederalfederalFederal government and Indian 

tribes, or on the distribution of power and responsibilities between 

the FederalfederalFederal government and Indian tribes, as specified 

in Executive Order 13175. Thus, Executive Order 13175 does not apply 

to this action. 

G. Executive Order 13045: Protection of Children From Environmental 

Health Risks and Safety Risks

This action is not subject to Executive Order 13045 (62 FR 

19885, April 23, 1997) because it is not economically significant as 

defined in Executive Order 12866. However, the AgencyagencyAgency

does believe there is a disproportionate risk to children due to 

current emissions of lead from this source category. Children living 

near secondary lead smelters are the subpopulation most susceptible 

to effects of air-borne lead, as explained in detail in 

sectionSectionsection V.A above. The primary NAAQS for lead targets 

protection to this population, and is a reasonable measure for 

evaluating acceptability of risk here, again as explained in 

sectionSectionsection V.A. Modeled ambient air lead concentrations, 
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based on actual emission levels, from about 9109 of the 15 facilities 

in this source category are in excess of the NAAQS for lead., which 

was set to “provide increased protection for children and other atrisk populations against an array of adverse health effects, most 

notably including neurological effects in children, including 

neurocognitive and neurobehavioral effects” (73 FR 67007).. Also, the 

results of the demographic analysis indicate that of the 84,000 

people exposed to a cancer risk greater than 1-in-1 million, the age 

0 to 17 demographic percentage (of 30%) percent) is 3 percentage 

points higher than the corresponding national percentage for this 

demographic group (of 27%). percent). This suggests that children may 

be at a slightly disproportionate risk of exposure to cancer risks 

from this source category. However, the control measures promulgated 

in this notice will result in lead concentration levels at or below 

the lead NAAQS at all facilities, thereby mitigating the risk of 

future adverse health effects to children. See Sectionsection 

IVSection V.A of this preamble and theThethe Residual Risk Assessment 

for the Secondary Lead Smelting Source Category, which is available 

in the docket for this action, for discussions of post-control risks. 

H. Executive Order 13211: Actions Concerning Regulations That 

Significantly Affect Energy Supply, Distribution, or Use

This action is not a “significant energy action” as defined in 

Executive Order 13211 (66 FR 28355 (May 22, 2001)), because it is not 
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likely to have a significant adverse energy effect on the supply, 

distribution, or use of energy. This action will not create any new 

requirements for sources in the energy supply, distribution, or use 

sectors. Further, we have concluded that these final rules are not 

likely to have any adverse energy effects. (and indeed, rejected 

certain types of control options, such as standards based on use of 

wet electrostatic precipitators, in part because of adverse energy 

implications).

I. National Technology Transfer and Advancement Act

Section 12(d) of the National Technology Transfer and 

Advancement Act of 1995 (NTTAA), Public Law No. 104-113, 12(d) (15 

U.S.C. 272 note) directs the EPA to use voluntary consensus standards 

(VCS) in its regulatory activities, unless to do so would be 

inconsistent with applicable law or otherwise impractical. VCS are 

technical standards (e.g., materials specifications, test methods, 

sampling procedures, and business practices) that are developed or 

adopted by VCS bodies. NTTAA directs the EPA to provide Congress, 

through OMB, explanations when the agency decides not to use 

available and applicable VCS. 

This action involves technical standards. The EPA requires 

use of ASME PTC 19.10-1981, “Flue and Exhaust Gas Analyses”,”” for 

its manual methods of measuring the oxygen or carbon dioxide content 

of the exhaust gas. These parts of ASME PTC 19.10-1981 are acceptable 
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alternatives to EPA Method 3B. This standard is available from the 

American Society of Mechanical Engineers (ASME), Three Park Avenue, 

New York, NY 10016–5990. 

Under 40section40 CFR 63.7(f) and 40section40 CFR 63.8(f) 

of subpartSubpartsubpart A of the General Provisions, a source may 

apply to the EPA for permission to use alternative test methods or 

alternative monitoring requirements in place of any required testing 

methods, performance specifications, or procedures in the final rule. 

J. Executive Order 12898: Federal Actions To Address Environmental 

Justice in Minority Populations and Low-Income Populations

Executive Order 12898 (59 FR 7629, February 16, 1994) 

establishes federal executive policy on environmental justice. Its 

main provision directs federal agencies, to the greatest extent 

practicable and permitted by law, to make environmental justice part 

of their mission by identifying and addressing, as appropriate, 

disproportionately high and adverse human health or environmental 

effects of their programs, policies, and activities on minority 

populations and low-income populations in the United States. 

The EPA has determined that this final rule will not have 

disproportionately high and adverse human health or environmental 

effects on minority or low-income populations because it increases 

the level of environmental protection for all affected populations 

without having any disproportionately high and adverse human health 
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or environmental effects on any population, including any minority or 

low-income population. 

To examine the potential for any environmental justice 

issues that might be associated with each source category, we 

evaluated the distributions of HAP related cancer and non-cancer 

risks across different social, demographic, and economic groups 

within the populations living near the facilities where these source 

categories are located. The development of demographic analyses to 

inform the consideration of environmental justice issues in EPA 

rulemakings is evolving. 

In the case of Secondary Lead Smelting, we focused on 

populations within 50 km of the 15 facilities in this source category 

with emissions sources subject to the MACT standard. More 

specifically, for these populations we evaluated exposures to HAP 

that could result in cancer risks of 1-in-1 million or greater, or 

population exposures to ambient air lead concentrations above the 

level of the NAAQS for lead. We compared the percentages of 

particular demographic groups within the focused populations to the 

total percentages of those demographic groups nationwide. The results 

of this analysis are documented in the technical report: Risk and 

Technology Review - Final Analysis of Socio-Economic Factors for 

Populations Living Near Secondary Lead Smelting Facilities which can 

be found in the docket for this rulemaking. The actions in today’s 
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final rule will significantly decrease the risks due to HAP emissions 

from this source category for all demographic groups and mitigate any 

disproportionate risks due to those emissions. 

K. Congressional Review Act

The Congressional Review Act, 5 U.S.C. 801, et seq., as added by 

the Small Business Regulatory Enforcement Fairness Act of 1996, 

generally provides that, before a rule may take effect, the agency 

promulgating the rule must submit a rule report, which includes a 

copy of the rule, to each House of the Congress and to the 

Comptroller General of the United States. The EPA will submit a 

report containing this final rule and other required information to 

the United States Senate, the United States House of Representatives, 

and the Comptroller General of the United States prior to publication 

of the final rule in the Federal Register. A major rule cannot take 

effect until 60 days after it is published in the Federal Register. 

This action is not a “major rule” as defined by 5 U.S.C. 804(2). The 

final rules will be effective on [INSERTINSERTINSERT THE DATE OF 

PUBLICATION].
Page 126 of 187

PUBLICATION OF THIS FINAL RULE IN THE FEDERAL REGISTER].
National Emission Standards for Hazardous Air Pollutant Emissions 

forFromfor Secondary Lead Smelting

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List of Subjects for 40 CFR Part 63 

Environmental protection, Administrative practice and 

procedures, Air pollution control, Hazardous substances, 

Incorporation by reference, Intergovernmental relations, 

Reporting and recordkeeping requirements. 

______________ 

Dated: XXXXX XX, 2011.

________________________ 

Lisa P. Jackson, 

Administrator.
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For12 the reasons stated in the preamble, part 63 of title 

40, chapter I, of the Code of Federal Regulations is amended as 

follows: 

PART 63—[AMENDED] 

1. The authority citation for part 63 continues to read as 

follows: 

Authority: 42 U.S.C. 7401, et seq. 

2. Section 63.14 is amended by revising paragraph (p)(2) to 

read as follows:

§63.14 Incorporations by reference.

* * * * *

(p) * * *

(2) Office Of Air Quality Planning And Standards (OAQPS), 

Fabric Filter Bag Leak Detection Guidance, EPA–454/R–98–015, 

September 1997, IBR approved for §§63.548(e)(4), 63.7525(j)(2), 

and 63.11224(f)(2).

* * * * *

3. Part 63 is amended by revising subpart X to read as 

follows: 

Subpart X--National Emission Standards For Hazardous Air 

Pollutants From Secondary Lead Smelting 

§63.541 Applicability. 

§63.542 Definitions. 

 

12 Note that the EPA is reprinting portions of the language from the 1997 

NESHAP here so the entire rule appears in one place, for readers’ 

convenience. The EPA is not amending, reopening or otherwise reconsidering 

these reprinted portions of the 1997 rule.
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§63.543 What are my standards for process vents? 

§63.544 What are my totalprocesstotal enclosure standards? 

§63.545 What are my standards for fugitive dust sources? 

§63.546 Compliance dates. 

§63.547 Test methods. 

§63.548 Monitoring requirements. 

§63.549 Notification requirements. 

§63.550 Recordkeeping and reporting requirements. 

§63.551 Implementation and enforcement. 

§63.552 Affirmative Defense to Civil Penalties for Exceedance 

of Emissions Limit During Malfunction 

Tables to Subpart X

Table 1 to Subpart X of Part 63—General Provisions Applicability 

to Subpart X 

Table 2 to Subpart X of Part 63—Emissions limits for Secondary 

Lead Smelting Furnaces 

Table 3 to Subpart X of Part 636063—Toxic Equivalency Factors 

Subpart X—National Emission Standards For Hazardous Air 

Pollutants From Secondary Lead Smelting 

§63.541 Applicability.

(a) You are subject to this subpart if you own or operate 

any of the following affected sources at a secondary lead 

smelter: blast, reverberatory, rotary, and electric furnaces; 

refining kettles; agglomerating furnaces; dryers; process 

fugitive emissions sources; buildings containing lead bearing 

materials; and fugitive dust sources. The provisions of this 

subpart do not apply to primary lead processors, lead refiners, 

or lead remelters. 
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(b) Table 1 to this subpart specifies the provisions of 

subpart A of this part that apply to owners and operators of 

secondary lead smelters subject to this subpart. 

(c) If you are subject to the provisions of this subpart, 

you are also subject to title V permitting requirements under 40 

CFR parts 70 or 71, as applicable. 

(d) Emissions standards in this subpart apply at all 

times. 

§63.542 Definitions.

Terms used in this subpart are defined in the Clean Air 

Act, in subpart A of this part, or in this section as follows: 

Affected source means any of the following sources at a 

secondary lead smelter: blast, reverberatory, rotary, and 

electric furnaces; refining kettles; agglomerating furnaces; 

dryers; process fugitive emissions sources; buildings containing 

lead bearing materials; and fugitive dust sources. 

Affirmative defense means, in the context of an enforcement 

proceeding, a response or defense put forward by a defendant, 

regarding which the defendant has the burden of proof, and the 

merits of which are independently and objectively evaluated in a 

judicial or administrative proceeding. 

Agglomerating furnace means a furnace used to melt into a 

solid mass flue dust that is collected from a baghouse. 
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Bag leak detection system means an instrument that is 

capable of monitoring particulate matter (dust) loadings in the 

exhaust of a baghouse in order to detect bag failures. A bag 

leak detection system includes, but is not limited to, an 

instrument that operates on triboelectric, light scattering, 

transmittance or other effect to monitor relative particulate 

matter loadings. 

Battery breaking area means the plant location at which 

lead-acid batteries are broken, crushed, or disassembled and 

separated into components. 

Blast furnace means a smelting furnace consisting of a 

vertical cylinder atop a crucible, into which lead-bearing 

charge materials are introduced at the top of the furnace and 

combustion air is introduced through tuyeres at the bottom of 

the cylinder, and that uses coke as a fuel source and that is 

operated at such a temperature in the combustion zone (greater 

than 980 Celsius°CCelsius) that lead compounds are chemically 

reduced to elemental lead metal. 

Blast furnace charging location means the physical opening 

through which raw materials are introduced into a blast furnace. 

Collocated blast furnace and reverberatory furnace means 

operation at the same location of a blast furnace and a 

reverberatory furnace where the vent streams of the furnaces are 
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mixed before cooling, with the volumetric flow rate discharged 

from the blast furnace being equal to or less than that 

discharged from the reverberatory furnace. 

Dryer means a chamber that is heated and that is used to 

remove moisture from lead-bearing materials before they are 

charged to a smelting furnace. 

Dryer transition equipment means the junction between a 

dryer and the charge hopper or conveyor, or the junction between 

the dryer and the smelting furnace feed chute or hopper located 

at the ends of the dryer. 

Electric furnace means a smelting furnace consisting of a 

vessel into which reverberatory furnace slag is introduced and 

that uses electrical energy to heat the reverberatory furnace 

slag to such a temperature (greater than 980 Celsius°CCelsius) 

that lead compounds are reduced to elemental lead metal. 

Fugitive dust source means a stationary source of hazardous 

air pollutant emissions at a secondary lead smelter that is not 

associated with a specific process or process fugitive vent or 

stack. Fugitive dust sources include, but are not limited to, 

roadways, storage piles, leadmaterialslead bearing material

handling transfer points, leadmaterialslead bearing material

transport areas, lead bearing material storage areas, other lead 

bearing material process areas, and buildings. 
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Furnace and refining/casting area means any area of a 

secondary lead smelter in which: 

(1) Smelting furnaces are located; or

(2) Refining operations occur; or 

(3) Casting operations occur. 

Lead alloy means an alloy in which the predominant 

component is lead. 

Lead bearing material means material with a lead content 

equal to or greater than 5100 ppm5 mg/l as measured by EPA 

Method 1311 (Undertoxicity characteristic leaching procedure 

(TCLP) solution concentration 5 mg/lUnder Method 1311, only 

materials with at least 100 ppm lead will be considered to be 

lead bearing). 

Leeward wall means the furthest exterior wall of a total 

enclosure that is opposite the windward wall. 

Maintenance activity means any of the following routine 

maintenance and repair activities that could generate fugitive 

lead dust: 

(1) Replacement or repair of refractory, or any internal 

or external part of equipment used to process, handle or control 

lead-containing materials. 

(2) Replacement of any duct section used to convey leadcontaining exhaust. 
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(3) Metal cutting or welding that penetrates the metal 

structure of any equipment, and its associated components, used 

to process lead-containing material such that lead dust within 

the internal structure or its components can become fugitive 

lead dust. 

(4) Resurfacing, repair or removal of ground, pavement, 

concrete, or asphalt. 

Materials storage and handling area means any area of a 

secondary lead smelter in which lead-bearing materials 

(including, but not limited to, broken battery components, 

reverberatory furnace slag, flue dust, and dross) are stored or 

handled between process steps including, but not limited to, 

areas in which materials are stored in open piles, bins, or 

tubs, and areas in which material is prepared for charging to a 

smelting furnace. 

Natural draft opening means any permanent opening in an 

enclosure that remains open during operation of the facility and 

is not connected to a duct in which a fan is installed. 

New source means any affected source at a secondary lead 

smelting facility the construction or reconstruction of which is 

commenced after May 19, 2011. A building that is constructed 

for the purpose of controlling fugitive emissions from an 

existing source is not considered to be a new source. 
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Partial enclosure means a structure comprised of walls or 

partitions on at least three sides or three-quarters of the 

perimeter surrounding stored materials or process equipment to 

prevent the entrainment of particulate matter into the air. 

Pavement cleaning means the use of vacuum equipment, water 

sprays, or a combination thereof to remove dust or other 

accumulated material from the paved areas of a secondary lead 

smelter. 

Plant roadway means any area of a secondary lead smelter 

outside of a total enclosure that is subject to vehicle traffic, 

including traffic by forklifts, front-end loaders, or vehicles 

carrying whole batteries or cast lead ingots. Excluded from 

this definition are employee and visitor parking areas, provided 

they are not subject to traffic by vehicles carrying leadbearing materials. 

Pressurized dryer breaching seal means a seal system 

connecting the dryer transition pieces which is maintained at a 

higher pressure than the inside of the dryer. 

Process fugitive emissions source means a source of 

hazardous air pollutant emissions at a secondary lead smelter 

that is associated with lead smelting or refining, but is not 

the primary exhaust stream from a smelting furnace, and is not a 

fugitive dust source. Process fugitive emissions sources 
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include, but are not limited to, smelting furnace charging 

points, smelting furnace lead and slag taps, refining kettles, 

agglomerating furnaces, and drying kiln transition pieces. 

Process vent means furnace vents, dryer vents, 

agglomeration furnace vents, vents from battery breakers, vents 

from buildings containing lead bearing material, and any 

ventilation system controlling lead emissions. 

Refining kettle means an open-top vessel that is 

constructed of cast iron or steel and is indirectly heated from 

below and contains molten lead for the purpose of refining and 

alloying the lead. Included are pot furnaces, receiving 

kettles, and holding kettles. 

Reverberatory furnace means a refractory-lined furnace that 

uses one or more flames to heat the walls and roof of the 

furnace and lead-bearing scrap to such a temperature (greater 

than 980 Celsius°CCelsius) that lead compounds are chemically 

reduced to elemental lead metal. 

Rotary furnace (also known as a rotary reverberatory 

furnace) means a furnace consisting of a refractory-lined 

chamber that rotates about a horizontal axis and that uses one 

or more flames to heat the walls of the furnace and lead-bearing 

scrap to such a temperature (greater than 980 Celsius°CCelsius) 
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that lead compounds are chemically reduced to elemental lead 

metal. 

Secondary lead smelter means any facility at which leadbearing scrap material, primarily, but not limited to, lead-acid 

batteries, is recycled into elemental lead or lead alloys by 

smelting. 

Shutdown means the period when no lead bearing materials 

are being fed to the furnace and smelting operations have ceased 

during which the furnace is cooled from steady-state operating 

temperature to ambient temperature. 

Smelting means the chemical reduction of lead compounds to 

elemental lead or lead alloys through processing in hightemperature (greater than 980 Celsius°CCelsius) furnaces 

including, but not limited to, blast furnaces, reverberatory 

furnaces, rotary furnaces, and electric furnaces. 

Startup means the period when no led bearing materials have 

been fed to the furnace and smelting operations have not yet 

commenced during which the furnace is heated from ambient 

temperature to steady-state operating temperature.

Total enclosure means a containment building that is 

completely enclosed with a floor, walls, and a roof to prevent 

exposure to the elements and to assure containment of lead 

bearing material with limited openings to allow access and 
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egress for people and vehicles. The total enclosure must 

provide an effective barrier against fugitive dust emissions 

such that the direction of air flow through any openings is 

inward and the enclosure is maintained under constant negative 

pressure. 

Vehicle wash means a device for removing dust and other 

accumulated material from the wheels, body, and underside of a 

vehicle to prevent the inadvertent transfer of lead contaminated 

material to another area of a secondary lead smelter or to 

public roadways. 

Wet suppression means the use of water, water combined with 

a chemical surfactant, or a chemical binding agent to prevent 

the entrainment of dust into the air from fugitive dust sources. 

Windward wall means the exterior wall of a total enclosure 

thatwhichthat is most impacted by the wind in its most 

prevailing direction determined by a wind rose using available 

data from the closest representative meteorological station. 

§63.543 What are my standards for process vents?

(a) For existing sources, you must maintain the 

concentration of lead compounds in any process vent gas at or 

below 1.0 milligrams of lead per dry standard cubic meter 

(0.00043 grains of lead per dry standard cubic foot). You must 

maintain the flow-weighted average concentration of lead 
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compounds in vent gases from a secondary lead smelting facility 

at or below 0.20 milligrams of lead per dry standard cubic meter 

(0.000087 grains of lead per dry standard cubic foot). 

(1) You must demonstrate compliance with the flow weighted 

average emissions limit on a 12-month rolling average basis, 

calculated monthly using the most recent test data available. 

(2) Until 12 monthly weighted average emissions rates have 

been accumulated, calculate only the monthly average weighted 

emissions rate. 

(3) You must use Equation 1 of this section to calculate 

the flow-weighted average concentration of lead compounds from 

process vents: 

∑

∑=

×

= n

i

i

n

i

i i

FWA

F

F C

C

1

(Eq. 1) 

Where: 

CFWA = Flow-weighted average concentration of all process 

vents. 

n = Number of process vents. 

Fi = Flow rate from process vent i in dry standard cubic 

feet per minute, as measured during the most recent 

compliance test. 

Ci = Concentration of lead in process vent i, as measured 

during the most recent compliance test. 
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(4) Each month, you must use the concentration of lead and 

flow rate obtained during the most recent compliance test 

performed prior to or during that month to perform the 

calculation. using Equation 1 of this section.

(5) If a continuous emissions monitoring system (CEMS) is 

used to measure the concentration of lead in a vent, the monthly 

average lead concentration and monthly average flow rate must be 

used rather than the most recent compliance test data. 

(b) For new sources that begin construction or 

reconstruction after May 19, 2011 you must maintain the 

concentration of lead compounds in any process vent gas at or 

below 0.20220 milligrams of lead per dry standard cubic meter 

(0.000087 grains of lead per dry standard cubic foot). 

(c) You must meet the applicable emissions limits for 

total hydrocarbons (THC) and dioxins and furans (D/F) from 

furnace sources specified in Table 2 of this subpart. There are 

no standards for dioxins and furans during periods of startup 

and shutdown.

(d) If you combine furnace emissions from multiple types 

of furnaces and these furnaces do not meet the definition of 

collocated blast and reverberatory furnaces, you must calculate 

your emissions limit for the combined furnace stream using 

Equation 2 of this section. 
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∑

∑=

×

= n

i

i

n

i

i ELi

EL

F

F C

C

1

(Eq. 2) 

Where: 

CEL = Flow-weighted average emissions limit (concentration) 

of combined furnace vents. 

n = Number of furnace vents. 

Fi = Flow rate from furnace vent i in dry standard cubic 

feet per minute. 

CELi CEli = Emissions limit (concentration) of pollutant 

in furnace vent i as specified in Table 2 of this 

subpart. 

(e) If you combine furnace emissions with the furnace 

charging process fugitive emissions and discharge them to the 

atmosphere through a common emissions point, you must 

demonstrate compliance with the applicable total hydrocarbons 

concentration limit specified in paragraph (c) of this section 

at a location downstream from the point at which the two 

emissions streams are combined. 

(f) If you do not combine the furnace charging process 

fugitive emissions with the furnace process emissions, and 

discharge such emissions to the atmosphere through separate 

emissions points, you must maintain the total hydrocarbons 

concentration in the exhaust gas at or below 20 parts per 
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million by volume, expressed as propane and corrected to 4 

percent carbon dioxide. 

(g) Following the initial performance or compliance test 

to demonstrate compliance with the lead emissions limits 

specified in paragraph (a) or (b) of this section, you must 

conduct performance tests according to the schedule in paragraph 

(g)(1) or (g)(2) of this section. 

(1) Conduct an annual performance test for lead compounds 

from each process vent (no later than 12 calendar months 

following the previous compliance test), unless you install and 

operate a CEMS meeting the requirements of §63.8. 

(2) If an annual compliance test demonstrates that a 

process vent emitted lead compounds at 0.10110 milligram of lead 

per dry standard cubic meter or less during the time of the 

annual compliance test, you may submit a written request to the 

Administrator applying for an extension of up to 24 calendar 

months from the previous compliance test to conduct the next 

compliance test for lead compounds. 

(h) Following the initial performance or compliance test 

to demonstrate compliance with the total hydrocarbons emissions 

limits in paragraphs (c) and (f) of this section, you must 

conduct an annual performance test for total hydrocarbons 

emissions from each process vent that has established limits for 
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total hydrocarbons (no later than 12 calendar months following 

the previous compliance test), unless you install and operate a 

CEMS meeting the requirements of §63.8. If an annual compliance 

test demonstrates that a process vent emitted total hydrocarbons 

at less than 50 percent of the allowable limit during the time 

of the annual compliance test, you may submit a written request 

to the Administrator applying for an extension of up to 24 

calendar months from the previous compliance test to conduct the 

next compliance test for total hydrocarbons. 

(i) Following the initial performance or compliance test 

to demonstrate compliance with the dioxins and furans emissions 

limits specified in paragraph (c) of this section, you must 

conduct a performance test for dioxins and furans emissions from 

each process vent that has established limits for dioxins and 

furans at least once every 6 years following the previous 

compliance test. 

(j) You must conduct the performance tests specified in 

paragraphs (g) through (i) of this section under maximum 

representative operating conditions for the process. During the 

performance test, you may operate the control device at maximum 

or minimum representative operating conditions for monitored 

control device parameters, whichever results in lower emission 

reduction. Upon request, you must make available to the 
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Administrator such records as may be necessary to determine the 

conditions of performance tests. 

(k) At all times, you must operate and maintain any 

affected source, including associated air pollution control 

equipment and monitoring equipment, in a manner consistent with 

safety and good air pollution control practices for minimizing 

emissions. Determination of whether such operation and 

maintenance procedures are being used will be based on 

information available to the Administrator that may include, but 

is not limited to, monitoring results, review of operation and 

maintenance procedures, review of operation and maintenance 

records, and inspection of the source. 

(l) If you own or operate a unit subject to emission 

limits in Table 2 of this subpart, you must minimize the unit’s 

startup and shutdown periods following the manufacturer’s 

recommended procedures, if available. You must develop and 

follow standard operating procedures designed to minimize 

emissions of total hydrocarbon and dioxins and furans or for 

each startupstart-upstartup or shutdown scenario anticipated.

You must submit a signed statement in the Notification of 

Compliance Status report that indicates that you conducted 

startups and shutdowns according to the manufacturer’s 

recommended procedures, if available, and the standard operating 
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procedures designed to minimize emissions of total 

hydrocarbonshydrocarbon and dioxins and furanshydrocarbons. 

(m) In addition to complying with the applicable emissions 

limits for dioxins and furans listed in Table 2 to this subpart, 

you must operate a process to separate plastic battery casing 

materials from all automotive batteries prior to introducing 

feed into a blast furnace. 

§63.544 What are my totalprocesstotal enclosure standards?

(a) You must operatelocateoperate the process fugitive 

emissions sources and fugitive dust sources listed in paragraphs 

(a)(1) through (a)(9) of this section in a total enclosure that 

is maintained at negative pressure at all times and vented to a 

control device designed to capture lead particulate. The total 

enclosure must meet the requirements specified in 

paragraphparagraphsparagraph (c)(1) and (c)(2) of this section. 

(1) Smelting furnaces. 

(2) Smelting furnace charging areas. 

(3) Lead taps, slag taps, and molds during tapping. 

(4) Battery breakers. 

(5) Refining kettles, casting areas. 

(6) Dryers. 

(7) Agglomerating furnaces and agglomerating furnace 

product taps. 
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(8) Material handling areas for any lead bearing materials 

(drosses, slag, other raw materials).except those listed in 

paragraph (b) of this section. 

(9) Areas where dust from fabric filters, sweepings or 

used fabric filters are processed. 

(b) Total enclosures are not required in the following 

areas: lead ingot product handling areas, stormwater and 

wastewater treatment areas, intact battery storage areas, areas 

where lead bearing material is stored in closed containers or 

enclosed mechanical conveyors, and areas where clean battery 

casing material is handled. 

(c) You must construct and operate total enclosures for 

the sources listed in paragraph (a) of this section as specified 

in paragraphs (c)(1) and (c)(2) of this section. The total 

enclosure must be free of significant cracks, gaps, corrosion or 

other deterioration that could cause lead bearing material to be 

released from the primary barrier. Measures must be in place to 

prevent the tracking of lead bearing material out of the unit by 

personnel or by equipment used in handling the material. An area 

must be designated to decontaminate equipment and any rinsate 

must be collected and properly managed. 
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(1) You must ventilate the total enclosure continuously to 

ensure negative pressure values of at least 0.013 mm of mercury 

(0.007 inches of water). 

(2) You must maintain an inward flow of air through all 

natural draft openings. 

(d) You must inspect enclosures and facility structures 

that contain any lead-bearing materials at least once per month.

You must repair any gaps, breaks, separations, leak points or 

other possible routes for emissions of lead to the atmosphere 

within one week of identification unless you obtain approval for 

an extension from the Administrator before the repair period is 

exceeded. 

§63.545 What are my standards for fugitive dust sources?

(a) You must prepare, and at all times operate according 

to, a standard operating procedures (SOP) manual that describes 

in detail the measures that will be put in place and implemented 

to control the fugitive dust emissions from the sources listed 

in paragraphs (a)(1) through (a)(7) of this section. 

(1) Plant roadways. 

(2) Plant buildings. 

(3) Accidental releases. 

(4) Battery storage area. 

(5) Equipment maintenance. 
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(6) Material storage areas. 

(7) Material handling areas. 

(b) You must submit the standard operating procedures 

manual to the Administrator or delegated authority for review 

and approval when initially developed and any time changes are 

made. 

(c) The controls specified in the standard operating 

procedures manual must at a minimum include the requirements 

specified in paragraphs (c)(1) through (c)(7) of this section. 

(1) Cleaning. Where a cleaning practice is specified, you 

must clean by wet wash or a vacuum equipped with a filter rated 

by the manufacturer to achieve 99.97 percent capture efficiency 

for 0.3 micron particles in a manner that does not generate 

fugitive lead dust. 

(2) Plant roadways and paved areas. You must pave all 

areas subject to vehicle traffic and you must clean the pavement 

twice per day, except on days when natural precipitation makes 

cleaning unnecessary or when sand or a similar material has been 

spread on plant roadways to provide traction on ice or snow.

Limited access and limited use roadways such as unpaved roads to 

remote locations on the property may be exempt from this 

requirement if they are used infrequently (no more than one 

round trip per day). 
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(3) Accidental releases. You must initiate cleaning of 

all affected areas within one hour after detection of any 

accidental release of lead dust that exceeds 10 pounds (the 

Comprehensive Environmental Response, Compensation, and 

Liability Act (CERCLA) reportable quantity for lead. at 40 CFR 

302.4). 

(4) Battery storage areas. You must inspect any batteries 

that are not stored in a total enclosure oncetwiceonce each week 

and move any broken batteries to an enclosure within 72 hours of 

identification. You must clean residue from broken batteries 

within 72 hours of identification. 

(5) Materials storage and handling areas. You must wash 

each vehicle at each exit of the material storage and handling 

areas. The vehicle wash must include washing of tires, 

undercarriage and exterior surface of the vehicle followed by 

vehicle inspection. You must collect all wash water and send

the wash water to a wastewater treatment facility. 

(6) Equipment maintenance. You must perform all 

maintenance activities that could generate lead dust in a manner 

that minimizes emissions of fugitive dust. This must include 

one or more of the following: 

(i) Performing maintenance inside a total permanent 

enclosure maintained at negative pressure; . 
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(ii) Performing maintenance inside a temporary enclosure 

and use a vacuum system either equipped with a filter rated by 

the manufacturer to achieve a capture efficiency of 99.97 

percent for 0.3 micron particles or routed to an existing 

control device permitted for this activity.;. 

(iii) Performing maintenance inside a partial enclosure 

and use of wet suppression sufficient to prevent dust 

formation.;.

(iv) Decontamination of equipment prior to removal from an 

enclosure.;. 

(v) Immediate repair of ductwork or structure leaks 

without an enclosure if the time to construct a temporary 

enclosure would exceed the time to make a temporary or permanent 

repair, or if construction of an enclosure would cause a higher 

level of emissions than if an enclosure were not constructed.;. 

(vi) Activities required for inspection of fabric filters 

and maintenance of filters that are in need of removal and 

replacement are not required to be conducted inside of total 

enclosures. Used fabric filters must be placed in sealed 

plastic bags or containers prior to removal from a baghouse. 

(7) Material transport. You must collect and transport 

all lead bearing dust (i.e. lead bearing material which is a 

dust) within closed conveyor systems or in sealed, leak-proof 
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containers unless the collection and transport activities are 

contained within a total enclosure. All other lead bearing 

material must be contained and covered for transport outside of 

a total enclosure in a manner that prevents spillage or dust 

formation. Intact batteries and lead ingot product are exempt 

from the requirement to be covered for transport. 

(d) Your standard operating procedures manual must specify 

that records be maintained of all pavement cleaning, vehicle 

washing, and battery storage inspection activities performed to 

control fugitive dust emissions. 

(e) You must pave all grounds on the facility or plant 

groundcover sufficient to prevent wind-blown dust. You may use 

dust suppressants on unpaved areas that will not support a 

groundcover (e.g., roadway shoulders, steep slopes, limited 

access and limited use roadways). 

(f) As provided in §63.6(g), as an alternative to the 

requirements specified in this section, you can demonstrate to 

the Administrator (or delegated State, local, or Tribal 

authority) that an alternative measure(s) is equivalent or 

better than a practice(s) described in this section. 

§63.546 Compliance dates.

(a) For affected sources that commenced construction or 

reconstruction on or before May 19, 2011, you must demonstrate 
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compliance with the requirements of this subpart no later than 

[INSERT THE DATE TWO YEARS AFTER THE DATE OF PUBLICATION OF 

THISTHETHIS FINAL RULE IN THE FEDERAL REGISTER]. 

(b) For affected sources that commenced construction or 

reconstruction after May 19, 2011, you must demonstrate 

compliance with the requirements of this subpart by [INSERTDATE 

TWO YEARS AFTERINSERT THE DATE OF PUBLICATION OF THISTHETHIS

FINAL RULE IN THE FEDERAL REGISTER] or upon startup of 

operations, whichever is later. 

§63.547 Test methods.

(a) You must use the test methods from appendix A of part 

60 as listed in paragraphs (a)(1) through (a)(5) of this section 

to determine compliance with the emissions standards for lead 

compounds specified in §63.543(a) and (b). 

(1) EPA Method 1 at 40 CFR part 60, appendix A-1 to select 

the sampling port location and the number of traverse points. 

(2) EPA Method 2 at 40 CFR part 60, appendix A-1 or EPA 

Method 5D at 40 CFR part 60, appendix A-3, section 8.3 for 

positive pressure fabric filters, to measure volumetric flow 

rate. 

(3) EPA Method 3, 3A, or 3B at 40 CFR part 60, appendix A2 to determine the dry molecular weight of the stack gas. 
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(4) EPA Method 4 at 40 CFR part 60, appendix A-3 to 

determine moisture content of the stack gas. 

(5) EPA Method 12 or Method 29 at 40 CFR part 60, appendix 

A-8 to determine compliance with the lead compound emissions 

standards. The minimum sample volume must be 2.0 dry standard 

cubic meters (70 dry standard cubic feet) for each run. You 

must perform three test runs and you must determine compliance 

using the average of the three runs. 

(b) You must use the following test methods in appendix A 

of part 60 listed in paragraphs (b)(1) through (b)(4) of this 

section, as specified, to determine compliance with the 

emissions standards for total hydrocarbons specified in 

§63.543(c) through (f). 

(1) EPA Method 1 at 40 CFR part 60, appendix A-1 to select 

the sampling port location and number of traverse points. 

(2) The Single Point Integrated Sampling and Analytical 

Procedure of Method 3B to measure the carbon dioxide content of 

the stack gases when using either EPA Method 3A or 3B at 40 CFR 

part 60, appendix A-2. 

(3) EPA Method 4 at 40 CFR part 60, appendix A-3 to 

measure moisture content of the stack gases. 

(4) EPA Method 25A at 40 CFR part 60, appendix A-7 to 

measure total hydrocarbons emissions. The minimum sampling time 
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must be 1 hour for each run. You must perform a minimum of 

three test runs. You must calculate a 1-hour average total 

hydrocarbons concentration for each run and use the average of 

the three 1-hour averages to determine compliance. 

(c) You must correct the measured total hydrocarbons 

concentrations to 4 percent carbon dioxide as specified in 

paragraphs (c)(1) through (c)(3) of this section. 

(1) If the measured percent carbon dioxide is greater than 

0.4 percent in each compliance test, you must determine the 

correction factor using Equation (2) of this section. 

2

4.0

CO

F = (Eq. 2) 

Where: 

F = Correction factor (no units). 

CO2 = Percent carbon dioxide measured using EPA Method 3A or 

3B at 40 CFR part 60, appendix A-2, where the measured 

carbon dioxide is greater than 0.4 percent. 

(2) If the measured percent carbon dioxide is equal to or 

less than 0.4 percent, you must use a correction factor (F) of 

10. 

(3) You must determine the corrected total hydrocarbons 

concentration by multiplying the measured total hydrocarbons 

concentration by the correction factor (F) determined for each 

compliance test. 
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(d) You must use the following test methods in appendix A 

of part 60 listed in paragraphs (d)(1) through (d)(5) of this 

section, as specified, to determine compliance with the 

emissions standards for dioxins and furans specified in 

§63.543(c). 

(1) EPA Method 1 at 40 CFR part 60, appendix A-1 to select 

the sampling port location and the number of traverse points. 

(2) EPA Method 2 at 40 CFR part 60, appendix A-1 or EPA 

Method 5D at 40 CFR partparpart 60, appendix A-3, section 8.3 

for positive pressure fabric filters to measure volumetric flow 

rate. 

(3) EPA Method 3A or 3B at 40 CFR part 60, appendix A-2 to 

determine the oxygen and carbon dioxide concentrations of the 

stack gas. 

(4) EPA Method 4 at 40 CFR part 60, appendix A-3 to 

determine moisture content of the stack gas. 

(5) EPA Method 23 at 40 CFR part 60, appendix A-7 to 

determine the dioxins and furans concentration. 

(e) You must determine the dioxins and furans toxic 

equivalency by following the procedures in paragraphs (e)(1) 

through (e)(3) of this section. 

(1) Measure the concentration of each dioxins and furans 

congener shown in Table 3 of this subpartpartsubpart using EPA 
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Method 23 at 40 CFR part 60, appendix A-7. You must correct the 

concentration of dioxins and furans in terms of toxic 

equivalency to 7 percent O2 using Equation (3) of this section. 

(20.9 % 2)

(20.9 7)

O

Cmeas Cadj

−

−

= (Eq. 3) 

WherewhereWhere: 

Cadj = Dioxins and furans concentration adjusted to 7 

percent oxygen. 

Cmeas = Dioxins and furans concentration measured in 

nanograms per dry standard cubic meter. 

(20.9–7) = 20.9 percent oxygen − 7 percent oxygen (defined 

oxygen correction basis). 

20.9 = Oxygen concentration in air, percent. 

%O2 = Oxygen concentration measured on a dry basis, 

percent.

(2) For each dioxins and furans congener measured as 

specified in paragraph (e)(1) of this section, multiply the 

congener concentration by its corresponding toxic equivalency 

factor specified in Table 3 to this subpart. 

(3) Sum the values calculated as specified in paragraph 

(e)(2) of this section to obtain the total concentration of 

dioxins and furans emitted in terms of toxic equivalency. 

§63.548 Monitoring requirements.

(a) You must prepare, and at all times operate according 

to, a standard operating procedures manual that describes in 

detail procedures for inspection, maintenance, and bag leak 
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detection and corrective action plans for all baghouses (fabric 

filters or cartridge filters) that are used to control process 

vents, process fugitive, or fugitive dust emissions from any 

source subject to the lead emissions standards in §§63.543, 

63.544, and 63.545, including those used to control emissions 

from building ventilation. 

(b) You must submit the standard operating procedures 

manual for baghouses required by paragraph (a) of this section 

to the Administrator or delegated authority for review and 

approval. 

(c) The procedures that you specify in the standard 

operating procedures manual for inspections and routine 

maintenance must, at a minimum, include the requirements of 

paragraphs (c)(1) through (c)(9) of this section. 

(1) Daily monitoring of pressure drop across each baghouse 

cell. 

(2) Weekly confirmation that dust is being removed from 

hoppers through visual inspection, or equivalent means of 

ensuring the proper functioning of removal mechanisms. 

(3) Daily check of compressed air supply for pulse-jet 

baghouses. 

(4) An appropriate methodology for monitoring cleaning 

cycles to ensure proper operation. 
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(5) Monthly check of bag cleaning mechanisms for proper 

functioning through visual inspection or equivalent means. 

(6) Monthly check of bag tension on reverse air and 

shaker-type baghouses. Such checks are not required for shakertype baghouses using self-tensioning (spring loaded) devices. 

(7) Quarterly confirmation of the physical integrity of 

the baghouse through visual inspection of the baghouse interior 

for air leaks. 

(8) Quarterly inspection of fans for wear, material 

buildup, and corrosion through visual inspection, vibration 

detectors, or equivalent means. 

(9) Except as provided in paragraphs (g) and (h) of this 

section, continuous operation of a bag leak detection system, 

unless a system meeting the requirements of paragraph (m) of 

this section for a continuous emissions monitoring system is 

installed for monitoring the concentration of lead. 

(d) The procedures you specify in the standard operating 

procedures manual for baghouse maintenance must include, at a 

minimum, a preventative maintenance schedule that is consistent 

with the baghouse manufacturer's instructions for routine and 

long-term maintenance. 

(e) The bag leak detection system required by paragraph 

(c)(9) of this section, must meet the specification and 
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requirements of paragraphs (e)(1) through (e)(8) of this 

section. 

(1) The bag leak detection system must be certified by the 

manufacturer to be capable of detecting particulate matter 

emissions at concentrations of 1.0 milligram per actual cubic 

meter (0.00044 grains per actual cubic foot) or less. 

(2) The bag leak detection system sensor must provide 

output of relative particulate matter loadings. 

(3) The bag leak detection system must be equipped with an 

alarm system that will alarm when an increase in relative 

particulate loadings is detected over a preset level. 

(4) You must install and operate the bag leak detection 

system in a manner consistent with the guidance provided in 

“Office of Air quality Planning and Standards (OAQPS) Fabric 

Filter Bag Leak Detection Guidance” EPA-454/R-98-015, September 

1997 (incorporated by reference, see §63.14) and the 

manufacturer's written specifications and recommendations for 

installation, operation, and adjustment of the system. 

(5) The initial adjustment of the system must, at a 

minimum, consist of establishing the baseline output by 

adjusting the sensitivity (range) and the averaging period of 

the device, and establishing the alarm set points and the alarm 

delay time. 
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(6) Following initial adjustment, you must not adjust the 

sensitivity or range, averaging period, alarm set points, or 

alarm delay time, except as detailed in the approved standard 

operating procedures manual required under paragraph (a) of this 

section. You cannot increase the sensitivity by more than 100 

percent or decrease the sensitivity by more than 50 percent over 

a 365 day period unless such adjustment follows a complete 

baghouse inspection that demonstrates that the baghouse is in 

good operating condition. 

(7) For negative pressure, induced air baghouses, and 

positive pressure baghouses that are discharged to the 

atmosphere through a stack, you must install the bag leak 

detector downstream of the baghouse and upstream of any wet acid 

gas scrubber. 

(8) Where multiple detectors are required, the system's 

instrumentation and alarm may be shared among detectors. 

(f) You must include in the standard operating procedures 

manual required by paragraph (a) of this section a corrective 

action plan that specifies the procedures to be followed in the 

case of a bag leak detection system alarm. The corrective 

action plan must include, at a minimum, the procedures that you 

will use to determine and record the time and cause of the alarm 
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as well as the corrective actions taken to minimize emissions as 

specified in paragraphs (f)(1) and (f)(2) of this section. 

(1) The procedures used to determine the cause of the 

alarm must be initiated within 30 minutes of the alarm. 

(2) The cause of the alarm must be alleviated by taking 

the necessary corrective action(s) that may include, but not be 

limited to, those listed in paragraphs (f)(2)(i) through 

(f)(2)(vi) of this section. 

(i) Inspecting the baghouse for air leaks, torn or broken 

filter elements, or any other malfunction that may cause an 

increase in emissions. 

(ii) Sealing off defective bags or filter media. 

(iii) Replacing defective bags or filter media, or 

otherwise repairing the control device. 

(iv) Sealing off a defective baghouse compartment. 

(v) Cleaning the bag leak detection system probe, or 

otherwise repairing the bag leak detection system. 

(vi) Shutting down the process producing the particulate 

emissions. 

(g) Baghouses equipped with high efficiency particulate 

air (or HEPA) filters as a secondary filter used to control 

emissions from any source subject to the lead emission standards 

in §65.543(a) or (b), are exempt from the requirement to be 
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equipped with a bag leak detection system. You must monitor and 

record the pressure drop across each HEPA filter system daily.

If the pressure drop is outside the limit(s) specified by the 

filter manufacturer, you must take appropriate corrective 

measures, which may include but not be limited to those given in 

paragraphs (g)(1) through (g)(4) of this section. 

(1) Inspecting the filter and filter housing for air leaks 

and torn or broken filters. 

(2) Replacing defective filter media, or otherwise 

repairing the control device. 

(3) Sealing off a defective control device by routing air 

to other control devices 

(4) Shutting down the process producing the particulate 

emissions. 

(h) Baghouses followed by a wet electrostatic precipitator 

used as a secondary control device for any source subject to the 

lead emission standards in §63.543(a) or (b), are exempt from 

the requirement to be equipped with a bag leak detection system. 

(i) If you use a wet scrubber to control particulate 

matter and metal hazardous air pollutant emissions from a 

process vent to demonstrate continuous compliance with the 

emissions standards, you must monitor and record the pressure 

drop and water flow rate of the wet scrubber during the initial 
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performance or compliance test conducted to demonstrate 

compliance with the lead emissions limit under §63.543(a) or 

(b). Thereafter, you must monitor and record the pressure drop 

and water flow rate values at least once every hour and you must 

maintain the pressure drop and water flow rate at levels no 

lower than 30 percent below the pressure drop and water flow 

rate measured during the initial performance or compliance test. 

(j) You must comply with the requirements specified in 

paragraphs (j)(1) through (j)(4) of this section to demonstrate 

continuous compliance with the total hydrocarbons and dioxins 

and furans emissions standards. During periods of startup and 

shutdown, the requirements of paragraph (j)(4) of this section 

do not apply. Instead, you must demonstrate compliance with the 

standard for total hydrocarbon by meeting the requirements of 

§63.543(l).

(1) Continuous temperature monitoring. You must install, 

calibrate, maintain, and continuously operate a device to 

monitor and record the temperature of the afterburner or furnace 

exhaust streams consistent with the requirements for continuous 

monitoring systems in subpart A of this part§63.8. 

(2) Prior to or in conjunction with the initial 

performance or compliance test to determine compliance with 

§63.543(c), you must conduct a performance evaluation for the 
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temperature monitoring device according to §63.8(e). The 

definitions, installation specifications, test procedures, and 

data reduction procedures for determining calibration drift, 

relative accuracy, and reporting described in Performance 

Specification 2, 40 CFR part 60, appendix B, sections 2, 3, 5, 

7, 8, 9, and 10 must be used to conduct the evaluation. The 

temperature monitoring device must meet the following 

performance and equipment specifications: 

(i) The recorder response range must include zero and 1.5 

times the average temperature identified in paragraph (j)(3) of 

this section. 

(ii) The monitoring system calibration drift must not 

exceed 2 percent of 1.5 times the average temperature identified 

in paragraph (j)(3) of this section. 

(iii) The monitoring system relative accuracy must not 

exceed 20 percent. 

(iv) The reference method must be a National Institute of 

Standards and Technology calibrated reference thermocouplepotentiometer system or an alternate reference, subject to the 

approval of the Administrator. 

(3) You must monitor and record the temperature of the 

afterburner or the furnace exhaust streams every 15 minutes 

during the initial performance or compliance test for total 
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hydrocarbons and dioxins and furans and determine an arithmetic 

average for the recorded temperature measurements. 

(4) To demonstrate continuous compliance with the 

standards for total hydrocarbons and dioxins and furans, you 

must maintain an afterburner or exhaust temperature such that 

the average temperature in any 3-hour period does not fall more 

than 28 °CelsiusCCelsius (50 °FahrenheitFFahrenheit) below the 

average established in paragraph (j)(3) of this section. 

(k) You must install, operate, and maintain a digital 

differential pressure monitoring system to continuously monitor 

each total enclosure as described in paragraphs (k)(1) through 

(k)(5) of this section. 

(1) You must install and maintain a minimum of one 

building digital differential pressure monitoring system at each 

of the following three walls in each total enclosure that has a 

total ground surface area of 10,000 square feet or more: 

(i) The leeward wall. 

(ii) The windward wall. 

(iii) An exterior wall that connects the leeward and 

windward wall at a location defined by the intersection of a 

perpendicular line between a point on the connecting wall and a 

point on its furthest opposite exterior wall, and intersecting 

within plus or minus ten meters of the midpoint of a straight 
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line between the two other monitors specified. The midpoint 

monitor must not be located on the same wall as either of the 

other two monitors. 

(2) You must install and maintain a minimum of one 

building digital differential pressure monitoring system at the 

leeward wall of each total enclosure that has a total ground 

surface area of less than 10,000 square feet. 

(3) The digital differential pressure monitoring systems 

must be certified by the manufacturer to be capable of measuring 

and displaying negative pressure in the range of 0.01 to 0.2 

millimetersmmmillimeters mercury (0.005 to 0.11 inches of water) 

with a minimum accuracy of plus or minus 0.001 

millimetersmmmillimeters of mercury (0.0005 inches of water). 

(4) You must equip each digital differential pressure 

monitoring system with a continuous recorder. 

(5) You must calibrate each digital differential pressure 

monitoring system in accordance with manufacturer’s 

specifications at least once every 12 calendar months or more 

frequently if recommended by the manufacturer. 

(l) Except as provided in paragraphs (l)(2) or (l)(3) of 

this section, all new or reconstructed sources subject to the 

requirements under §63.543 must install, calibrate, maintain, 

and operate a CEMS for measuring lead emissions. In addition to 
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the General Provisions requirements for CEMS in §63.8(c) that 

are referenced in Table 1 toofto this subpart, you must comply 

with the requirements for CEMS specified in paragraph (m) of 

this section. 

(1) Sources subject to the emissions limits for lead 

compounds under §63.543 (b) must install a CEMS for measuring 

lead emissions within 180 days of promulgation by the EPA of 

performance specifications for lead CEMS. 

(2) Prior to 180promulgation of180 days after the EPA 

promulgates performance specifications for CEMS used to measure 

lead concentrations, you must use the procedure described in 

§63.543 (g)(1) to determine compliance. 

(3) Vents from control devices that serve only to control 

emissions from buildings containing lead bearing materials are 

exempt from the requirement to install a CEMS for measuring lead 

emissions. 

(m) If a CEMS is used to measure lead emissions, you must 

install a continuous emissions monitoring system with a sensor 

in a location that provides representative measurement of the 

exhaust gas flow rate at the sampling location of the CEMS used 

to measure lead emissions, taking into account the 

manufacturer’s recommendations. The flow rate sensor is that 
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portion of the system that senses the volumetric flow rate and 

generates an output proportional to that flow rate. 

(1) The continuous emissions monitoring system must be 

designed to measure the exhaust gas flow rate over a range that 

extends from a value of at least 20 percent less than the lowest 

expected exhaust flow rate to a value of at least 20 percent 

greater than the highest expected exhaust gas flow rate. 

(2) The continuous emissions monitoring system must be 

equipped with a data acquisition and recording system that is 

capable of recording values over the entire range specified in 

paragraph (m)(1) of this section. 

(3) You must perform an initial relative accuracy test of 

the continuous emissions monitoring system in accordance with 

the applicable Performance Specification in appendix B to part 

60 of this chapter. 

(4) You must operate the continuous emissions monitoring 

system and record data during all periods of operation of the 

affected facility including periods of startup, shutdown, and 

malfunction, except for periods of monitoring system 

malfunctions, repairs associated with monitoring system 

malfunctions, and required monitoring system quality assurance 

or quality control activities including, as applicable, 

calibration checks and required zero and span adjustments. 
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(5) If you have a CEMS to measure lead emissions, you must 

calculate the average lead concentration and flow rate monthly 

to determine compliance with §63.543(a). 

(6) When the continuous emissions monitoring system is 

unable to provide quality assured data, the following apply: 

(i) When data are not available for periods of up to 48 

hours, the highest recorded hourly emissions rate from the 

previous 24 hours must be used. 

(ii) When data are not available for 48 or more hours, the 

maximum daily emissions rate based on the previous 30 days must 

be used. 

§63.549 Notification requirements.

(a) You must comply with all of the notification 

requirements of §63.9 of subpart A, General Provisions. 

Electronic notifications are encouraged if suitable for the 

specific case (e.g., by electronic media such as Excel 

spreadsheet, on CD or hard copy), and when required by this 

subpart. 

(b) You must submit the fugitive dust control standard 

operating procedures manual required under §63.545(a) and the 

standard operating procedures manual for baghouses required 

under §63.548(a) to the Administrator or delegated authority 

along with a notification that the smelter is seeking review and 
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approval of these plans and procedures. You must submit this 

notification no later than [INSERT THE DATE ONE YEAR AFTER 

PUBLICATION OF THISTHETHIS FINAL RULE IN THE FEDERAL REGISTER].

For sources that commenced construction or reconstruction after 

[INSERT THE DATE OF PUBLICATION OF THISTHE PROPOSEDTHIS FINAL

RULE IN THE FEDERAL REGISTER], you must submit this notification 

no later than 180 days before startup of the constructed or 

reconstructed secondary lead smelter, but no sooner than [INSERT 

THE DATE OF PUBLICATION OF THISTHETHIS FINAL RULE IN THE FEDERAL 

REGISTER]. For an affected source that has received a 

construction permit from the Administrator or delegated 

authority on or before [INSERT THE DATE OF PUBLICATION OF 

THISTHETHIS FINAL RULE IN THE FEDERAL REGISTER], you must submit 

this notification no later than [INSERT THE DATE ONE YEAR AFTER 

PUBLICATION OF THISTHETHIS FINAL RULE IN THE FEDERAL REGISTER]. 

§63.550 Recordkeeping and reporting requirements.

(a) You must comply with all of the recordkeeping and 

reporting requirements specified in §63.10 of the General 

Provisions that are referenced in Table 1 to this subpart. 

(1) Records must be maintained in a form suitable and 

readily available for expeditious review, according to 

§63.10(b)(1). However, electronic recordkeeping and reporting 

if suitable for the specific case (e.g., by electronic media 
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such as Excel spreadsheet, on CD or hard copy), and when 

required by this subpart. 

(2) Records must be kept on site for at least 2 years 

after the date of occurrence, measurement, maintenance, 

corrective action, report, or record, according to §63.10(b)(1). 

(b) The standard operating procedures manuals required in 

§63.545(a) and §63.548(a) must be submitted to the Administrator 

in electronic format for review and approval of the initial 

submittal and whenever an update is made to the procedure. 

(c) You must maintain for a period of 5 years, records of 

the information listed in paragraphs (c)(1) through (c)(13) of 

this section. 

(1) Electronic records of the bag leak detection system 

output. 

(2) An identification of the date and time of all bag leak 

detection system alarms, the time that procedures to determine 

the cause of the alarm were initiated, the cause of the alarm, 

an explanation of the corrective actions taken, and the date and 

time the cause of the alarm was corrected. 

(3) All records of inspections and maintenance activities 

required under §63.548(c) as part of the practices described in 

the standard operating procedures manual for baghouses required 

under §63.548(a). 
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(4) Electronic records of the pressure drop and water flow 

rate values for wet scrubbers used to control metal hazardous 

air pollutant emissions from process fugitive sources as 

required in §63.548(i). 

(5) Electronic records of the output from the continuous 

temperature monitor required in §63.548(j)(1), and an 

identification of periods when the 3-hour average temperature 

fell below the minimum established under §63.548(j)(4), and an 

explanation of the corrective actions taken. 

(6) Electronic records of the continuous pressure monitors 

for total enclosures required in §63.548(k), and an 

identification of periods when the pressure was not maintained 

as required in §63.544(c)(1). 

(7) Records of any time periods power was lost to the 

continuous pressure monitors for total enclosures required in 

§63.548(k) and records of loss of power to the air handling 

system maintaining negative pressure on total enclosures. 

(8) Records of the inspections of facility enclosures 

required in §63.544(d). 

(9) Records of all cleaning and inspections required as 

part of the practices described in the standard operating 

procedures manual required under §63.545(a) for the control of 

fugitive dust emissions. 
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(10) Electronic records of the output of any CEMS 

installed to monitor lead emissions meeting the requirements of 

§63.548(m). 

(11) Records of the occurrence and duration of each 

malfunction of operation (i.e., process equipment) or the air 

pollution control equipment and monitoring equipment. 

(12) Records of actions taken during periods of 

malfunction to minimize emissions in accordance with §63.543(k), 

including corrective actions to restore malfunctioning process 

and air pollution control and monitoring equipment to its normal 

or usual manner of operation. 

(13) Records of any periods of startup or shutdown of a 

furnace and actions taken to minimize emissions during that 

period in accordance with §63.543(l). 

(d) You must comply with all of the reporting requirements 

specified in §63.10 of the General Provisions that are 

referenced in Table 1 to this subpart. 

(1) You must submit reports no less frequent than 

specified under §63.10(e)(3) of the General Provisions. 

(2) Once a source reports a violation of the standard or 

excess emissions, you must follow the reporting format required 

under §63.10(e)(3) until a request to reduce reporting frequency 

is approved by the Administrator. 
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(e) In addition to the information required under the 

applicable sections of §63.10, you must include in the reports 

required under paragraph (d) of this section the information 

specified in paragraphs (e)(1) through (e)(14) of this section. 

(1) Records of the concentration of lead in each process 

vent, and records of the rolling 12-month flow-weighted average 

concentration of lead compounds in vent gases calculated monthly 

as required in §63.543(a), except during the first year when the 

concentration is calculated using the method described in 

§63.543(a)(2). 

(2) Records of the concentration of total hydrocarbon and 

dioxins and furans in each process vent that has established 

limits for total hydrocarbon and dioxins and furans as required 

in §63.543(c). 

(3) Records of all periods when monitoring using a CEMS 

for lead or total hydrocarbon was not in compliance with 

applicable limits. 

(4) Records of all alarms from the bag leak detection 

system specified in §63.548. 

(5) A description of the procedures taken following each 

bag leak detection system alarm pursuant to §63.548(f)(1) and 

(2). 
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(6) A summary of the records maintained as part of the 

practices described in the standard operating procedures manual 

for baghouses required under §63.548(a), including an 

explanation of the periods when the procedures were not followed 

and the corrective actions taken. 

(7) An identification of the periods when the pressure 

drop and water flow rate of wet scrubbers used to control 

process fugitive sources dropped below the levels established in 

§63.548(i), and an explanation of the corrective actions taken. 

(8) Records of the temperature monitor output, in 3-hour 

block averages, for those periods when the temperature monitored 

pursuant to §63.548(j) fell below the level established in 

§63.548(j)(4). 

(9) Certification that the plastic separation process for 

battery breakers required in §63.543(m) was operated at all 

times the battery breaker was in service. 

(10) Records of periods when the pressure was not 

maintained as required in §63.544(c) or power was lost to the 

continuous pressure monitoring system as required in §63.548(k). 

(11) If a malfunction occurred during the reporting 

period, the report must include the number, duration, and a 

brief description for each type of malfunction that occurred 

during the reporting period and caused or may have caused any 
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applicable emissions limitation to be exceeded. The report must 

also include a description of actions taken during a malfunction 

of an affected source to minimize emissions in accordance with 

§63.543(k), including actions taken to correct a malfunction. 

(12) A summary of the fugitive dust control measures 

performed during the required reporting period, including an 

explanation of the periods when the procedures outlined in the 

standard operating procedures manual pursuant to §63.545(a) were 

not followed and the corrective actions taken. The reports must 

not contain copies of the daily records required to demonstrate 

compliance with the requirements of the standard operating 

procedures manuals required under §63.545(a). 

(13) Records of any periods of startup or shutdown of a 

furnace including an explanation of the periods when the 

procedures required in §63.543(l) were not followed and the 

corrective actions taken. 

(14) You must submit records pursuant to paragraphs 

(e)(14)(i) through (iii) of this section below. 

(i) As of January 1, 2012 and within 60 days after the 

date of completing each performance test, as defined in §63.2 

and as required in this subpart, you must submit performance 

test data, except opacity data, electronically to EPA’s Central 

Data Exchange by using the Electronic Reporting Tool (see 
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http://www.epa.gov/ttn/chief/ert/ert_tool.html/http://www.epa.go

v/ttn/chief/ert/ert_tool.html/).). Only data collected using 

test methods compatible with the Electronic Reporting Tool are 

subject to this requirement to be submitted electronically into 

EPA’s WebFIRE database. 

(ii) Within 60 days after the date of completing each CEMS 

performance evaluation test, as defined in §63.2 and required by 

this subpart, you must submit the relative accuracy test audit 

data electronically into EPA’s Central Data Exchange by using 

the Electronic Reporting Tool as mentioned in paragraph 

(e)(14)(i) of this section. Only data collected using test 

methods compatible with the Electronic Reporting Tool are 

subject to this requirement to be submitted electronically into 

EPA’s WebFIRE database. 

(iii) All reports required by this subpart not subject to 

the requirements in paragraph (e)(14)(i) and (ii) of this 

section must be sent to the Administrator at the appropriate 

address listed in §63.13. The Administrator or the delegated 

authority may request a report in any form suitable for the 

specific case (e.g., by electronic media such as Excel 

spreadsheet, on CD or hard copy). The Administrator retains the 

right to require submittal of reports subject to paragraph 

(e)(14)(i) and (ii) of this section in paper format. 
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§63.551 Implementation and EnforcementenforcementEnforcement.

(a) This subpart can be implemented and enforced by the 

U.S. EPA, or a delegated authority such as the applicable State, 

local, or tribal agency. If the U.S. EPA Administrator has 

delegated authority to a State, local, or tribal agency, then 

that agency, in addition to the U.S. EPA, has the authority to 

implement and enforce this subpart. Contact the applicable U.S. 

EPA Regional Office to find out if this subpart is delegated to 

a State, local, or tribal agency. 

(b) In delegating implementation and enforcement authority 

of this subpart to a State, local, or tribal agency under 

subpart E of this part, the authorities contained in paragraph 

(c) of this section are retained by the Administrator of U.S. 

EPA and cannot be transferred to the State, local, or tribal 

agency. 

(c) The authorities that cannot be delegated to State, 

local, or tribal agencies are as specified in paragraphs (c)(1) 

through (c)(4) of this section. 

(1) Approval of alternatives to the requirements in 

§§63.541, 63.543 through 63.544, §63.545, and §63.546. 

(2) Approval of major alternatives to test methods under 

§63.7(e)(2)(ii) and (f), as defined in §63.90, and as required 

in this subpart. 
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(3) Approval of major alternatives to monitoring under 

§63.8(f), as defined in §63.90, and as required in this subpart. 

(4) Approval of major alternatives to recordkeeping and 

reporting under §63.10(f), as defined in §63.90, and as required 

in this subpart. 

§63.552 Affirmative Defense to Civil Penalties for Exceedance 

of Emissions Limit During Malfunction.

In response to an action to enforce the standards set forth 

in this subpart, you may assert an affirmative defense to a 

claim for civil penalties for exceedances of such standards that 

are caused by malfunction, as defined at §63.2. Appropriate 

penalties may be assessed, however, if you fail to meet your 

burden of proving all of the requirements in the affirmative 

defense. The affirmative defense shall not be available for 

claims for injunctive relief. 

(a) Affirmative defense. To establish the affirmative 

defense in any action to enforce such a limit, you must timely 

meet the notification requirements in paragraph (b) of this 

section, and must prove by a preponderance of evidence that: 

(1) The excess emissions: 

(i) Were caused by a sudden, infrequent, and unavoidable 

failure of air pollution control and monitoring equipment, 
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process equipment, or a process to operate in a normal or usual 

manner. 

(ii) Could not have been prevented through careful 

planning, proper design or better operation and maintenance 

practices. 

(iii) Did not stem from any activity or event that could 

have been foreseen and avoided, or planned for. 

(iv) Were not part of a recurring pattern indicative of 

inadequate design, operation, or maintenance. 

(2) Repairs were made as expeditiously as possible when 

the applicable emissions limitations were being exceeded. Offshift and overtime labor were used, to the extent practicable to 

make these repairs. 

(3) The frequency, amount and duration of the excess 

emissions (including any bypass) were minimized to the maximum 

extent practicable during periods of such emissions. 

(4) If the excess emissions resulted from a bypass of 

control equipment or a process, then the bypass was unavoidable 

to prevent loss of life, personal injury, or severe property 

damage. 

(5) All possible steps were taken to minimize the impact 

of the excess emissions on ambient air quality, the environment 

and human health. 
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(6) All emissions monitoring and control systems were kept 

in operation if at all possible, consistent with safety and good 

air pollution control practices. 

(7) All of the actions in response to the excess emissions 

were documented by properly signed, contemporaneous operating 

logs. 

(8) At all times, the affected source was operated in a 

manner consistent with good practices for minimizing emissions. 

(9) A written root cause analysis has been prepared, the 

purpose of which is to determine, correct, and eliminate the 

primary causes of the malfunction and the excess emissions 

resulting from the malfunction event at issue. The analysis 

shall also specify, using best monitoring methods and 

engineering judgment, the amount of excess emissions that were 

the result of the malfunction. 

(b) Notification. The owner or operator of the affected 

source experiencing an exceedance of its emissions limit(s) 

during a malfunction, shall notify the Administrator by 

telephone or facsimile transmission as soon as possible, but no 

later than two business days after the initial occurrence of the 

malfunction, it wishes to avail itself of an affirmative defense 

to civil penalties for that malfunction. The owner or operator 

seeking to assert an affirmative defense, shall also submit a 
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written report to the Administrator within 45 days of the 

initial occurrence of the exceedance of the standard in this 

subpart to demonstrate, with all necessary supporting 

documentation, that it has met the requirements set forth in 

paragraph (a) of this section. The owner or operator may seek 

an extension of this deadline for up to 30 additional days by 

submitting a written request to the Administrator before the 

expiration of the 45 day period. Until a request for an 

extension has been approved by the Administrator, the owner or 

operator is subject to the requirement to submit such report 

within 45 days of the initial occurrence of the exceedance. 

Table 1 to Subpart X of Part 63—General Provisions Applicability 

to Subpart X 

Reference 

Applies to 

subpart X Comment 

* * * * *

63.1 Yes

63.2 Yes

63.3 Yes

63.4 Yes

63.5 Yes

63.6(a), (b), (c) Yes 

63.6(d) No Section reserved. 

63.6(e)(1)(i) No See 63.543(k) for 

general duty 

requirement. 

63.6(e)(1)(ii) No 

63.6(e)(1)(iii) Yes 

63.6(e)(2) No Section reserved. 

63.6(e)(3) No 

63.6(f)(1) No 

63.6(g) Yes 

63.6(h) No No opacity limits in 

rule. 
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Reference 

Applies to 

subpart X Comment 

63.6(i) Yes 

63.6(j) Yes 

§63.7(a)-(d) Yes 

§63.7(e)(1) No See 63.543(j) 

§63.7(e)(2)-(e)(4) Yes 

63.7(f), (g), (h) Yes 

63.8(a)-(b) Yes 

63.8(c)(1)(i) No See 63.543(k) for 

general duty 

requirement. 

63.8(c)(1)(ii) Yes 

63.8(c)(1)(iii) No 

63.8(c)(2)-(d)(2) Yes 

63.8(d)(3) Yes, 

except for 

last 

sentence 

63.8(e)-(g) Yes 

63.9(a),(b),(c),(e),(g),(h)(1)t

hrough (3), (h)(5) and (6), (i) 

and (j) 

Yes 

63.9(f) No 

63.9(h)(4) No Reserved 

63.10 (a) Yes 

63.10 (b)(1) Yes 

63.10(b)(2)(i) No 

63.10(b)(2)(ii) No See 63.550 for 

recordkeeping of 

occurrence and 

duration of 

malfunctions and 

recordkeeping of 

actions taken during 

malfunction. 

63.10(b)(2)(iii) Yes 

63.10(b)(2)(iv)-(b)(2)(v) No 

63.10(b)(2)(vi)-(b)(2)(xiv) Yes 

63.(10)(b)(3) Yes 

63.10(c)(1)-(9) Yes 

63.10(c)(10)-(11) No See 63.550 for 

recordkeeping of 

malfunctions. 

63.10(c)(12)-(c)(14) Yes 
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Reference 

Applies to 

subpart X Comment 

63.10(c)(15) No 

63.10(d)(1)-(4) Yes 

63.10(d)(5) No See 63.550(e)(11) 

for reporting of 

malfunctions. 

63.10(e)-((f) Yes 

63.11* * * * 

*63.11

No Flares will not be 

used to comply with 

the emission limits

63.12 to 63.15 Yes
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Table 2 to Subpart X of Part 63-–Emissions LimitslimitsLimits

for Secondary Lead Smelting Furnaces 

For vents from 

these 

processes...***...

You must meet the following emissions 

limits...***...a

Total Hydrocarbon 

ppm by volume expressed as 

propane corrected to 4 

percent carbon dioxide

Dioxin and Furan 

(dioxins and 

furans) 

nanograms/dscm 

expressed as TEQ 

corrected to 7 

percent O2

Collocated blast 

and reverberatory 

furnace (new and 

existing)

20 ppmv 0.50 ng/dscm

Collocated blast 

and reverberatory 

furnace when the 

Reverberatory 

furnace is not 

operating 

(existing)for units 

that comments 

construction or 

reconstruction 

before June 9, 

1994

360 ppmv 170 ng/dscm

Collocated blast 

and reverberatory 

furnace when the 

reverberatory 

furnace is not 

operating for 

units that 

commence 

construction or 

reconstruction 

after June 9, 1994 

70 ppmv 170 ng/dscm

Blast furnace that 

commence 

construction or 

reconstruction 

before June 9, 

1994

360 ppmv 170 ng/dscm
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For vents from 

these 

processes...***...

You must meet the following emissions 

limits...***...a

Total Hydrocarbon 

ppm by volume expressed as 

propane corrected to 4 

percent carbon dioxide

Dioxin and Furan 

(dioxins and 

furans) 

nanograms/dscm 

expressed as TEQ 

corrected to 7 

percent O2

Blast furnaces 

that commence 

construction or 

reconstruction 

after June 9, 1994

70 ppmv 170 ng/dscm

Blast furnaces 

that commence 

construction or 

reconstruction 

after May 19, 2011 

70 ppmv 10 ng/dscm

Reverberatory and 

electric furnace

that commence 

construction or 

reconstruction 

before May 19, 

2011

12 ppmv 0.20 ng/dscm

Reverberatory and 

electric furnace 

that commence 

construction or 

reconstruction 

after May 19, 2011

12 ppmv 0.10 ng/dscm

Rotary furnaces (new 

and existing)

610 ppmv 1.0 

ng/dscm

aThere are no standards for dioxins and furans during periods of 

startup and shutdown.

Table 3 to Subpart X of Part 63 – Toxic Equivalency Factors 

Dioxin/furan congener Toxic equivalency factor 

2,3,7,8-tetrachlorinated dibenzop-dioxin 1 

1,2,3,7,8-pentachlorinated 0.5 
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Dioxin/furan congener Toxic equivalency factor 

dibenzo-p-dioxin 

1,2,3,4,7,8-hexachlorinated 

dibenzo-p-dioxin 0.1 

1,2,3,7,8,9-hexachlorinated 

dibenzo-p-dioxin 0.1 

1,2,3,6,7,8-hexachlorinated 

dibenzo-p-dioxin 0.1 

1,2,3,4,6,7,8-heptachlorinated 

dibenzo-p-dioxin 0.01 

octachlorinated dibenzo-p-dioxin 0.001 

2,3,7,8-tetrachlorinated 

dibenzofuran 0.1 

2,3,4,7,8-pentachlorinated 

dibenzofuran 0.05 

1,2,3,7,8-pentachlorinated 

dibenzofuran 0.5 

1,2,3,4,7,8-hexachlorinated 

dibenzofuran 0.1 

1,2,3,6,7,8-hexachlorinated 

dibenzofuran 0.1 

1,2,3,7,8,9-hexachlorinated 

dibenzofuran 0.1