*** E.O. 12866 Review – Draft ( 10 / 28 /2011) – Do Not Cite, Quote or Release During Review *** E.O. 12866 Ferroalloys 2060 - AQ11 Propos al 20111006 6560 - 50 - P

ENVIRONMENTAL PROTECTION AGENCY

40 CFR Part 63 [ EPA - HQ - OAR - 2010 - 0895 ; FRL - ]

RIN 2060 - AQ - 11 National Emissions Standards for Hazardous Air Pollutants: Ferroalloys Production
AGENCY: Environmental Protection Agency (EPA).
ACTION : Proposed rule. SUMMARY: The EPA is proposing amendments to the national emissions standards for hazardous air pollutants for F erroalloys P roduction to address the results of the residual risk and technology review that the EPA is required to conduct under the Clean Air Act. These proposed amendments include revisions to particulate matter standards for electric arc furnaces, metal oxygen refining process es , and crushing and screening operations. T he amendments also add emiss ion limits for hydrochloric acid, hydrofluoric acid, mercury, p olycyclic

a romatic h ydrocarbons , and formald e hyde fr om electric arc furnaces. Furthermore, T t he amendments also expand and revise the requirements to control fugitive emissions from furnace ope rations and casting. Other proposed requirements related to testing , monitoring ,

no tification, recordkeeping, and reporting are included . We are also proposing to revise provisions addressing periods of startup,***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 2 of 256 shutdown, and malfunction to ensure that the rules are consistent with a recent court decision. DATES: Comments must be received on or before [ INSERT THE DATE 45
DAYS AFTER THE DATE OF PUBLICATION OF THIS PROPOSED RULE IN THE
FEDERAL REGISTER ]. Under the Paperwork Reduction Act, comments on the inf ormation collection provisions are best assured of having full effect if the Office of Management and Budget (OMB) receives a copy of your comments on or before [ INSERT THE DATE 30 DAYS AFTER THE DATE
OF PUBLICATION OF THIS PROPOSED RULE IN THE FEDERAL REG ISTER ]. Public Hearing . If anyone contacts the EPA requesting to speak at a public hearing by [ INSERT THE DATE 10 DAYS AFTER THE DATE OF
PUBLICATION IN THE FEDERAL REGISTER ] , a public hearing will be held

on [ INSERT THE DATE 15 DAYS AFTER THE DATE OF PUBLI CATION IN THE
FEDERAL REGISTER ]
. ADDRESSES: Submit your comments, identified by Docket ID Number EPA

HQ

- OAR

- 2010

- 0895 , by one of the following methods: http:// www.regulations.gov : Follow the on

- line instructions for submitting comments. Email : a - and

- r - doc ket@epa.gov , Attention Docket ID Number EPA

HQ

- OAR

- 2010

- 0895
. Fax: (202) 566

- 9744, Attention Docket ID Number EPA

- HQ

- OAR

- 2010

- 0895
. Mail : U.S. Postal Service, send comments to: EPA Docket Center, EPA West (Air Docket), Attention Docket ID Number EPA

- HQ

- OAR

2010

- 0895 , U.S. Environmental Protection Agency, Mailcode: 2822T, 1200 Pennsylvania Ave., NW, Washington, DC 20460. Please include a total of two copies. In addition, please mail a copy of your comments on the information collection provisions to the Offi ce of Information and Regulatory Affairs, Office of Management and Budget (OMB), Attn: Desk Officer for EPA, 725 17 th Street, NW, Washington, DC 20503.***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 3 of 256 Hand Delivery : U.S. Environmental Protection Agency, EPA West (Air Docket), Room 3334, 1301 Constitutio n Ave., NW, Washington, DC 20004, Attention Docket ID Number EPA

- HQ

- OAR

- 201 0

- 0895
. Such deliveries are only accepted during the Docket‘s normal hours of operation, and special arrangements should be made for deliveries of boxed information.

Instructions
. Direct your comments to Docket ID Number EPA

- HQ

OAR

- 2010

- 0895
. The EPA‘s policy is that all comments received will be included in the public docket without change and may be made available on

- line at http:// www.regulations.gov , including any personal infor mation provided, unless the comment includes information claimed to be confidential business information (CBI) or other information whose disclosure is restricted by statute. Do not submit information that you consider to be CBI or otherwise protected thro ugh http:// www.regulations.gov or email. The http:// www.regulations.gov website is an ―anonymous access‖ system, which means the EPA will not know your identity or contact information unless you provide it in the body of your comment. If you send an email comment directly to the EPA without going through http:// www.regulations.gov , your email address will be automatically captured and included as part of the comment that is placed in the public docket and made available on the Internet. If you submit an ele ctronic comment, the EPA recommends that you include your name and other contact information in the body of your comment and with any disk or CD

- ROM you submit. If the EPA cannot read your comment due to technical difficulties and cannot contact you for cl arification, The***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 4 of 256 EPA may not be able to consider your comment. Electronic files should avoid the use of special characters, any form of encryption, and be free of any defects or viruses. For additional information about the EPA‘s public docket, visit the E PA Docket Center homepage at

e pa.gov/epahome/dockets.htm
. Docket
. The EPA has established a docket for this rulemaking under Docket ID Number EPA

- HQ

- OAR

- 2010

- 0895
. All documents in the docket are listed in the regulations.gov index. Although listed in the index, some information is not publicly available, e.g. , 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 cop y. Publicly available docket materials are available either electronically in regulations.gov or in hard copy at the EPA Docket Center, EPA West, Room 3334, 1301 Constitution Ave., NW, Washington, DC. The Public Reading Room is open from 8:30 a.m. to 4:30 p.m., Monday through Friday, excluding legal holidays. The telephone number for the Public Reading Room is (202) 566

- 1744, and the telephone number for the EPA Docket Center is (202) 566

- 1742. Public Hearing . If a public hearing is held, it will begin at
1 0:00 a.m. on [ INSERT THE DATE 15 DAYS AFTER THE DATE OF PUBLICATION
OF THIS PROPOSED RULE IN THE FEDERAL REGISTER ] and will be held at the EPA‘s campus in Research Triangle Park, North Carolina, or at an alternate facility nearby. Persons interested in pre senting oral***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 5 of 256 testimony or inquiring as to whether a public hearing is to be held should contact Ms. Virginia Hunt, Office of Air Quality Planning and Standards (OAQPS) , Sector Policies and Programs Division, (D243

- 02), U.S. Environmental Protection Agency, Research Triangle Park, North Carolina 27711; telephone number: (919) 541

– 0832. FOR FURTHER INFORMATION CONTACT : For questions about this proposed action, c ontact Mr . Conrad Chin , Sector Policies and Programs Division (D243

- 02), Office of Air Quality Pla nning and Standards, U.S. Environmental Protection Agency, Research Triangle Park, North Carolina 27711, telephone (919) 541

- 1512 ; fax number: (919) 541

- 320 7 ; and email address: chin.conrad @epa. gov . For specific information regarding the risk modeling meth odology, contact Ms. Darcie Smith , Health and Environmental Impacts Division (C539

- 02), Office of Air Quality Planning and Standards, U.S. Environmental Protection Agency, Research Triangle Park, North Carolina 27711; telephone number: (919) 541

– 2076 ; fax number: (919) 541

– 0840; and email address: smith.darcie@epa.gov . For information about the applicability of the National Emissions Standards for Hazardous Air Pollutants ( NESHAP ) to a particular entity, contact the appropriate person listed in Table 1 of t his preamble.
Table 1
. List o f E PA Contacts For The N ESHAP Addressed In This Proposed Action NESHAP for: OECA Contact 1 OAQPS Contact 2 Ferroalloys Production Cary Secrest , (202)

564

- 8661 secrest.cary @epa.gov Conrad Chin , (919) 541

- 1512 , chin.conrad @epa. g ov 1 EPA Office of Enforcement and Compliance Assurance.***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 6 of 25 6 2 EPA Office of Air Quality Planning and Standards. SUPPLEMENTARY INFORMATION : Preamble Acronyms and Abbreviations Several acronyms and terms used to describe industrial processes, data inventorie s, and risk modeling are included in this preamble. While this may not be an exhaustive list, to ease the reading of this preamble and for reference purposes, the following terms and acronyms are defined here:

ACI Activated Carbon Injection ADAF age - depend ent adjustment factors AEGL acute exposure guideline levels AERMOD air dispersion model used by the HEM

- 3 model ATSDR Agency for Toxic Substan ces and Disease Registry BLDS bag leak detection system BPT benefit

- per - ton CAA Clean Air Act CalEPA California E PA CBI Confidential Business Information CFR Code of Federal Regulations CIIT Chemical Industry Institute of Toxicology CO 2 carbon dioxide EJ environmental justice EPA Environmental Protection Agency ERPG Emergency Response Planning Guidelines ERT Electro nic Reporting Tool FR Federal Register gr/dscf grains per dry standard cubic foot HAP hazardous air pollutants HCl hydrochloric acid HEM

- 3 Human Exposure Model, Version 1.1.0 HF hydrofluoric acid HI Hazard Index HON hazardous organic national emissions sta ndard s for

hazardous air pollutants HQ Hazard Quotient***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 7 of 256 ICR i nformation collection request IRIS Integrated Risk Information System kg/hr kilograms per hour kg/hr/MW kilograms per hour per megawatt k m kilometer lb/hr pounds per hour lb/hr/MW pounds per hour per megawatt lb/yr p ounds per year LML lowest measured level MACT maximum achievable control technology MACT Code Code within the National Emissions Inventory used to

identify processes included in a source category MDL method detection limit mg/dscm milli grams per dry standard cubic meter MIR maximum individual risk MM millions MW megawatt NAC/AEGL Committee National Advisory Committee for Acute Exposure Guideline

Levels for Hazardous Substances NAICS North American Industry Classification System NAS Nat ional Academy of Sciences NATA National Air Toxics Assessment NESHAP National Emissions Standard s for Hazardous Air P ollutants NRC National Research Council NTTAA National Technology Transfer and Advancement Act OAQPS Office of Air Quality Planning and Sta ndards OECA Office of Enforcement and Compliance Assurance OMB Office of Management and Budget PAH polycyclic aromatic hydrocarbons PB

- HAP h azardous air pollutants known to be persistent and bio

accumulative in the environment PM particulate matter POM po lycyclic organic matter QA quality assurance RCRA Resource Conservation and Recovery Act RDL representative detection level REL reference exposure level RFA Regulatory Flexibility Act RfC reference concentration***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 8 of 256 RfD reference dose RIA Regulatory Impact An alysis RTR residual risk and technology review SAB Science Advisory Board SBA Small Business Administration SOP standard operating procedures SSM startup, shutdown , and malfunction TOSHI target organ

- specific hazard index TPY tons per year TRIM .FaTE Total Risk Integrated Methodology.Fate, Transport, and

Ecological Exposure model TTN Technology Transfer Network UF uncertainty factor μg/m 3 microgram per cubic meter UMRA Unfunded Mandates Reform Act UPL upper predictive limit URE unit risk estimate VCS volunta ry consensus standards WWW world wide web Organization of this Document
. The information in this preamble is organized as follows:

I. General Informatio n A . Summary of Costs and Benefits B. What are NESHAP? C. Does this action apply to me? D . Where can I get a copy of this document and other related infor mation? E . What should I consider as I prepare my comments for the EPA? II. Background A. What is this source category and how did the 1999 MACT standards regulate its HAP emissions? B. What data collection activities were conducted to support this action? C. What other relevant background information from previous studies on ferroalloys emissions is available? III. Analyses Performed A. How did we address unregulated emissions sources? B. How did we estimate risks posed by the source category?***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 9 of 256 C. How did we consider the risk results in making decisions for this proposal? D. How did we perform the technology review? E. What other issues are we addressing in this proposal? IV. Analytical Results and Proposed Decisions A. What are the results of our analyses and proposed decisions regarding unregulated pollutants? B . What are th e results of the risk assessment and analyses? C . What are our proposed decisions based on risk acceptability and ample margin of safety? D What are the results and proposed decisions base d on our technology review? E. What other actions are we proposing? F. What c ompliance d ates are we proposing? V. Summary of Cost, Environmental, and Econ omic Impacts A. What are the affected sources? B. What are the air quality impacts? C. What are the cost impacts? D. Wha t are the economic impacts? E. What are the benefits? F. What demographic groups might benefit from this regulation ? VI. Request for Comments VII. Submitt ing Data Corrections VIII. Statutory and Executive Order Reviews A. Executive Order 12866: Regulatory Planning and Review and Executive Order 13563: Improving Regulation and Regulatory Rev iew B. Paperwork Reduction Act C. Regulatory Flexibility Act D. Unfunded Mandates Reform Act E. Executive Order 13132: F ederalism 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
I . General Information
A . Summary of Costs and Benefits***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 10 of 256 Consistent with the recently issued Executive Order 13563, ―Improving Regulation and Regulatory Review,‖ we have estimated the
cost s and benefits of the proposed rule. The estimated net benefits of the proposed rule at a 3 percent discount rate are $ 6 7 6 to $ 17 0 6

m illion or $ 5 9 6 to $ 15 0 6 m illion at a 7 percent discount rate. The monetized benefits in this analysis are due to PM 2.5 co - benefits, as HAP benefits are not monetized
. Table 2 presents is a summary of the results of the analysis. Table 2 . Summary of the Estimated Annual Monetized Benefits, Social Costs, and Net Benefits for the Proposed Rule in 201 5 (Millions of 20 10 $) a 3% Discount Rate 7% Discount Rate Total Monetized Benefits b $ 7 1 0 to $1 7 8 0 $ 6 3 0 to $ 160 Total Social Cost s c $ 4. 1 0 $ 4. 1 3 Net Benefits $ 6 7 6 to $ 1 7 0 6 $ 5 9 6 to $ 1 5 0 6 Non

- monetized Benefits Reduced exposure to Hazardous Air Pollutants (HAP) , including Manganese, polycyclic aromatic hydrocarbons (PAH), Chromium, Arsenic, Nickel, and Mercury a All estimates are for implementation year 2015 ( the benefit estimates use 2016 values as an approximation ); and are rounded to two or three (when more detail is needed) s ignificant figures so numbers may not sum across columns. All fine particles are assumed to have equivalent health effects, but the benefit

- per - t on (BPT) estimates vary because each ton of precursor reduced has a different propensity to become particulate matter ( PM ) 2.5 . T hese benefits incorporate the conversion from precursor emissions to ambient fine particles. The BPT estimates are based on rec ent air quality modeling specific to the ferroalloys sector. b All estimates are for 2016, which we use as an approximation for impacts in 2015. c The compliance costs of the proposal serve as a proxy for the social costs. The compliance costs are estimat ed using a 7% interest rate.
Under the proposed amendments, ferroalloys production facilities are expected to incur $11.4 million in capital costs to install new***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 11 of 256 air pollution controls and new or improved continuous monitoring systems . We have estimated t he annualized c osts to be $4.0 million, which includes estimated monitoring and testing costs. S ection V.C of this preamble contains more detail on these estimated cost impacts.
B . What are NESHAP? 1. What is the statutory authority for this action? Secti on 112 of the Clean Air Act ( CAA ) establishes a two

- stage regulatory process to address emissions of 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
1 12(b), CAA section 112(d) calls for us to promulgate n ational technology

- based e mission s tandards for h azardous a ir p ollutants ( NESHAP ) for those sources. ―Major sources‖ are those that emit or have the potential to emit 10 tons per year ( tpy ) or more of a single HAP or 25 tpy or more of any combination of HAP. For major sources, these technology

- based standards must reflect the maximum degree of emissions reductions of HAP achievable (after considering cost, energy requirements, and non a ir quality health a nd environmental impacts) and are commonly referred to as maximum achievable control technology (MACT) standards. MACT standards must require the maximum degree of emissions reduction achievable through the application of measures, processes, methods, syst ems, or techniques, including, but not limited to,

measures that ( 1 ) reduce the volume of or eliminate pollutants***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 12 of 256 through process changes, substitution of materials or other modifications ; ( 2 ) enclose systems or processes to eliminate emissions ; ( 3 ) captur e or treat pollutants when released from a process, stack, storage, or fugitive emissions point ; ( 4 ) are design, equipment, work practice, or operational standards (including requirements for operator training or certification) ; or ( 5 ) are a combination of the above
. CAA section 112(d)(2)(A)

- (E ). The MACT standards may take the form of design, equipment, work practice, or operational standards where the EPA first determines either that, ( 1 ) a pollutant cannot be emitted through a conveyance designed and

con structed to emit or capture the pollutants, or that any requirement for, or use of, such a conveyance would be inconsistent with law ; or ( 2 ) the application of measurement methodology to a particular class of sources is not practicable due to technological and economic limitations
. CAA sections 112(h)(1)

- (2 ). The MACT ―floor‖ is the minimum control level allowed for MACT standards promulgated under CAA section 112(d)(3) , and may not be based on cost considerations. For new sources, the MACT floor cannot be less stringent than the emissions control that is achieved in practice by the best

- controlled similar source. The MACT floors for existing sources can be less stringent than floors for new sources, but they cannot be less stringent than the average emissio ns limitation achieved by the best

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

- performing five***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 13 of 256 sources for categories or subcategories with fewer than 30 sources). In developing MACT standards, we must also conside r control options that are more stringent than the floor. We may establish standards more stringent than the floor based on consideration s of the cost of achieving the emissions reductions, any non

- air quality health and environmental impacts, and energy r equirements. The EPA is then required to review these technology

- based standards and revise them ―as necessary (taking into account developments in practices, processes, and control technologies)‖ no less frequently than every 8 years, under CAA section 11 2(d)(6). In conducting this review, the EPA is not obliged to completely recalculate the prior MACT determination. NRDC v. EPA , 529 F.3d 1077, 1084 (D. C. Cir., 2008). The second stage in standard

- setting focuses on reducing any remaining ( i.e. , ―residual ‖ ) risk according to CAA section 112(f). This provision require s , first, that the EPA prepare a Report to Congress discussing (among other things) methods of calculating the risks posed (or potentially posed) by sources after implementation of the MACT sta ndards, the public health significance of those risks, and the EPA‘s recommendations as to legislation regarding such remaining risk. The EPA prepared and submitted this report ( Residual Risk Report to Congress , EPA

– 453/R

– 99

– 001) in March 1999. Congress di d not act in response to the report, thereby triggering the EPA‘s***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 14 of 256 obligation under CAA section 112(f)(2) to analyze and address residual risk.
CAA s ection 112(f)(2) requires us to determine for source categories subject to certain MACT standards, whether t h os e emissions standards provide an ample margin of safety to protect public health. If the MACT standards for HAP ―classified as a known, probable, or possible human carcinogen do not reduce lifetime excess cancer risks to the individual most exposed to e missions from a source in the category or subcategory to less than one in one million,‖ the EPA must promulgate residual risk standards for the source category (or subcategory) , as necessary to provide an ample margin of safety to protect public health
. 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)
. (―If EPA determines that the existing technol ogy - based standards provide an ―ample margin of safety,‖ then the Agency is free to readopt those standards during the residual risk rulemaking.‖) The EPA must also adopt more stringent standards, if necessary, to prevent an adverse environmental effect, 1 but mus t consider cost, energy, safety and other relevant factors in doing so
. Section 112(f)(2) of the CAA expressly preserve s our use of the
two

- step process for developing standards to address any residual

1 ― Adverse environmental effect‖ is defined in CAA section 112(a)(7) as any significant and widespread adverse effect, which may be reasonably anticipated to wildlife, aquatic life or natural resources, including adverse impacts on populations of endangered o r threatened species or significant degradation of environmental qualities over broad areas.***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 15 of 256 risk and our interpretation of ―ample margin of safety‖ developed in the National Emissions Standards for Hazardous Air Pollutants: Benzene Emissions from Maleic Anhydride Plants, Ethylbenzene/Styrene Plants, Benzene Storage Vessels, Benzene Equipment Leaks, and Coke By

- Product Recovery Plants (Benzene NESHAP) (54 Federal Register ( FR ) 38044, September 14, 1989). The first step in this process is the determination of acceptable risk. The second step provides for an ample margin of safety to protect public health, which is the level at which the standards are to be set (unless a n even more stringent standard is necessary to prevent, taking into consideration costs, energy, safety, and other relevant factors, an adverse environmental effect). The terms ―individual most exposed,‖ ―acceptable level‖ and ―ample margi n of safety‖ are not specifically defined in the CAA. However, CAA section 112(f)(2)(B) preserves the EPA‘s interpretation
set out in the Benzene NESHAP, and the U nited States Court of Appeals for the D istrict of Columbia Circuit in NRDC v. EPA , 529 F.3d 1 077 , concluded that the EPA‘s interpretation of sub section 112(f)(2) is a reasonable one. See NRDC v. EPA , 529 F.3d at 1083 (D.C. Cir. 2008), which says ―[S]ubsection 112(f)(2)(B) expressly incorporates the EPA‘s interpretation of the Clean Air Act from th e Benzene standard, complete with a citation to the Federal Register. ‖ See also, A Legislative History of the Clean Air Act Amendments of 1990 , volume 1, p. 877 (Senate debate on Conference Report). We also notified***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 16 of 256 Congress in the Residual Risk Report to Congress that we intended to use the Benzene NESHAP approach in making CAA section 112(f) residual risk determinations (EPA

– 453/R

– 99

– 001, p. ES

– 11). In the Benzene NESHAP, we stated as an overall objective: * * * in protecting public health with an ample m argin of safety, we strive to provide maximum feasible protection against risks to health from hazardous air pollutants by (1) protecting the greatest number of persons possible to an individual lifetime risk level no higher than approximately 1

- in

- 1 milli on; and (2) limiting to no higher than approximately 1

- in

- 10 thousand [ i.e. , 100

- in

- 1 million] the estimated risk that a person living near a facility would have if he or she were exposed to the maximum pollutant concentrations for 70 years. The Agency a lso stated that, ―The EPA also considers incidence (the number of persons estimated to suffer cancer or other serious health effects as a result of exposure to a pollutant) to be an important measure of the health risk to the exposed population. Incidence measures the extent of health risks to the exposed population as a whole, by providing an estimate of the occurrence of cancer or other serious health effects in the exposed population.‖ The Agency went on to conclude that ―estimated incidence would be wei ghed along with other health risk information in judging acceptability.‖ As explained more fully in our Residual Risk Report to Congress , the EPA does not define ―rigid line[s] of acceptability,‖ but rather considers broad objectives to be weighed with a s eries of other health measures and factors (EPA

– 453/R

– 99

– 001, p. ES

– 11). The determination of what represents an ―acceptable‖ risk is based on a judgment of ―what risks are acceptable in the world in***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 17 of 256 which we live‖ ( Residual Risk Report to Congress , p. 178 , quoting the Vinyl Chloride decision at 824 F.2d 1165) recognizing that our world is not risk

- free. In the Benzene NESHAP, we stated that ―EPA will generally presume that if the risk to [the maximum exposed] individual is no higher than approximately one in 10 thousand, that risk level is considered acceptable.‖ 54 FR 38045. We discussed the maximum individual lifetime cancer risk (or maximum individual risk (MIR)) as being ―the estimated risk that a person living near a plant would have if he or she were exposed to the maximum pollutant concentrations for 70 years.‖ Id
. We explained that this measure of risk ―is an estimate of the upper bound of risk based on conservative assumptions, such as continuous exposure for 24 hours per day for 70 years.‖ Id
. We a cknowledge that maximum individual lifetime cancer risk ―does not necessarily reflect the true risk, but displays a conservative risk level which is an upper

- bound that is unlikely to be exceeded.‖ Id. Understanding that there are both benefits and limita tions to using maximum individual lifetime cancer risk as a metric for determining acceptability, we acknowledged in the 1989 Benzene NESHAP that ―consideration of maximum individual risk * * * must take into account the strengths and weaknesses of this me asure of risk.‖ Id
. Consequently, the presumptive risk level of 100 in one million ( one in 10 thousand) provides a benchmark for judging the acceptability of***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 18 of 256 maximum individual lifetime cancer risk, but does not constitute a rigid line for making that dete rmination. The Agency also explained in the 1989 Benzene NESHAP the following: ―In establishing a presumption for MIR, rather than a rigid line for acceptability, the Agency intends to weigh it with a series of other health measures and factors. These inc lude the overall incidence of cancer or other serious health effects within the exposed population, the numbers of persons exposed within each individual lifetime risk range and associated incidence within, typically, a 50

- kilometer (km) exposure radius ar ound facilities, the science policy assumptions and estimation uncertainties associated with the risk measures, weight of the scientific evidence for human health effects, other quantified or unquantified health effects, effects due to co

- location of facil ities, and co

- emissions of pollutants.‖ Id
. In some cases, these health measures and factors taken together may provide a more realistic description of the magnitude of risk in the exposed population than that provided by maximum individual lifetime cancer risk alone. As explained in the Benzene NESHAP, ―[e]ven though the risks judged  ̳ acceptable ‘ by EPA in the first step of the Vinyl Chloride inquiry are already low, the second step of the inquiry, determining an  ̳ ample margin of safety, ‘ again includes

co nsideration of all of the health factors, and whether to reduce the risks even further.‖ I n the ample margin of safety decision process,***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 19 of 256 the Agency again considers all of the health risks and other health information considered in the first step. Beyond th at information, additional factors relating to the appropriate level of control will also be considered, including costs and economic impacts of controls, technological feasibility, uncertainties, and any other relevant factors. Considering all of these fa ctors, the Agency will establish the standard at a level that provides an ample margin of safety to protect the public health, as required by CAA section 112(f)
. 54 FR 38046
. 2. How do we consider the risk results in making decisions? As discussed in the p revious section of this preamble, we apply
a two

- step process for developing standards to address residual risk. In the first step, the EPA determines if risks are acceptable. This determination ―considers all health information, including risk estimation uncertainty, and includes a presumptive limit on maximum individual lifetime [cancer] risk (MIR) 2 of approximately one in 10 thousand [ i.e. , 100 in one million].‖ 54 FR 38045. In the second step of the process, the EPA sets the standard at a level that pro vides an ample margin of safety ―in consideration of all health information, including the number of persons at risk levels higher than approximately one in one million, as well as other relevant factors, including costs and economic impacts, technological feasibility, and other factors relevant to each particular decision.‖ Id.

2 Although defined as ―maximum individual risk,‖ MIR refers only to cancer risk. MIR, one metric for assessing cancer risk, is the estimated risk were an individua l exposed to the maximum level of a pollutant for a lifetime.***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 20 of 256 In past residual risk determinations, the EPA presented a number of human health risk metrics associated with emissions from the category under review, including: t he MIR; the numb ers of persons in various risk ranges; cancer incidence; the maximum noncancer hazard index (HI); and the maximum acute noncancer hazard. In estimating risks, the EPA considered sources under review that are located near each other and that affect the same population. The EPA developed risk estimates based on the actual emissions from the source category under review as well as based on the maximum emissions allowed pursuant to the source category MACT standard. The EPA also discussed and considered risk es timation uncertainties. The EPA is providing this same type of information in support of these actions. The Agency acknowledges that the Benzene NESHAP provides flexibility regarding what factors the EPA might consider in making our determinations and how they might be weighed for each source category. In responding to comment on our policy under the Benzene NESHAP, the EPA explained that: ―The policy chosen by the Administrator permits consideration of multiple measures of health risk. Not only can the MIR figure be considered, but also incidence, the presence of noncancer health effects, and the uncertainties of the risk estimates. In this way, the effect on the most exposed individuals can be reviewed as well as the impact on the general public. These fac tors can then be weighed in each individual case. This approach complies with the Vinyl Chloride mandate that the***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 21 of 256 Administrator ascertain an acceptable level of risk to the public by employing [her] expertise to assess available data. It also complies with the Congressional intent behind the CAA, which did not exclude the use of any particular measure of public health risk from the EPA's consideration with respect to CAA section 112 regulations, and, thereby, implicitly permits consideration of any and all measures of health risk which the Administrator, in [her] judgment, believes are appropriate to determining what will  ̳protect the public health.‘‖ For example, the level of the MIR is only one factor to be weighed in determining acceptability of risks. T he Benzene NESHAP explains ―an MIR of approximately one in 10 thousand should ordinarily be the upper end of the range of acceptability. As risks increase above this benchmark, they become presumptively less acceptable under CAA section 112, and would be w eighed with the other health risk measures and information in making an overall judgment on acceptability. Or, the Agency may find, in a particular case, that a risk that includes MIR less than the presumptively acceptable level is unacceptable in the ligh t of other health risk factors.‖ Similarly, with regard to the ample margin of safety analysis, the Benzene NESHAP states that: ―EPA believes the relative weight of the many factors that can be considered in selecting an ample margin of safety can only be determined for each specific source category. This occurs mainly because technological and economic factors (along with***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 22 of 256 the health

- related factors) vary from source category to source category.‖
C . Does this action apply to me? The regulated industrial s ource category that is the subject of this proposal is listed in Table 3 . Table 3 of this preamble is not intended to be exhaustive, but rather provides a guide for readers regarding the entities likely to be affected by this proposed action.
Th e proposed standard s , once finalized, will be directly applicable to affected sources. Federal, s tate , local, and tribal government entities are not affected by this proposed action. As defined in the MACT (major source) source category list ing report published by th e EPA in 1992, the ―Ferroalloys Production‖ source category is any facility engaged in producing ferroalloys such as ferrosilicon, ferromanganese, and ferrochrome
. 3 Subsequently, the EPA redefined the
MACT source category when it promulgated the Ferroalloy MACT standard so that it now includes only major sources that produce products containing manganese. ( 64 FR 27450 , May 20, 1999 ) The MACT standard applies specifically to two ferroalloy product types: ferromanganese and silicomanganese.
Table 3
. N ESHAP an d Industrial Source Categories Affected By This Proposed Action Source Category NESHAP NAICS code 1 MACT

code 2 Ferroalloys Production Ferroalloys Production 331112 0 3 0 4

3 EPA. Documentation for Developing the Initial Source Category List

– Final Report, EPA/OAQPS, EPA

- 450/3

- 91

- 030, July, 1992.***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 23 of 256 1 North American Industry Classification System 2 Maximum Achievable Control Techno logy D . Where can I get a copy of this document and other related information ? In addition to being available in the docket, an electronic copy of this proposal will also be available on the World Wide Web (WWW) through the EPA‘s Technology Transfer Netwo rk (TTN). Following signature by the EPA Administrator, a copy of this proposed action will be posted on the TTN‘s policy and guidance page for newly proposed or promulgated rules at the following address: http://www.epa.gov/ttn/atw/rrisk/rtrpg.html . The T TN provides information and technology exchange in various areas of air pollution control. Supporting documents and other relevant information including a version of the regulatory text showing specific proposed changes is located in the docket (EPA

- HQ

- OAR

- 2010

- 0895). Additional information is available on the residual risk and technology review (RTR) webpage at : http://www.epa.gov/ttn/atw/rrisk/rtrpg.html . This information includes source category descriptions and detailed emissions estimates and other dat a that were used as inputs to the risk
assessment.
E . What should I consider as I prepare my comments for the EPA? Submitting CBI . Do not submit information containing CBI to the EPA through http:// www.regulations.gov or e - mail. Clearly mark the part or al l of the information that you claim to be CBI. For CBI***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 24 of 256 information on a disk or CD

- ROM that you mail to the EPA, mark the outside of the disk or CD

- ROM as CBI and then identify electronically within the disk or CD

- ROM the specific information that is claim ed as
CBI. In addition to one complete version of the comment s that includes information claimed as CBI, a copy of the comment s that does not contain the information claimed as CBI must be submitted for inclusion in the public docket. If you submit a CD

- RO M or disk that does not contain CBI, mark the outside of the disk or CD

- ROM clearly that it does not contain CBI. Information not marked as CBI will be included in the public docket and the EPA‘s electronic public docket without prior notice. Information m arked as CBI will not be disclosed except in accordance with procedures set forth in 40 Code of Federal Regulations ( CFR ) part 2. Send or deliver information identified as CBI only to the following address: Roberto Morales, OAQPS Document Control Officer ( C404

- 02), OAQPS , U.S. Environmental Protection Agency, Research Triangle Park, North Carolina 27711, Attention Docket ID Number EPA

- HQ

- OAR

- 201 0

- 0 895
. II . Background
A. What is this source category and how did the 1999 MACT standards regulate its HAP emissi ons? The NESHAP (or MACT rule ) for Ferroalloys Production: Ferromanganese and Silicomanganese was promulgated on May 20, 1999***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 25 of 256 (6 4 FR 27450 ) and codified at 40 CFR part 63, subpart XX X. 4 The 199 9
NESHAP applies to all new and existing ferroalloys production facilities that manufacture ferromanganese or silicomangan e se and are major sources or are co

- located at major sources of HAP emissions
. The rule‘s product

- specific applicability reflected the fact that there was only one known major source within the Fer roalloys Production source category at the time of promulgation . Since then, one other major source of silicomanganese has started production , but it was permitted as an existing source
. Today , there are two ferroalloys production facilit ies subject to the MACT rule. No greenfield manganese ferroalloys production facilities have been built in over 20 years, and we anticipate no greenfield manganese ferroalloys production fac ilities in the foreseeable future, although one facility is currently exploring
expa nding operations through the addition of a new furnace
. Ferroalloys are alloys of iron in which one or more chemical elements (such as chromium, manganese, and silicon) are added into molten metal. Ferroalloys are consumed primarily in iron and steel makin g and are used to produce steel and cast iron products with enhanced or special properties.
F erroalloys within the scope of this source category are produced using submerged electric arc furnaces , which are furnaces in

4 The emission limits were revised on March 22, 2001 (66 FR 16024) i n response to a petition for reconsideration submitted to the EPA following promulgation of the final rule, and a petition for review filed in the U.S. Court of Appeals for the District of Columbia Circuit.***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 26 of 256 which the electrodes are submerged i nto the charge. The submerged arc process is a reduction smelting operation. The reactants consist of metallic ores (ferrous oxides, silicon oxides, manganese oxides, etc.) and a carbon

- source reducing agent, usually in the form of coke, charcoal, high

- an d low

- volatility coal, or wood chips. Raw materials are crushed and sized , and then conveyed to a mix house for weighing and blending. Conveyors, buckets, skip hoists, or cars transport the processed material to hoppers above the furnace. The mix is gravit y - fed through a feed chute either continuously or intermittently, as needed. At high temperatures in the reaction zone, the carbon source reacts with metal oxides to form carbon monoxide and to reduce the ores to base metal. 5 The molten material (product

a nd slag) is tapped from the furnace, sometimes subject to post

furnace refining, and poured into casting beds on the furnace room floor. Once the material hardens, it is transported to product crushing and sizing systems and package d for transport to the

c ustomer. HAP generating processes include e lectrometallurgical (furnace) operations ( smelting and tapping) , o ther furnace room operations (ladle treatment and casting) , b uilding fugitives , r aw material handling and p roduct handling
. HAP are emitted from fe rroalloys production as process emissions, process fugitive emissions, and outdoor fugitive dust emissions.

5 EPA. AP

- 42, 12.4. Ferroalloy Production. 10/86
.***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 27 of 256 Process emissions are the exhaust gases from the control devices, primarily the furnace control device, metal oxygen refining control device and c r ushing operations control device
. The HAP in process emissions are primarily composed of metals (mostly manganese, arsenic, nickel, lead , mercury and chromium ) and also may include organic compounds that result from incomplete combustion of coal , coke or o ther fuel that is charged to the furnaces as a reducing agent . There are also process metal HAP emissions from the product crushing control devices. Process fugitive emissions occur at various points during the smelting process (such as during charging and tapping of furnaces and casting ) and are assumed to be similar in composition to the process emissions. Outdoor f ugitive dust emissions result from the entrainment of HAP in ambient air due to material handling, vehicle traffic, wind erosion from storage piles , and other various activities. Outdoor f ugitive dust emissions are composed of particulate metal HAP only
. The MACT rule applies to process emissions from the submerged arc furnaces, the metal oxygen refining process, and the product crushing equipme nt , process fugitive emissions from the furnace and outdoor fugitive dust emissions sources such as roadways, yard areas, and outdoor material storage and transfer operations. For process sources, the NESHAP specifies numerical emissions limits for particu late matter (as a surrogate for non - mercury (or particulate) metal HAP) from the electric ( submerged ) arc furnaces (including***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 28 of 256 smelting and tapping emissions) , with the specific limits depending on furnace type, size, and product being made. Particulate mat ter emission limits (again as a surrogate for particulate metal HAP) are also in place for process emissions from the metal oxygen refining process and product crushing and screening equipment. Table 4 is a summary of the applicable limits.*** E.O. 12866 Review – Draft ( 10 / 28 /2011) – Do Not Cite, Quote or Release During Review ***

Table 4
. Emis sion Limits in Subpart XXX

New or Reconstructed or Existing Source Affected Source Applicable PM Em i ssion Standards Subpart XXX Refe re nce

New or reconstructed Submerged arc furnace 0.23 kilograms per hour per megawatt (k g /hr/MW) (0.51 pounds per hour per megawatt (lb/hr/MW) or 35 milligrams per dry standard cubic meter (mg/dscm) (0.015 grains per dry standard cubic foot (gr/dscf) 40 CFR 63.1652(a)(1) and ( a )(2)

Existing Open submerged arc furnace producing ferromanganese and operating at a furnace pow er input of 22 megawatts ( MW ) or less 9.8 kg/hr (21.7 lb/hr) 40 CFR 63.1652(b)( 1 )

Existing Open submerged arc furnace producing ferromanganese and operating at a furnace power input greater than 22 MW 13.5 kg/hr (29.8 lb/hr) 40 CFR 63.1652(b)(2)

Existi ng Open submerged arc furnace producing silicomanganese and operating at a furnace power input greater than 25 MW 16.3 kg/hr (35.9 lb/hr) 40 CFR 63.1652(b)(3)***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 30 of 256

New or Reconstructed or Existing Source Affected Source Applicable PM Em i ssion Standards Subpart XXX Refe re nce
Existing Open submerged arc furnace producing silicomanganese and operating at a furnace power input of 25 MW or less 12.3 kg/hr (27.2 lb/hr) 40 CFR 63.1652(b)(4)
Existing Semi

- sealed submerged arc furnace (primary, tapping, and vent stacks) producing ferromanganese 11.2 kg/hr (24.7 lb/hr) 40 CFR 63.1652(c)

New, reconstructed, or existing Metal oxygen refining process 69 mg/dscm (0.03 gr/dscf) 40 CFR 63.1652(d)
New or reconstructed Individual equipment associated with the product crushing and screening operation 50 mg/dscm (0.022 gr/dscf) 40 CFR 63.1652(e)(1)
Existing Individual equipment assoc iated with the product crushing and screening operation 69 mg/dscm (0.03 gr/dscf) 40 CFR 63.1652(e)(2)***E.O . 12866 Review

– Draft (10/ 21 0 3 /2011)

– Do Not Cite, Quote or Release During Review *** Page 31 of 256 The 199 9 NESHAP established a building opacity l imit of 20 percent that is measured during the required furnace control device performance test. The r ule provides an excursion limit of 60 percent opacity for one 6

- m i nute period during the performance test. The opacity observation is focused only on emissions exiting the shop due solely to operations of any affected submerged arc furnace. In addition, bl owing taps, poling and oxygen lancing of the tap hole; burndowns associated with electrode measurements; and maintenance activities associated with submerged arc furnaces and casting operations are exempt from the opacity standards specified in § 63.1653.
F or outdoor fugitive dust sources, as defined in § 63. 165 2 , the 199 9 NESHAP require s that plants prepare and operate according to a n outdoor fugitive dust control plan that describes in detail the measures that will be put in p l ace to control outdoor fugitiv e dust emissions from the individual outdoor fugitive dust sources at the facility. The owner or operator must submit a copy of the outdoor fugitive dust control plan to the designated permitting authority on or before the applicable compliance dat e . B. W hat data collection activities were conducted to support this action?
In April 2010, we issued an information collection request (ICR), pursuant to CAA section 114, to the two companies that own and operate the two known ferroalloys production facilities p roducing***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 32 of 256 ferromanganese and silicomanganese
. The ICR requested available information regarding process equipment, control devices, point and fugitive emissions, practices used to control fugitive emissions, and other aspects of facility operations. The two companies completed the surveys for their facilities and submitted the responses to us in the fall of 2010. We also requested that the two facilities conduct additional emissions tests in 2010 for certain HAP from specific processes that were considered r epresentative of the industry. Additional emissions testing was performed for most HAP metals ( e.g. , manganese , arsenic, chromium, lead, nickel and mercury), hydrochloric acid (HCl) , hydrofluoric acid (HF) , formaldehyde, mercury , and PAH . The results of th ese tests were submitted to the EPA in the fall of 2010 and are available in the docket for this action. During the development of this regulation we discovered other types of ferroalloys production facilities ( e.g. , non - manganese ferroalloy production) th at are not subject to this NESHAP
. W e plan
to gather additional information on these other types of sources, and then evaluate whether we need to establish MACT standards for these

sources . C . What other relevant background information from previous studie s on ferroalloys emissions is available? Based on historical emissions data from the EPA‘s Toxics Release Inventory, one of the manganese ferroalloys facilities in this source***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 33 of 256 category 6 has been one of the highest

- emitters of manganese in the country for a t least fifteen years
. (http://www.epa.gov/enviro/facts/tri/index.html)
. Several agencies have conducted studies of the emissions from this facility and potential health effects of those emissions. The Agency for Toxic Substances and Disease Registry (ATS DR), of the U.S. Department of Health and Human Services, along with the Ohio Department of Health and the Ohio Environmental Protection Agency conducted two three health consultations in the communities surrounding this manganese ferroalloys facilit y betwe en 2004 and 2007. The investigations found average ambient concentrations of manganese at levels higher than background concentrations and higher than health benchmark concentrations. More information about these studies can be found at http://www.atsdr.cdc.gov/sites/washington_marietta/index.html
. As a result of these findings, a health study of chronic adult exposure to ambient manganese in the communities surrounding the facili ty was funded by the EPA . . Available results show no significant differences in blood manganese concentrations or major health outcomes between residents living near a manganese ferroalloy facility and residents in a comparison town; however some subtle, subclinical motor (movement) differences were found in residents in

6 Eramet Marrietta, located in Marietta, Ohio.***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 34 of 256 the town with the facility
. 7 The preliminary results of the health study indicate that, within the study population, test results were within the average range of the general population, an d did not indicate a relationship between blood manganese levels and neurological test measurements for the study subjects. More information about these studies can be found at http://www.atsdr.cdc.gov/sites/washington_marietta/index.html
. Under the EPA‘s School Air Toxics Initiative , a mbient concentrations of manganese were monitored at three schools located near the ferroalloys production facility in late 2009. At these locations, mean manganese concentrations above the health benchmark value were observe d. More information about the health benchmark value is available in s ection III.B
. M ore information on the School Air Toxics Initiative can be found at http://www.epa.gov/schoolair/index/html , while the study including the area around this facility can be found at http://www.epa.gov/schoolair/pdfs/MariettaTechReport.pdf
. III . Analyses Performed In this section , we describe the analyses performed to support the proposed decisions for the RTR for this source ca tegory.
A. How did we address unregulated emissi ons sources? In the course of evaluating the F erroalloys P roduction source category, we identified certain HAP for which we failed to establish

7 In press: Kim Y et al. Motor function in adults of an Ohio community with environmental manganese exposure. 2011 Neurotoxicology, doi:10.1016/j.neuro.2011.07.011
.***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 35 of 256 emission standards in the original MACT. See National Lime v. EPA , 233 F. 3d 625, 634 (D.C. Cir. 2000) (EPA has ―clear statutory obligation to set emissions standards for each listed HAP‖). Specifically, w e identified and evaluat ed emissions standards for four HAP (or groups of HAP) , described below, that are not specifically regulated in the existing 199 9 MACT stan dard , or are only regulated for certain emissions points
. As described below, for these HAP (or groups of HAP ) , we are proposing emissions limits pursuant to section 112(d) (2) and 112(d) (3). The results and proposed decisions based on the analys e s performe d pursuant to CAA section 112(d) (2) and 112(d) (3) are presented in s ection I V .A of this preamble. 1. Acid Gases ( Hydrochloric Acid and Hydrofluoric Acid ) We were unaware of the potential for hydrochloric acid ( HCl ) or
HF emissions when we developed the 199 9 NESHAP. As a result, we did not establish standards for HCl or HF for these sources in the 1999 NESHAP. We recently received information about HCl and HF HAP emissions based on emissions data received in response to the ICR
. , and we are now proposing to set emissions limits for HCl these pollutants
. Therefore, we are proposing a standard pursuant to section 112 (d)(2) and (d)(3) (as described further in section IV.A of this preamble). 2. M ercury***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 36 of 256 The 199 9 NESHAP specified emissions limits for particulate met al HAP ( e.g. , manganese, arsenic, nickel, chromium ) in terms of a particulate matter emissions limit ( i.e. , particulate matter is used as a surrogate for metal HAP that are mainly emitted in particulate form ). There is no explicit standard for mercury , and a significant fraction of the mercury emissions are expected to be in gaseous mercury forms ( e.g. , gaseous elemental mercury or gaseous oxidized mercury) with a smaller fraction in particulate form. Therefore, we are proposing a standard specifically for mercury pursuant to section 112 (d) (2) and (d) (3) ( as described further in s ection I V .A of this preamble )
. 3. Poly cyclic A romatic Hydrocarbons As described above, the 1999 NESHAP only regulated particulate metal HAP emissions and
. w We did not establish sta ndards for PAH . Since then, we have determined that electric arc furnaces emit PAH, emitted from submerged arc furnaces in the 1999 NESHAP. and Therefore, we are proposing a standard pursuant to section 112 (d) (2) and (d) (3) (as described further in section IV.A of this preamble). 4. Formaldehyde As described above, the 1999 NESHAP only regulated particulate metal HAP emissions and W e did not establish standards for formaldehyde . Since then, we have determined that electric arc furnaces emit formaldehyde, an d emitted from submerged arc furnaces in the 1999 NESHAP. we are proposing a standard pursuant to section***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 37 of 256 112 (d)(2) and (d)(3) (as described further in section IV.A of this preamble). Therefore, we are proposing a standard pursuant to section 112 (as desc ribed further in section IV.A of this preamble)
. B. How did we estimate risks posed by the source category? The EPA conducted a risk assessment that provided estimates of the MIR posed by the HAP emissions from each source in the source category, the HI fo r chronic exposures to HAP with the potential to cause noncancer health effects, and the hazard quotient ( HQ ) for acute exposures to HAP with the potential to cause noncancer health effects. The assessment also provided estimates of the distribution of can cer risks within the expose d populations, cancer incidence and an evaluation of the potential for adverse environmental effects for each source category. The risk assessment consisted of seven primary steps, as discussed below. The docket for this rulemaki ng contains the following document which provides more information on the risk assessment inputs and models: Draft Residual Risk Assessment for the Ferroalloys Production Source Categor y . The methods used to assess risks (as described in the seven primary steps below) are consistent with those peer

- reviewed by a panel of the EPA‘s Science Advisory
Board (SAB) in 2009 and described in their peer review report issued in 2010 8 ; they are also consistent with the key recommendations contained in that report.

8 U.S. EPA SAB. Risk and Technology Review (RTR) Risk Assessment Methodologies: For Review by the EPA‘s Science Advisory Board with Case Studies

– MACT I Petroleum Refining Sources and Portland Cement Manufacturing , May 2010.***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 38 of 256 1. Establishing the Nature and Magnitude of Actual Emissions and Identifying the Emissions Release C haracteristics The two existing ferromanganese and silicomanganese production facilities constitute the dataset tha t is t he basis for the risk
assessment. We e stimated the magnitude of emissions using data collected through the ICR. In addition to the quality assurance ( QA ) of the source data for the facilities contained in the dataset, we also checked the coordinates of every emission source in the dataset thro ugh visual observations using tools such as GoogleEarth and ArcView. Where coordinates were found to be incorrect, we identified and corrected them to the extent possible. We also performed QA of the emissions data and release characteristics to ensure the data were reliable and that there were no outliers. 2. Establishing the Relationship between Actual Emissions and MACT

Allowable Emissions Levels The emissions data in the MACT dataset include estimates of the mass of emissions actually emitted during the specified annual time period. These ―actual‖ emission levels are often lower than the emission levels that a facility might be allowed to emit and still comply with the MACT standards. The emissions level allowed to be emitted by the MACT standards is ref erred to as the ―MACT

- allowable‖ emissions level. This represents the highest emissions level that could be emitted by facilities without violating the MACT standards
.***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 39 of 256 We discussed the use of both MACT

- allowable and actual emissions in the final Coke Oven Batteries residual risk rule (70 FR 19998

– 19999, April 15, 2005) and in the proposed and final Hazardous Organic NESHAP residual risk rules (71 FR 34428, June 14, 2006, and 71 FR 76609, December 21, 2006, respectively). In those previous actions, we noted that assessing the risks at the MACT

- allowable level is inherently reasonable because these risks reflect the maximum level sources could emit and still comply with national emission standards. But we also explained that it is reasonable to consider actua l emissions, where such data are available, in both steps of the risk analysis, in accordance with the Benzene NESHAP. (54 FR 38044, September 14, 1989.) For the Ferroalloys Production source category, we evaluated allowable stack emissions, based on the l evel of control required by the MACT standards compared to the level of reported actual emissions and available information on the level of control achieved by the emissions control s in use. Further explanation is provided in the technical document: Draft Development of the RTR Emissions Dataset for the Ferroalloys Production Source Category , which is available in the docket
. 3. Conducting Dispersion Modeling, Determining Inhalation Exposures, and Estimating Individual and Population Inhalation Risks Both long

- term and short

- term inhalation exposure concentrations and health risks from the source category addressed in this proposal***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 40 of 256 were estimated using the Human Exposure Model (Community and Sector
HEM

- 3 version 1.1.0). The HEM

- 3 performs three of the prima ry risk assessment activities listed above: (1) conducting dispersion modeling to estimate the concentrations of HAP in ambient air, (2) estimating long

- term and short

- term inhalation exposures to individuals residing within 50 km of the modeled sources, a nd (3) estimating individual and population

- level inhalation risks using the exposure estimates and quantitative dose

- response information. The air dispersion model used by the HEM

- 3 model ( AERMOD ) is one of the EPA‘s preferred models for assessing polluta nt concentrations from industrial facilities. 9 To perform the dispersion modeling and to develop the preliminary risk estimates, HEM

- 3 draws on three data libraries. The first is a library of meteorological data, which is used for dispersion calculations. This library includes 1 year of hourly surface and upper air observations for 189 meteorological stations, selected to provide coverage of the United States and Puerto Rico. A second library , of United States Census Bureau census block 10 internal point loca tions and populations , provides the basis of human exposure calculations (Census, 2000) . In addition, for each census block, the census library includes the elevation and controlling hill height, which are also used in dispersion calculations. A third libr ary of pollutant unit risk factors and

9 U.S. EPA. Revision to the Guideline on Air Quality Models: Adoption o f a Preferred General Purpose (Flat and Complex Terrain) Dispersion Model and Other Revisions (70 FR 68218, November 9, 2005). 10 A census block is the smallest geographic area for which census statistics are tabulated.***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 41 of 256 other health benchmarks is used to estimate health risks. These risk factors and health benchmarks are the latest values recommended by the EPA for HAP and other toxic air pollutants. These values are available at htt p://www.epa.gov/ttn/atw/toxsource/summary.html and are discussed in more detail later in this section. In developing the risk assessment for chronic exposures, we used the estimated annual average ambient air concentration s of each of the HAP emitted by ea ch source for which we have emissions data in the source category. The air concentrations at each nearby census block centroid were used as a surrogate for the chronic inhalation exposure concentration for all the people who reside in that census block. We calculated the MIR for each facilit y as the cancer risk associated with a continuous lifetime (24 hours per day, 7 days per week, and 52 weeks per year for a 70

- year period) exposure to the maximum concentration at the centroid of inhabited census block s . Individual cancer risks were calculated by multiplying the estimated lifetime exposure to the ambient concentration of each of the HAP (in micrograms per cubic met er ( μg/m 3 ) ) by its unit risk e stimate (URE), which is an upper bound estimate of an individual‘s probability of contracting cancer over a lifetime of exposure to a concentration of 1 microgram of the pollutant per cubic meter of air. F or residual risk assessme nts, we generally use URE values from the EPA‘s Integrated Risk Information System (IRIS). For carcinogenic pollutants without the EPA IRIS values, we look to other reputable***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 42 of 256 sources of cancer dose

- response values, often using California EP A (CalEPA) URE v alues, where available. In cases where new, scientifically credible dose response values have been developed in a manner consistent with the EPA guidelines and have undergone a peer review process similar to that used by the EPA, we may use such dose

respo nse values in place of, or in addition to, other values, if appropriate. Formaldehyde is a unique case. In 2004, the EPA determined that the Chemical Industry Institute of Toxicology ( CIIT ) cancer dose

response value for formaldehyde (5.5 x 10 - 9 per μg/m 3 ) was based on
better science than the IRIS cancer dose

- response value (1.3 x 10 - 5

per μg/m 3 ), and we switched from using the IRIS value to the CIIT value in risk assessments supporting regulatory actions. However, subsequent research published by the EPA suggests that the CIIT model was not appropriate and , in 2010 , the EPA returned to using the 1991 IRIS value, which is more health protective. 11 The EPA has been working on revising the formaldehyde IRIS assessment and the National Academy of Sciences (NAS) completed its review of the EPA‘s draft in April of 2011 ( http://www.nap.edu/catalog.php?record_id=13142 ). The EPA will fully address all of the NAS recommendations on fo r maldehyde. The draft IRIS assessment will be revised in response to the NAS peer review and public comments and the final assessment

11 For details on the justification for this decision, see the memorandum in the docket from Peter Preuss to Steve Page entitled, Recommendation for Formaldehyde Inhalation Cancer Risk Values , January 22, 2010.***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 43 of 256 will be posted on the IRIS database. May of 2011. The EPA is reviewing the public comment s and the NAS independent scientific peer review, and t he draft IRIS assessment will be revised and the final assessment will be posted on the IRIS database. In the interim, we will present findings using the 1991 IRIS value as a primary estimate, and may also consider other information as the science evolves. In the case of nickel compounds, to provide a conservative estimate of potential cancer risks, we used the URE value for nickel subsulfide in this assessment. Based on past scientific and technical considerations, the determination of the percent of nicke l subsulfide was considered a major factor for estimating the extent and magnitude of the risks of cancer due to nickel

- containing emissions. Nickel speciation information for some of the largest nickel

- emitting sources (including oil combustion, coal comb ustion, and others) suggested that at least 35 percent of the total nickel emissions may be soluble compounds and that the URE for the mixture of inhaled nickel compounds (based on nickel subsulfide, and representative of pure insoluble crystalline nickel) could be derived to reflect the assumption that 65 percent of the total mass of nickel may be carcinogenic. Based on more recent, consistent views of major scientific bodies ( i.e. , National Toxicology Program in their 12 th***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 44 of 256 Report on Carcinogens 12 , Internat ional Agency for Research on Cancer 13 , and other international agencies) 14 that now consider all nickel compounds to be carcinogenic, we currently consider all nickel compounds to have the potential of being as carcinogenic as nickel subsulfide. More discuss ion of the nickel URE can be found in the risk assessment report in the docket for this action. To implement th e is approach of considering all nickel compounds as carcinogenic as nickel subsulfide in our inhalation risk assessments, we apply the IRIS URE f or nickel subsulfide without a factor to reflect the assumption that 100 percent of the total mass of nickel may be as carcinogenic as pure nickel subsulfide. Based on the fact that the major scientific bodies mentioned above also recognize that there are potential differences in toxicity and/or carcinogenic potential across the different nickel compounds, there may be differences in toxicity and/or carcinogenic potential across the different nickel compounds, and given that there have been two URE values d erived for exposure to mixtures of nickel compounds , as a group, that are 2

- 3 fold lower than the IRIS URE for nickel subsulfide, we also consider it reasonable to use a value that is 50 percent of the IRIS URE for nickel subsulfide for providing an estima te of the lower end of a

12 National Toxicology Program (NTP), 2011. Report on carcinogens. 12 th ed. Resea rch Triangle Park, NC: US Department of Health and Human Services (DHHS), Public Health Service. Available online at http://ntp.niehs.nih.gov/ntp/roc/twelfth/roc12.pdf. 13 International Agency for Research on Cancer (IARD), 1990. IARC monographs on the eval uation of carcinogenic risks to humans. Chromium, nickel, and welding. Vol. 49. Lyons, France: International Agency for Research on Cancer, World Health Organization Vol. 49:256. 14 World Health Organization (WHO, 1991) and the Europea n Union‘s Scientific Committee o n Health and Environmental Risks (SCHER, 2006)
.***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 45 of 256 plausible range of cancer potency values for different mixtures of nickel compounds. We also note that polycyclic organic matter (POM) (of which PAH are a subset) , a carcinogenic HAP with a mutagenic mode of action, is emitted by the facilities in th is source category
. 15 For this compound

group, 16 the age

- dependent adjustment factors (ADAF) described in the EPA‘s Supplemental Guidance for Assessing Susceptibility from Early

Life Exposure to Carcinogens 17 were applied. This adjustment has the effect of increasing the estimated lifetime risks for POM by a factor of 1.6. In addition, although only a small fraction of the total POM emissions were not reported as individual compounds, the EPA expresses carcinogenic potency for compounds in this group in terms of benzo[a]pyrene equivalence, based on evidence that carcinogenic POM has the same mutagenic mechanism of action as benzo[a]pyrene. For this reason, the EPA‘s Science Policy Council 18 recommends applying the Supplemental Guidance to all carcinogenic PAH for which risk estimates are based on relative potency. Accordingly, we have applied

15 U.S. EPA. Performing risk assessments that include carcinogens described in the Supplemental Guidance as having a mutagenic mode of action. Science Policy Council Cancer Guidelines Implementatio n Work Group Communication I I : Memo from W.H. Farland, dated October 4, 2005. 16 See the Risk Assessment for Source Categories document available in the docket for a list of HAP with a mutagenic mode of action. 17 U.S. EPA. Supplemental Guidance for Assessin g Early

- Life Exposure to Carcinogens
. EPA/630/R

- 03/003F, 2005. http://www.epa.gov/ttn/atw/childrens_supplement_final.pdf. 18 U.S. EPA. Science Policy Council Cancer Guidelines Implementation Workgroup Communication II : Memo from W.H. Farland, dated June 14, 2006.***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 46 of 256 the ADAF to the benzo[a]pyrene equivalent portion of all POM mixtures. Incremental individual lifetime cancer risks associated with emissions from the tw o facilities in the source category were estimated as the sum of the risks for each of the carcinogenic HAP (including those classified as carcinogenic to humans, likely to be carcinogenic to humans, and suggestive evidence of carcinogenic potential 19 ) emit ted by the modeled source. Cancer incidence and the distribution of individual cancer risks for the population within 50 km of the source s were also estimated for the source category as part of th is assessment by summing individual risks. A distance of 50 km is consistent with both the analysis supporting the 1989 Benzene NESHAP (54 FR 38044) and the limitations of Gaussian dispersion models, including AERMOD.
To assess the risk of non

- cancer health effects from chronic exposures, we summed the HQ for each of the HAP that affects a common target organ system to obtain the HI for that target organ system (or target organ

- specific HI, TOSHI). The HQ is the estimated exposure divided by the chronic reference value, which is either the EPA reference concentrati on ( RfC ) , defined as ―an estimate (with

19 These classifications also coincide with the terms "known carcinogen, probable carcinogen, and possible carcinogen," respectively, which are the terms advocated in the EPA's previous Guidelines for Carcinogen Risk Assessment , published in 1986 (51 FR 33992, September 24, 1986). Summing the risks of these individual compounds to obtain the cumulative cancer risks is an approach that was recommended by the EPA's Science Advisory Board (SAB) in their 2002 peer review of EPA's National Air Toxics Asses sment ( NATA ) entitled, NATA

- Evaluating the National

- scale Air Toxics Assessment 1996 Data

-- an SAB Advisory , available at: http://yosemite.epa.gov/sab/sabproduct.nsf/214C6E915BB04E14852570CA007A682C/$File/e cadv02001.pdf.***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 47 of 25 6 uncertainty spanning perhaps an order of magnitude) of a continuous inhalation exposure to the human population (including sensitive subgroups) that is likely to be without an appreciable risk of deleterious effects during a lifetime,‖ or, in cases where an RfC from the EPA‘s IRIS database is not available, the EPA will utilize the following prioritized sources for our chronic dose

- response values: (1) The Agency for Toxic Substances and Disease Registry Minimum Risk Level, which is defined as ―an estimate of daily human exposure to a substance that is likely to be without an appreciable risk of adverse effects (other than cancer) over a specified duration of exposure‖; (2) the CalEPA Chronic Reference Exposure Level ( REL), which is defined as ―the concentration level at or below which no adverse health effects are anticipated for a specified exposure duration‖; and (3), as noted above, in cases where scientifically credible dose

- response values have been developed in a manner consistent with the EPA guidelines and have undergone a peer review process similar to that used by the EPA, we may use those dose

response values in place of or in concert with other values. Screening estimates of acute exposures and risks were al so evaluated for each of the HAP at the point of highest off

- site exposure for each facility ( i.e. , not just the census block centroids) , assuming that a person is located at this spot at a time when both the peak (hourly) emission rate and worst

- case disp ersion conditions (1991 calendar year data) occur. The acute HQ is the***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 48 of 256 estimated acute exposure divided by the acute dose

- response value. In each case, acute HQ values were calculated using best available, short

- term dose

- response values. These acute dose

- response values, which are described below, include the acute REL, acute exposure guideline levels (AEGL) and emergency response planning guidelines ( ERPG ) for 1

- hour exposure durations. As discussed below, we used conservative assumptions for emission rat es, meteorology and exposure location for our acute analysis. As described in the CalEPA‘s Air Toxics Hot Spots Program Risk Assessment Guidelines, Part I, The Determination of Acute Reference Exposure Levels for Airborne Toxicants , an acute REL value (ht tp:// www.oehha.ca.gov/air/pdf/acuterel.pdf ) is defined as ―the concentration level at or below which no adverse health effects are anticipated for a specified exposure duration. ‖ Acute REL values are based on the most sensitive, relevant, adverse health ef fect reported in the medical and toxicological literature. Acute REL values are designed to protect the most sensitive individuals in the population by the inclusion of margins of safety. Because margins of safety are incorporated to address data gaps and uncertainties, exceeding the REL does not automatically indicate an adverse health impact. AEGL values were derived in response to recommendations from the National Research Council (NRC). As described in Standing Operating Procedures (SOP) of the National Advisory Committee on Acute Exposure Guideline Levels for Hazardous Substances***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 49 of 256 (http://www.epa.gov/opptintr/aegl/pubs/sop.pdf), 20 ―the NRC‘s previous name for acute exposure levels

— community emergency exposure levels

— was replaced by the term AEGL to reflec t the broad application of these values to planning, response, and prevention in the community, the workplace, transportation, the military, and the remediation of Superfund sites.‖ This document also states that AEGL values ―represent threshold exposure l imits for the general public and are applicable to emergency exposures ranging from 10 minutes to eight hours.‖ The document lays out the purpose and objectives of AEGL by stating (page 21) that ―the primary purpose of the AEGL program and the National Adv isory Committee for Acute Exposure Guideline Levels for Hazardous Substances is to develop guideline levels for once

- in

a - lifetime, short

- term exposures to airborne concentrations of acutely toxic, high

- priority chemicals.‖ In detailing the intended applic ation of AEGL values, the document states (page 31) that ―[i]t is anticipated that the AEGL values will be used for regulatory and nonregulatory purposes by U.S. Federal and state agencies and possibly the international community in conjunction with chemic al emergency response, planning, and prevention programs. More specifically, the AEGL values will be used for conducting various risk assessments to aid in the development of emergency preparedness and prevention plans, as well as real

- time emergency respo nse

20 NAS, 2001. Standing Operating Procedures for Developing Acute Exposure Levels for Hazardous Chemicals , page 2.***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 50 of 256 actions, for accidental chemical releases at fixed facilities and from transport carriers.‖
The AEGL

– 1 value is then specifically defined as ―the airborne concentration of a substance above which it is predicted that the general population, including s usceptible individuals, could experience notable discomfort, irritation, or certain asymptomatic nonsensory effects. However, the effects are not disabling and are transient and reversible upon cessation of exposure.‖ The document also notes (page 3) that, ―Airborne concentrations below AEGL

– 1 represent exposure levels that can produce mild and progressively increasing but transient and nondisabling odor, taste, and sensory irritation or certain asymptomatic, nonsensory effects.‖ Similarly,
the document def ines AEGL

– 2 values as ―the airborne concentration (expressed as parts per million or milligrams per cubic meter of a substance above which it is predicted that the general population, including susceptible individuals, could experience irreversible or othe r serious, long

- lasting adverse health effects or an impaired ability to escape.‖ ERPG values are derived for use in emergency response, as described in the American Industrial Hygiene Association‘s document entitled, Emergency Response Planning Guidelines (ERPG) Procedures and Responsibilities ( http://www.aiha.org/1documents/committees/ERPSOPs2006.pdf ) which states that, ―Emergency Response Planning Guidelines were developed***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 51 of 256 for emergency planning and are intended as health based guideline concentrations f or single exposures to chemicals.‖ 21 The ERPG

– 1 value is defined as ―the maximum airborne concentration below which it is believed that nearly all individuals could be exposed for up to 1 hour without experiencing other than mild transient adverse health ef fects or without perceiving a clearly defined, objectionable odor.‖ Similarly, the ERPG

– 2 value is defined as ―the maximum airborne concentration below which it is believed that nearly all individuals could be exposed for up to 1 hour without experiencing or developing irreversible or other serious health effects or symptoms which could impair an individual‘s ability to take protective action.‖ As can be seen from the definitions above, the AEGL and ERPG values include the similarly

- defined severity levels 1 and 2. For many chemicals, a severity level 1 value AEGL or ERPG has not been developed because the types of effects for these chemicals are not consistent with the AEGL

- 1/ERPG

- 1 definitions ; in these instances, higher severity level AEGL

– 2 or ERPG

– 2 val ues are compared to our modeled exposure levels to screen for potential acute concerns. When
AEGL

- 1/ERPG

- 1 values are available, they are used in our acute risk
assessments. Acute REL values for 1

- hour exposure durations are typically lower than their corr esponding AEGL

– 1 and ERPG

– 1 values. Even though their definitions are slightly different, AEGL

– 1 values are often the

21 ERP Committee Procedures and Responsibilities . November 1, 2006. American Industrial Hygiene Association.***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 52 of 256 same as the corresponding ERPG

– 1 values, and AEGL

– 2 values are often equal to ERPG

– 2 values. Maximum HQ values from our acute screening ri sk assessments typically result when basing them on the acute REL value for a particular pollutant. In cases where our maximum acute HQ value exceeds 1, we also report the HQ value based on the next highest acute dose

- response value (usually the AEGL

– 1 and /or the
ERPG

– 1 value).
T o develop screening estimates of acute exposures in the absence of hourly emissions data , generally we first develop estimates of maximum hourly emissions rates by multiplying the average actual annual hourly emissions rates by a de fault factor to cover routinely variable emissions. We cho o se the factor to use based on process knowledge and engineering judgment and with awareness of a Texas study of short

- term emissions variability, which showed that most peak emissions events, in a heavily

- industrialized 4

- county area (Harris, Galveston, Chambers, and Brazoria c ounties, Texas) were less than twice the annual average hourly emissions rate. The highest peak emissions event was 74 times the annual average hourly emissions rate, and the 99 th percentile ratio of peak hourly emissions rate to the annual average hourly emissions rate was 9. 22 This analysis is provided in the Draft Residual Risk Assessment for the Ferroalloys Production Source C a tegory , which is available in the docket for thi s action. Considering this analysis , to account for more than 99

22 See http://www.tceq.state.tx.us/compliance/field_ops/eer/index.ht ml or docket to access the source of these data.***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 53 of 256 percent of the peak hourly emissions, we apply a conservative screening multiplication factor of 10 to the average annual hourly emissions rate in our acute exposure screening assessments as our default approach
. However, w e use a factor other than 10 if we have information that indicates that a different factor is appropriate for a particular source category. For the F erroalloys Production source category hourly emissions estimates were avail able for individual emissions points, so we did not use the default factor of 10
. Using emission test data, hourly emission rates were developed for those processes considered to operate continuously (i.e., steady

- state operations for 8,760 hours per year) and for those processes considered to operate intermittently (i.e., non

- steady

- state operations for less than 8,760 hours per year). A discussion of the hourly emissions estimates is provided in the Methodology for Estimation of Maximum Hourly Emissions f or Ferroalloy Sources , which is available in the docket for this action.
. As part of our acute risk assessment process, for cases where acute HQ values from the screening step were less than or equal to 1, acute impacts were deemed negligible and no furt her analysis was performed. In cases where an acute HQ from the screening step was greater than 1, additional site

- specific data were considered to develop a more refined estimate of the potential for acute impacts of

concern. For this source category, t he data refinements employed consisted of using the site

- specific facility layout to distinguish***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 54 of 256 facility property from an area where the public could be exposed. These refinements are discussed in the draft risk assessment document, which is available in th e docket for this source category. Ideally, we would prefer to have continuous measurements over time to see how the emissions vary by each hour over an entire year. Having a frequency distribution of hourly emission rates over a year would allow us to per form a probabilistic analysis to estimate potential threshold exceedances and their frequency of occurrence. Such an evaluation could include a more complete statistical treatment of the key parameters and elements adopted in this screening analysis.
Howev er, we recognize that having this level of data is rare, hence our use of the multiplier approach. To better characterize the potential health risks associated with estimated acute exposures to HAP, and in response to a key recommendation from the SAB‘s pe er review of the EPA‘s RTR risk assessment methodologies , 23 we generally examine a wider range of available acute health metrics ( e.g. , RELs, AEGLs) than we do for our chronic risk assessments. This is in response to the SAB‘s acknowledgement that there are generally more data gaps and inconsistencies in acute reference values than there are in chronic reference values
. In some cases, when Reference Value Arrays 24 for HAP

23 The SAB peer review of RTR Risk Assessment Methodologies is available at: http://yosemite.epa.gov/sab/sabproduct.nsf/4AB3966E263D943A8525771F00668381/$File/E PA

- SAB

- 10

- 007

- unsigned.pdf. 24 U.S. EPA. (2009) Chapter 2.9 Chemical Specific Reference Values for Formaldehyde in Graphical Arrays of Chemical

- Specific Health Effect Reference Values for Inhalation Exposures (Final Report). U.S. Environmental Protection Agency,***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 55 of 256 have been developed, we consider additional acute values ( i.e. , occupational and interna tional values) to provide a more complete risk characterization. 4. Conducting Multipathway Exposure and Risk Screening Modeling The potential for significant human health risks due to exposures via routes other than inhalation ( i.e. , multipathway
exposures ) and the potential for adverse environmental impacts were evaluated in a two three

- step process. In the first step, we determined whether any facilities emitted any PB

- HAP ( HAP known to be persistent and bio

- accumulative in the environment ). There are 14 P B

HAP compounds or compound classes identified for this screening in the EPA‘s Air Toxics Risk Assessment Library (available at http://www.epa.gov/ttn/fera/risk_atra_vol1.html ). They are cadmium compounds, chlordane, chlorinated dibenzodioxins and furans, dichlorodiphenyldichloroethylene, heptachlor, hexachlorobenzene, hexachlorocyclohexane, lead compounds, mercury compounds, methoxychlor, polychlorinated biphenyls, POM, toxaph ene and trifluralin.
Because one or more of these PB

- HAP are emitted by at least one facility in the source categor y , we proceeded to the second step of the evaluation. In this step, we determined whether the facility

specific emission rates of each of the emitted PB

– HAP were large enough to create the potential for significant non

- in halation human

Washington, DC, EPA/600/R

- 09/061, and ava ilable on

- line at http://cfpub.epa.gov/ncea/cfm/recordisplay.cfm?deid=211003
.***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 56 of 256 or environmental risks under reasonable worst

- case conditions. To facilitate this step, we have developed emission rate thresholds for each PB

– HAP using a hypothetical worst

- case screening exposure scenario developed for use in conjunction w ith the EPA‘s Total Risk Integrated Methodology.Fate, Transport, and Ecological Exposure ( TRIM.FaTE ) model. The hypothetical screening scenario was subjected to a sensitivity analysis to ensure that its key design parameters were established such that envi ronmental media concentrations were not underestimated ( i.e. , to minimize th e occurrence of false negatives or results that suggest that risks might be acceptable when, in fact, actual risks are high) and to also minimize the occurrence of false positives for human health endpoints. We call this application of the TRIM.FaTE model TRIM

- Screen. The facility

specific emission rates of each of the PB

– HAP in the source category were compared to the TRIM

- Screen emission threshold values for each of the PB

– HAP ide ntified in the source category datasets to assess the potential for significant human health risks or environmental risks via non

- inhalation pathways. 5. Assessing Risks Considering Emissions Control Options In addition to assessing baseline inhalation ri sks and screening for potential multipathway risks, we also estimated risks considering the potential emissions reductions that would be achieved by the main control option s under consideration. In these cases, t he expected emissions reductions were applie d to the specific HAP and emissions***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 57 of 256 points in the source category dataset to develop correspondi ng estimates of risk reductions. 6. Conducting Other Risk

- Related Analyses : Facility w ide Assessments To put the source category risks in context, we typically examine the risks from the entire ―facility,‖ where the facility includes all HAP

- emitting operations within a contiguous area and under common control. In other words, we examine the HAP emissions not only from the source category of interest, but also em issions of HAP from all other emissions sources at the facility for which we have data
. However, for the Ferroalloys Production source category, there are no other significant HAP emissions sources operating at present. Thus, there was no need to perform a separate facility wide risk assessment.
7 . Considering Uncertainties in Risk Assessment Uncertainty and the potential for bias are inherent in all risk assessments, including those performed for the source category addressed in this proposal. Although unc ertainty exists, we believe th at our approach, which used conservative tools and assumptions, ensures that our decisions are health

- protective. A brief discussion of the uncertainties in the emissions dataset, dispersion modeling, inhalation exposure estim ates and dose

- response relationships f ollows below. A more thorough discussion of these uncertainties is included in the risk assessment documentation ( Draft Residual Risk Assessment***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 58 of 256 for the Ferroalloys Production Source Category ) available in the docket f or this action. a. Uncertainties in the Emissions Dataset Although the development of the RTR dataset involved quality assurance/quality control processes, the accuracy of emissions values will vary depending on the source of the data, the degree to which data are incomplete or missing, the degree to which assumptions made to complete the datasets are accurate, errors were made in estimating emissions values and other factors. The emission estimates considered in this analysis generally are annual totals f or certain years that do not reflect short

- term fluctuations during the course of a year or variations from year to year. The estimates of peak hourly emissions rates from stacks for the acute effects screening assessment were based on actual maximum hour ly emissions estimates for individual emission points , which is intended to account for emissions fluctuations due to normal facility operations. b. Uncertainties in Dispersion Modeling While the analysis employed the EPA‘s recommended regulatory dispersio n model, AERMOD, we recognize that there is uncertainty in ambient concentration estimates associated with any model, including AERMOD. In circumstances where we had to choose between various model options, where possible, model options ( e.g. , rural/urban, plume depletion, chemistry) were selected to provide an overestimate of***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 59 of 256 ambient air concentrations of the HAP rather than underestimates. However, because of practicality and data limitation reasons, some factors ( e.g. , meteorology, building downwash) hav e the potential in some situations to overestimate or underestimate ambient impacts. For example, meteorological data were taken from a single year (1991) and facility locations can be a significant distance from the site where these data were taken. Despi te these uncertainties, we believe that at off

- site locations and census block centroids, the approach considered in the dispersion modeling analysis should generally yield overestimates of ambient HAP concentrations. c. Uncertainties in Inhalation Exposur e The effects of human mobility on exposures were not included in the assessment. Specifically, short

- term mobility and long

- term mobility between census blocks in the modeling domain were not
considered. 25 The assumption of not considering short or long

- t erm population mobility does not bias the estimate of the theoretical
MIR , nor does it affect the estimate of cancer incidence because the total population number remains the same. It does, however, affect the shape of the distribution of individual risks across the affected population, shifting it toward higher estimated individual risks at the upper end and reducing the number of people estimated to be at lower risks, thereby increasing the estimated number of people at

25 Short

- term mobility is movement from one micro

- environment to another over the course of hours or days. Long

- term mobility is movement from one residence to another over the co urse of a lifetime.***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 60 of 256 specific high risk levels ( e.g. , on e in 10,000 or one in one million)
. In addition, the assessment predicted the chronic exposures at the centroid of each populated census block as surrogates for the exposure concentrations for all people living in that block. Using the census block centro id to predict chronic exposures tends to over

predict exposures for people in the census block who live farther from the facility and under

- predict exposures for people in the census block who live closer to the facility. Thus, using the census block centr oid to predict chronic exposures may lead to a potential understatement or overstatement of the true maximum impact, but is an unbiased estimate of average risk and incidence. The assessment evaluate s the cancer inhalation risks associated with pollutant exposures over a 70

- year period, which is the assumed lifetime of an individual. In reality, both the length of time that modeled emissions sources at facilities actually operate ( i.e. , more or less than 70 years), and the domestic growth or decline of the modeled industry ( i.e. , the increase or decrease in the number or size of United States facilities), will influence the future risks posed by a given source or source category. Depending on the characteristics of the industry, these factors will, in most cases, result in an overestimate both in individual risk levels and in the total estimated number of cancer cases. However, in rare cases, where a facility maintains or increases its emissions levels beyond 70***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 61 of 256 years, residents live beyond 70 years at the s ame location, and the residents spend most of their days at that location, then the risks could potentially be underestimated. Annual cancer incidence estimates from exposures to emissions from these sources would not be affected by uncertainty in the leng th of time emissions sources operate. The exposure estimates used in these analyses assume chronic exposures to ambient levels of pollutants. Because most people spend the majority of their time indoors, actual exposures may not be as high, depending on t he characteristics of the pollutants modeled. For many of the HAP, indoor levels are roughly equivalent to ambient levels, but for very reactive pollutants or larger particles, these levels are typically lower. This factor has the potential to result in an overstatement of 25 to 30 percent of exposures. 26 In addition to the uncertainties highlighted above, there are several factors specific to the acute exposure assessment that should be highlighted. The accuracy of an acute inhalation exposure assessment d epends on the simultaneous occurrence of independent factors that may vary greatly, such as hourly emissions rates, meteorology, and human activity patterns. In this assessment, we assume that individuals remain for 1 hour at the point of maximum ambient c oncentration as determined by the co

- occurrence of peak emissions and worst

- case meteorological conditions. These assumptions

26 U.S. EPA. National

- Scale Air Toxics Assessment for 1996 . (EPA 453/R

– 01

– 003; January 2001; page 85.)***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 62 of 256 would tend to be worst

- case actual exposures as it is unlikely that a person would be located at the point of maximum exposure dur ing the time of worst

- case impact. d. Uncertainties in Dose

- Response Relationships There are uncertainties inherent in the development of the dose

response values used in our risk assessments for cancer effects from chronic exposures and non

- cancer effects from both chronic and acute
exposures. S ome uncertainties may be considered quantitatively, and others generally are expressed in qualitative terms. We note as a preface to this discussion a point on dose

- response uncertainty that is brought out in the EP A‘s 2005 Cancer Guidelines ; namely, that ―the primary goal of EPA actions is protection of human health; accordingly, as an Agency policy, risk assessment procedures, including default options that are used in the absence of scientific data to the contrary , should be health protective‖ ( EPA 2005 Cancer Guidelines , pages 1

– 7). This is the approach followed here as summarized in the next several paragraphs. A complete detailed discussion of uncertainties and variability in dose

- response relationships is given in the residual risk documentation which is available in the docket for this action. Cancer URE values used in our risk assessments are those that have been developed to generally provide an upper bound estimate of risk. That is, they represent a ―plausi ble upper limit to the true value of a quantity‖ (although this is usually not a true statistical***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 63 of 256 confidence limit). 27 In some circumstances, the true risk could be as low as zero; however, in other circumstances the risk could be greater. 28 When developing an upper bound estimate of risk and to provide risk values that do not underestimate risk, health

- protective default approaches are generally used. To err on the side of ensuring adequate health protection, the EPA typically uses the upper bound estimates rather than lower bound or central tendency estimates in our risk assessments, an approach that may have limitations for other uses ( e.g. , priority

- setting or expected benefits analysis). Chronic non

- cancer reference (RfC ) and reference dose ( RfD) values represent chronic exposure levels that are intended to be health

- protective levels. Specifically, these values provide an estimate (with uncertainty spanning perhaps an order of magnitude) of a continuous inhalation exposure (RfC) or a daily oral exposure (RfD) to the human population (including sensitive subgroups) that is likely to be without an appreciable risk of deleterious effects during a lifetime. To derive values that are intended to be ―without appreciable risk,‖ the methodology relies upon an unc ertainty factor (UF) approach (U.S. EPA, 1993, 1994) which considers uncertainty, variability and gaps in the available data. The UF are applied to derive reference values that are intended to protect against appreciable risk of deleterious effects. The UF are commonly default

27 IRIS glossary (http://www.epa.gov/NCEA/iris/help_gloss.htm). 28 An exception to this is the URE for benzene, which is considered to cover a range of values, each end of which is considered to be equally plausible, and which is based on maximum likelihood estimates.***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 64 of 256 values, 29 e.g. , factors of 10 or 3, used in the absence of compound

specific data; where data are available, UF may also be developed using compound

- specific information. When data are limited, more assumptions are needed and more UF a re used. Thus, there may be a greater tendency to overestimate risk in the sense that further study might support development of reference values that are higher ( i.e. , less potent) because fewer default assumptions are needed. However, for some pollutants , it is possible that risks may be underestimated. While collectively termed ―UF,‖ these factors account for a number of different quantitative considerations when using observed animal (usually rodent) or human toxicity data in the development of the RfC. The UF are intended to account for: (1) variation in susceptibility among the members of the human population ( i.e. , inter

- individual variability); (2) uncertainty in extrapolating from experimental animal data to humans ( i.e. , interspecies differences); (3) uncertainty in extrapolating from data obtained in a study with less

- than

- lifetime exposure ( i.e. , extrapolating from sub

- chronic to chronic exposure); (4) uncertainty in extrapolating the observed data

29 According to the NRC report, Science and Judgment in Risk Assessment (NRC, 1994) ―[Default] options are generic approach es, based on general scientific knowledge and policy judgment, that are applied to various elements of the risk assessment process when the correct scientific model is unknown or uncertain.‖ The 1983 NRC report, Risk Assessment in the Federal Government: M anaging the Process , defined default option as ―the option chosen on the basis of risk assessment policy that appears to be the best choice in the absence of data to the contrary‖ (NRC, 1983a, p. 63). Therefore, default options are not rules that bind the Agency; rather, the Agency may depart from them in evaluating the risks posed by a specific substance when it believes this to be appropriate. In keeping with EPA‘s goal of protecting public health and the environment, default assumptions are used to ensur e that risk to chemicals is not underestimated (although defaults are not intended to overtly overestimate risk). See EPA, 2004, An Examination of EPA Risk Assessment Principles and Practices , EPA/100/B

– 04/001 available at: http://www.epa.gov/osa/pdfs/ratf

- final.pdf.***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 65 of 256 to obtain an estimate of the exposure associated with no adverse effects; and (5) uncertainty when the database is incomplete or there are problems with the applicability of available studies. Many of the UF used to account for variability and uncertainty in the development of acute reference values are quite similar to those developed for chronic durations, but they more often use individual UF values that may be less than 10. The UF are applied based on chemical

- specific or health effect

- specific information ( e.g. , simple irritation effects do not vary appreciably between human individuals, hence a value of 3 is typically used), or based on the purpose for the reference value (see the following paragraph). The UF applied in acute reference value derivation include: (1) heterogeneity among humans; (2)

unc ertainty in extrapolating from animals to humans; (3) uncertainty in lowest observed adverse effect (exposure) level to no observed adverse effect (exposure) level adjustments; and (4) uncertainty in accounting for an incomplete database on toxic effects o f potential concern. Additional adjustments are often applied to account for uncertainty in extrapolation from observations at one exposure duration ( e.g. , 4 hours) to derive an acute reference value at another exposure duration ( e.g. , 1 hour). Not all ac ute reference values are developed for the same purpose and care must be taken when interpreting the results of an acute assessment of human health effects relative to the reference value or values being exceeded. Where relevant to the estimated***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 66 of 256 exposures, the lack of short

- term dose

- response values at different levels of severity should be factored into the risk characterization as potential uncertainties. Although every effort is made to identify peer

- reviewed reference values for cancer and noncancer ef fects for all pollutants emitted by the sources included in this assessment, some HAP continue to have no reference values for cancer or chronic noncancer or acute effects. Because exposures to these pollutants cannot be included in a quantitative risk est imate, an understatement of risk for these pollutants at environmental exposure levels is possible. For a group of compounds that are either unspeciated or do not have reference values for every individual compound ( e.g. , glycol ethers), we conservatively use the most protective reference value to estimate risk from individual compounds in the group of compounds. Additionally, chronic reference values for several of the compounds included in this assessment are currently under the EPA IRIS review and revis ed assessments may determine that these pollutants are more or less potent than the current value. We may re

evaluate residual risks for the final rulemaking if these reviews are completed prior to our taking final action for this source category and a dos e - response metric changes enough to indicate that the risk assessment supporting this notice may significantly understate human health risk.***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 67 of 256 e . Uncertainties in the Multi p athway and Environmental Effects
Assessment We generally assume that when exposure le vels are not anticipated to adversely affect human health, they also are not anticipated to adversely affect the environment. For each source category, we generally rely on the site

- specific levels of PB

- HAP emissions to determine whether a full assessment of the multipathway and environmental effects is necessary. Our screening methods use
worst

- case scenarios to determine whether multipathway impacts might be important. The results of such a process are biased high for the purpose of screening out potenti al impacts. Thus, when individual pollutants or facilities screen out, we are confident that the potential for multipathway impacts is negligible. On the other hand, when individual pollutants or facilities do not screen out, it does not mean that multipol lutant impacts are significant, only that we cannot rule out that possibility.
C. How did we consider the risk results in making decisions for this proposal?
In evaluating and developing standards under section 112(f)(2),

a s discussed in s ection I. B of thi s preamble, we apply a two

- step process to address residual risk. In the first step, the EPA determines whether risks are acceptable. This determination ―considers all health information, including risk estimation uncertainty, and includes a presumptive li mit on maximum individual***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 68 of 256 lifetime [cancer] risk (MIR) 30 of approximately one in 10 thousand [ i.e. , 100 in one million]‖ ( 54 FR 38045 )
. In the second step of the
process, the EPA sets the standard at a level that provides an ample margin of safety ―in consi deration of all health information, including the number of persons at risk levels higher than approximately one in one million, as well as other relevant factors, including costs and economic impacts, technological feasibility, and other factors relevant to each particular decision
. ‖ ( Id
. ) In past residual risk actions, the EPA has presented and considered a number of human health risk metrics associated with emissions from the category under review, including: the MIR; the numbers of persons in various ri sk ranges; cancer incidence; the maximum non

- cancer HI; and the maximum acute non

- cancer hazard ( 72 FR 25138, May 3, 2007; 71 FR 42724, July 27, 2006) . In most recent proposals (75 FR 65068, October 21, 2010 ; 75 FR 80220, December 21, 2010 ; and 76 FR 29032 , May 19, 2011 ), the EPA also presented and considered additional measures of health information, such as estimates of the risks associated with the maximum level of emissions which might be allowed by the current MACT standards ( see, e.g. , 75 FR 65068, Oc tober 21, 2010 and 75 FR 80220, December 21, 2010). The EPA also discussed and considered risk estimation uncertainties. The EPA is providing this same type of information in support of the proposed actions described in this Federal Register notice.

30 Although defined as ―maximum individual risk,‖ MIR refers only to cancer risk. MIR, one metric for assessing cancer risk, is the estimated risk were an individual exposed to the maximum level of a pollutant for a lifetime.***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 69 of 256 The Ag ency is considering all available health information to inform our determinations of risk acceptability and ample margin of safety under CAA section 112(f). Specifically, as explained in the Benzene NESHAP, ― the first step judgment on acceptability cannot be reduced to any single factor‖ and thus ―[t]he Administrator believes that the acceptability of risk under [previous] section 112 is best judged on the basis of a broad set of health risk measures and information‖ ( 54 FR 38046 )
. Similarly, with regard to making the ample margin of safety determination, as stated in the Benzene NESHAP ―[ i n the ample margin decision, the Agency again considers all of the health risk and other health information considered in the first step. Beyond that information, addition al factors relating to the appropriate level of control will also be considered, including cost and economic impacts of controls, technological feasibility, uncertainties, and any other relevant factors.‖ Id.
T he Agency acknowledges tha t the Benzene NESHAP provides flexibility regarding what factors the EPA might consider in making determinations and how the se factors might be weighed for each source category. In responding to comment on our policy under the Benzene NESHAP, the EPA explained that: ―The poli cy chosen by the Administrator permits consideration of multiple measures of health risk. Not only can the MIR figure be considered, but also incidence, the presence of non

- cancer health effects, and the uncertainties of the risk estimates. In this way, th e effect on the most exposed***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 70 of 256 individuals can be reviewed as well as the impact on the general public. These factors can then be weighed in each individual case. This approach complies with the Vinyl Chloride mandate that the Administrator ascertain an acce ptable level of risk to the public by employing [her] expertise to assess available data. It also complies with the Congressional intent behind the CAA, which did not exclude the use of any particular measure of public health risk from the EPA's considerat ion with respect to CAA section 112 regulations, and, thereby, implicitly permits consideration of any and all measures of health risk which the Administrator, in [her] judgment, believes are appropriate to determining what will  ̳protect the public health‘ ‖ ( 54 FR at 38057 )
. Thus , the level of the MIR is only one factor to be weighed in determining acceptability of risks. The Benzene NESHAP explained that ―an MIR of approximately one in 10 thousand should ordinarily be the upper end of the range of acceptab ility. As risks increase above this benchmark, they become presumptively less acceptable under CAA section 112, and would be weighed with the other health risk measures and information in making an overall judgment on acceptability. Or, the Agency may find , in a particular case, that a risk that includes MIR less than the presumptively acceptable level is unacceptable in the light of other health risk factors‖ ( Id. at 38045 )
. Similarly, with regard to the ample margin of safety analysis, the EPA stated in
t he Benzene NESHAP that: ―... EPA believes the relative weight of the***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 71 of 256 many factors that can be considered in selecting an ample margin of safety can only be determined for each specific source category. This occurs mainly because technological and economic fa ctors (along with the health

- related factors) vary from source category to source category‖ ( Id. at 38061 )
. The EPA wishes to point out that certain health information has not been considered to date in making residual risk determinations. In assessing ris ks to populations in the vicinity of the facilities in each category, we present estimates of risk associated with HAP emissions from the source category alone (source category risk estimates) , and generally we have also assessed risks due to HAP emissions from the entire facility at which the covered sourc e category is located (facility wide risk estimates). We have not , however, attempt ed to characterize the risks associated with all HAP emissions impacting the populations living near the sources in these categories. That is, at this time, we do not attempt to quantify those HAP risks that may be associated with emissions from other facilities that do not include the source categories in question, mobile source emissions, natural source emissions, persisten t environmental pollution, or atmospheric transformation in the vicinity of the sources in these categories. The Agency understands the potential importance of considering an individual‘s total exposure to HAP in addition to considering exposure to HAP emi ssions from the source category and facility. This***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 72 of 256 is particularly important when assessing non

- cancer risks, where pollutant

- specific exposure health reference levels ( e.g. , RfC s ) are based on the assumption that thresholds exist for adverse health effect s. For example, the Agency recognizes that, although exposures attributable to emissions from a source category or facility alone may not indicate the potential for increased risk of adverse non

cancer health effects in a population, the exposures resultin g from emissions from the facility in combination with emissions from all of the other sources ( e.g. , other facilities) to which an individual is exposed may be sufficient to result in increased risk of adverse non

cancer health effects. In May 2010, the E PA SAB advised us ―... that RTR assessments will be most useful to decision makers and communities if results are presented in the broader context of aggregate and cumulative risks, including background concentrations and contributions from other sources in the area.‖ 31 Although we are interested in placing source category and facilitywide HAP risks in the context of total HAP risks from all sources combined in the vicinity of each source, we are concerned about the uncertainties of doing so. At this point, w e believe that such estimates of total HAP risks will have significantly greater associated uncertainties than for the source category or facilitywide

31 EPA‘s responses t o this and all other key recommendations of the SAB‘s advisory on RTR risk assessment methodologies (which is available at: http://yosemite.epa.gov/sab/sabproduct.nsf/4AB3966E263D943A8525771F00668381/$File/E PA

- SAB

- 10

- 007

- unsigned.pdf) are outlined in a me mo to this rulemaking docket from David Guinnup entitled, EPA‘s Actions in Response to the Key Recommendations of the SAB Review of RTR Risk Assessment Methodologies
.***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 73 of 256 estimates, and hence would compound the uncertainty in any such comparison. This is because we have not c onducted a detailed technical review of HAP emissions data for source categories and facilities that have not previously undergone an RTR review or are not currently undergoing such review. We are requesting comment on whether and how best to estimate and evaluate total HAP exposure in our assessments, and, in particular, on whether and how it might be appropriate to use information from the EPA‘s NATA to support such estimates. We are also seeking comment on how best to consider various types and scales of risk estimates when making our acceptability and ample margin of safety determinations under CAA section 112(f).
D . How did we perform the technology review? Our technology review focused on the identification and evaluation of developments in practices, processes, and control technologies that have occurred since the 199 9 NESHAP was promulgated
. In cases where the technology review identified such developments, we conduct ed an analysis of the technical feasibility of applying these developments, along wi th the estimated impacts (costs, emissions reductions, risk reductions, etc.) of applying these developments . We then ma d e decision s on whether it is necessary
to propose amend ments to the 1999 NESHAP to require any of the identified developments.***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 74 of 256 Based on our analyses of the data and information collected by the ICR and our general understanding of the industry and other available information on potential controls for this industry , we identif ied several potential developments in practices, processes, and control technologies. For the purpose of this exercise, we considered any of the following to be a ―development‖: Any add

- on control technology or other equipment that was not identified and considered during development of the 199 9 NESHAP . Any improvement s in add

- on control technology or other equipment (that were identified and considered during development of the 199 9 NESHAP ) that could result in significant additional emissions reduction
. Any work practice or operational procedure that was not identifie d or considered during development of the 199 9 NESHAP . Any process change or pollution prevention alternative that could be broadly applied to the industry and that was not identified or considered during development of the 199 9 NESHAP .
In addition to rev iewing the practices, processes, or control technologies that were not considered at the time we developed the 199 9 NESHAP , we reviewed a variety of data sources in our evaluation of whether there were additional practices, processes, or controls to consid er for the F erroalloys P roduction industry
. Among the data

sources we reviewed were the NESHAP for various industries that were promulgated after the 199 9 NESHAP. We reviewed the regulatory requirements and/or technical analyses associated with these regul atory actions to identify any practices, processes, and control technologies considered in these efforts that could possibly be applied to emissions sources in the Ferroalloys Production source***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 75 of 256 category , as well as the costs, non

- air impacts, and energy im plications associated with the use of these technologies
. Additionally, w e requested information from facilit ies regarding developments in practices, processes, or control technology. Finally, we reviewed other information sources, such as State or local permitting agency databases and industry

- supported databases.
E . What other issues are we addressing in this proposal? In addition to the analyses described above, we also reviewed other aspects of the MACT standards for possible revision as appropriate an d necessary. Based on this review we have identified aspects of the MACT standards that we believe need revision
. This includes proposing revisions to the startup, shutdown, and malfunction (SSM) provisions of the MACT rule in order to ensure that they ar e consistent with a recent court decision in Sierra Club v.
EPA , 551 F. 3d 1019 (D.C. Cir. 2008). In addition, we are proposing various other changes to monitoring and testing requirements to ensure that this rule includes the measures needed to ensure

con tinuous compliance at major sources subject to the revised NESHAP for the Ferroalloys Production source category
. Our analyses and proposed decisions related to SSM and other testing and reporting requirements for this source category are presented in s ect ion IV.E of this preamble."
I V . Analy tical Results and Proposed Decisions***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 76 of 256 This section of the preamble provides the results of our review of the MACT rule including the RTR for the Ferroalloys Production source category and our proposed decisions concernin g changes to the 1999 NESHAP. A. What are the results of our analyses and proposed decisions regarding unregulated pollutants? In this section, we describe how we addressed unregulated emissions , including how we calculate MACT floors , and how we
account for variability in those floor calculations , and how we consider beyond the floor options
. As described previously, the CAA section 112(d) requires the EPA to promulgate national technology

based emission standards for hazardous air pollutants ( NESHAP ) f o r listed source categories, including this source category
. For more information on this analysis, see the Draft MACT Floor Analysis for the Ferroalloys Production Source Category which is available in the docket for this proposed action. Based on the ICR data that we collected , we conducted a MACT Floor analysis. Section 112(d)(3)(B) of the CAA requires that the MACT standards for existing sources be at least as stringent as the average emissions limitation achieved by the best performing five sources (for which the Administrator has or could reasonably obtain emissions information) in a category with fewer than 30 sources. The Ferroalloy Production source category consists of fewer than 30 sources. Where, as here, there are five or fewer sources, we base t he MACT floor***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 77 of 256 limit on the average emissions limitation achieved by those sources for which we have data. The EPA must exercise its judgment, based on an evaluation of the relevant factors and available data, to determine the level of emissions control th at has been achieved by the best performing sources under variable conditions. It is recognized in the case law that the EPA may consider variability in estimating the degree of emissions reduction achieved by best

- performing sources and in setting MACT fl oors. See Mossville Envt‘l Action Now v. EPA , 370 F.3d 1232, 1241

– 42 (D.C. Cir 2004) (holding the EPA may consider emissions variability in estimating performance achieved by best

- performing sources and may set the floor at a level that a best

- performing

s ource can expect to meet ―every day and under all operating conditions‖). With regard to data used to determine the MACT limits, Note that

we received have detailed emissions data for multiple HAP from one furnace and one crushing system baghouse at each plant (collected at the outlet of the control device) based on an ICR sent to the two companies in 2010 . We are soliciting additional emissions data for the operating furnaces and crushing system baghouses for which we do not have data and any other emissi ons sources at ferroalloys production facilities including and available information on the quantity and composition of process fugitive emissions. 1. Mercury Emissions***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 78 of 256 Section 112(d)(3)(B) of the CAA requires that the MACT standards for existing sources be at least as stringent as the average emissions limitation achieved by the best performing five sources (for which the Administrator has or could reasonably obtain emissions information) in a category with fewer than 30 sources. The Ferroalloy Production source category consists of fewer than 30 sources. Where, as here, there are five or fewer sources, we base the MACT floor limit on the average emissions limitation achieved by those sources for which we have data. The EPA must exercise its judgment, bas ed on an evaluation of the relevant factors and available data, to determine the level of emissions control that has been achieved by the best performing sources under variable conditions. It is recognized in the case law that the EPA may consider variabil ity in estimating the degree of emissions reduction achieved by best

- performing sources and in setting MACT floors. See Mossville Envt‘l Action Now v. EPA , 370 F.3d 1232, 1241

– 42 (D.C. Cir 2004) (holding the EPA may consider emissions variability in estima ting performance achieved by best

- performing sources and may set the floor at a level that a best

- performing source can expect to meet ―every day and under all operating conditions‖). The raw materials used to produce ferroalloys contain various amounts of mercury, which is emitted during the smelting process. These mercury emissions are derived primarily from the manganese ore***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 79 of 256 although there may be trace amounts in the coke or coal used in the smelting process. While some of the mercury that is in particul ate or oxidized forms is captured by the particulate control devices, the more volatile elemental mercury is largely emitted to the atmosphere. We found that mercury emissions are emitted from the furnaces as measured during the ICR test program (estimated to be 540 pounds per year (lb/yr) at one plant and 140 lb/yr at the other plant)
. Pursuant to CAA section 112(d)(2) and 112(d)(3), we are proposing to revise the 1999 NESHAP to include emission limits for mercury. As discussed above, the MACT floor limit is calculated based on the average performance of the units in each category plus an amount to account for these units‘ variability. To account for variability in the operation and emissions, the stack test data were used to calculate the average emissions and the 99 percent upper predictive limit (UPL) to derive the MACT floor limit. For more information on how we calculated the MACT floors and other emission limits, see the Ferroalloys Production MACT Floor Analysis document, which is available in the doc ket. Using this method, the MACT floor (or 99 percent UPL) for exhaust mercury concentrations from existing furnaces is 80 μg/dscm at 2 percent carbon dioxide (CO 2 ). This MACT floor limit is higher than the actual emissions measured during the ICR performa nce tests at each plant. Therefore, we anticipate that both of the existing***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 80 of 256 sources would be able to meet this limit without installing additional controls. With regard to new sources, as described above, the MACT floor for new sources cannot be less stri ngent than the emissions performance that is achieved in practice by the best

- controlled similar source. A variability analysis similar to that used for existing sources was then performed to calculate a 99 percent UPL using the three run test data from th e top source. For this source category, we calculate that the UPL MACT floor limit for new sources is 16 μg/dscm at 2 percent CO 2 . This limit is based on the performance of the best performing source. The next step in establishing MACT standards is the inv estigation of regulatory alternatives. We can select an alternative standard that is more stringent than the MACT floor level of control, if it is technically and economically achievable consistent with CAA section 112(d)(2). The statute requires us to

con sider the cost of achieving the emission reduction, any non

- air quality health and environmental impacts, and energy requirements. Historically, these factors have included factors such as solid waste impacts of a control, effects of emissions on bodies of water, as well as the energy impacts. Therefore, As described below, we considered beyond

- the

- floor control options to further reduce emissions of mercury. Because of our limited data set, The option we considered is based on setting a MACT limit for exis ting sources***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 81 of 256 based on the performance of the best performing source ( i.e. , based upon the test data used to calculate the MACT floor for new sources) such that the MACT limit for existing sources would be the same as the UPL MACT limit for new sources ( i.e
. , 16 μg/dscm). As described below, we believe this level could be achieved by an activated carbon injection system, which is a proven technology for mercury control. Compliance would be demonstrated by periodic performance testing and continuous parameter monitoring. In evaluating a beyond the floor option, we must consider the cost and technical feasibility of achieving the emission limit. No facilities in the source category use add

- on control devices or use work practices to limit mercury emissions bey ond what is normally achieved as co

- control of the emissions with the particulate matter control device. However, w e identified both carbon bed technology and activated carbon injection as commercially available mercury emission reduction techniques. Carbo n bed technology ( which is one of the
p rimary control devices used at Industrial Gold Production facilities to minimize mercury emissions, as described in the proposed NESHAP for Gold Mines ( 7 5 FR 22470 , April 28, 2010 ) proposed under the recent Gold Mine N ESHAP ) does not appear to be a viable technology to control the large volumes of airflow generated by the electric arc furnaces in the Ferroalloys Production source category. However, activated carbon in jection , which has been used to control mercury emis sions at various types of facilities that have large volumes of***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 82 of 256 airflow including some coal

- fired power plants , waste incinerators and c ement k ilns
. ), is considered a viable control option for the Ferroalloys Production source category
. being considered in other recent NESHAP such as the Utility MACT NESHAP and the Portland Cement
NESHAP Based on available information, A a ctivated carbon in jection appears to be the best control for mercury for these to control large r volume combustion sources. M ercury re ductions of up to 90 or 9 0 5 percent have been are reported at these other sources and should also be achievable at ferroalloys production facilities. Therefore, b B ased on data and information on our experience with these mercury controls for other combusti on sources ( such as utility boilers, incinerators and cement kilns ) , and based on our experience with these controls, w e conclude that activated carbon injection is a viable control technology for in the Ferroalloys Production source category . Nevertheless , W w e request comment on this beyond the floor limit, the feasibility and costs of these ACI c ontrols , and other possible controls that could be effective and perhaps less costly. We also request comment on whether work practices, such as switching to
mang anese ores with low mercury content, could be technically and economically feasible. We recognize the potential concern that use of activated carbon injection upstream of the particulate matter control device may pose issues with fabric filter dust contami nation or sludge contamination and may result in some waste products being classified as Resource***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 83 of 256 Conservation and Recovery Act (RCRA) waste versus the more easily and less costly to dispose of industrial waste. In addition, some companies re

- use or sell t heir baghouse dust (primarily for use in cement kilns). There is also concern that even if the material meets quality standards, that re

- introduction of the dust into a furnace or kiln c ould cause the mercury to become unbound from the carbon and be emitte d into the atmosphere. We reviewed facility specific control options that included putting the mercury controls downstream of the existing furnace baghouse to avoid the potential issues (described above) associated with upstream controls
. Under this scena rio, t he activated carbon injection system would be followed by a ―polishing‖ baghouse to capture the activated carbon for disposal. In the case of the existing furnace scrubber, we assumed the source could put the activated carbon injection system upstrea m of the scrubber, the carbon would be captured by the scrubber and the resulting sludge treated according to the existing treatment process at the plant. Based on discussion 32 with a vendor and other control technology experts, we do not believe that the r esulting carbon waste in either scenario would trigger the RCRA compliance concerns raised by the companies . This is because once the mercury absorbs to the activated carbon, it will stay there until heated above 400 degrees Fahrenheit. The captured activa ted carbon should pass the Toxicity Characteristic

32 Conversation with D. Lipscomb, Albemarle. August 22, 2011.***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 84 of 256 Leaching Procedure test, which is an EPA test method used to characterize waste as either hazardous or non

- hazardous for the purpose of disposal. Therefore, the captured activated carbon would unlikely be considered hazardous waste and can be disposed of in a landfill. We estimate that under this beyond the floor option described above ( i.e. , a proposed limit of 16 μg/dscm) , that on e facility would need to install additional controls such as activated carb on injection to meet th is e limit of 16 u μ g/dscm , and that this would achieve about 420 pounds of reduction per year in mercury emissions. The capit a o l costs are estimated to be $1.7 million, annual costs to be $1.4 million, with an overall cost

- effectiven ess of $3,300 per pound. Overall, we conclude that believe these controls are feasible from a technical standpoint and cost effective. Therefore, we are proposing a MACT limit for mercury emissions of 16 μ u g/dscm for both existing and new sources under the authority of sections 112(d)(2) and (d)(3). More information regarding how the MACT limits were calculated and the costs is provided in Ferroalloys Production MACT Floor and Cost Memos, which are available in the docket for this rulemaking. T he proposed M ACT limits and potential related issues are also described further below under the technology review section of this preamble (section IV.D.4)
. Nevertheless, w W e are requesting comment on these proposed limits for mercury, including the costs and feasibili ty of meeting***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 85 of 256 these limits, and whether these proposed standards are appropriate for all types of manganese production operations or if subcategories should be considered for the mercury standard. The emission data collected were from one furnace producing ferromanganese at one plant and from one furnace producing silicomanganese at another plant. We are requesting additional test data or analysis that could be used to determine if different standard s would be appropriate for ferromanganese production and s ilicomanganese production processes and what the level s th ose standard s should be. Specifically, we understand that the production of ferromanganese products requires substantially larger amounts of ore in the furnace charge than does the production of sil icomanganese product. A ton of ferromanganese product may require three to six times as much ore as a ton of silicomanganese product . As a result, the mercury concentration in the offgas may be higher as well. Even so, w e do not believe that

s ubcategoriz a t ion would have any substantive effect on the resulting standards or the costs o f controls either the floor (no additional control) or the beyond the floor option since th ere would be no change in the costs and feasibility of mercury controls evaluated for these sources
. The emission data collected were from one furnace producing ferromanganese at one plant and from one furnace producing silicomanganese at another plant. We are requesting additional test data or analysis that could be used to determine if different***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 86 of 256 standard s would be appropriate for ferromanganese production and silicomanganese production processes and what the level s th ose standard s should be.
A Nevertheless, a ny source installing activated carbon injection would be required to continuousl y monitor the carbon injection rate into the airstream being controlled. W e request comment on the level of variability in the carbon injection rate that should be allowed, and what percent de crease in the rate should be considered significant.
W e also pro pose that sources monitor the mercury content in the manganese ore. Specifically, we propose that the determination of a significant increase in mercury content would be that the 12

- month rolling weighted average mercury concentration based on monthly

sam pling in the manganese ore increase s by 10 percent or more compared to the baseline weighted average mercury concentration. If that limit is exceeded, the source would be required to readjust the carbon injection rate as specified in the source‘s monitorin g plan or retest within 30 days if there is not a dedicated mercury control device. If a new ore is added, sampling would be required as well. Nevertheless, we request comment on this ore monitoring provision
. We are especially interested in any data that would show the variability in mercury concentration between different ore samples from the same location and the variability of the types of ores used in manganese production. If ore type and mercury content***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 87 of 256 are demonstrated to be stable, we might conside r reduc ing the frequency of sampling/calculations to quarterly or less. 2. Polycyclic Aromatic Hydrocarbons (PAHs) PAH emissions are products of incomplete combustion from the smelting operation, and a subset of the listed HAP POM. Some of these emissions are likely to be in particulate form, but a significant portion is expected to be in a gaseous form. Therefore, the existing particulate matter control devices only achieve partial control of these compounds. N o existing facilities in the source category control PAH or use work practices to limit emissions of PAH emissions specifically
. However, u nder today‘s proposal, t hese pollutants would be controlled with the same activated carbon injection technology as mercury. Because of this, emission reductions c ould be achieved via

co - control at no additional costs. Nevertheless, t he 1999 MACT does not include any standards specifically for PAH. Therefore, P p ursuant to CAA section 112(d)(2) and 112(d)(3), we are proposing to revise the 1999 NESHAP to include an e mission limit for PAH. We have stack test data from only one furnace for PAH emissions. As such, the MACT floor would be based on the performance level achieved at that furnace ( i.e. , the average emissions of that furnace plus an amount to account for vari ability). Based on these data and applying the 99 percent UPL, we calculate that the MACT floor limit for PAHs would be 887 μg/dscm
. We also evaluated control performance that could be achieved via co

- control of mercury emissions with***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 88 of 256 activated carbon inje ction as a beyond

- the

- floor option. Based on information from carbon vendors, an activated carbon system that is designed to achieve a 90 percent reduction in mercury emissions (which we expect believe would be applied to meet the proposed mercury standard discussed above) should also achieve a high degree of reduction in PAH with no additional costs. Assuming a 90 percent reduction from the calculated 99 percent UPL of 887 μg/dscm, the resulting limit would be 89 μg/dscm (see section IV. D .5 for more detail ) . Thus, a proposed limit for PAHs of 89 μg/dscm could be achieved with the same controls needed for mercury with no additional
costs. Therefore, pursuant to CAA sections 112(d)(2) and (d)(3), we are proposing to revise the 1999 NESHAP to include an emissi on limit for PAH of 89 μg/dscm for new and existing sources
. 3. Hydro chloric acid gen chloride HCl A cid Gases As noted above, the 1999 MACT rule does not include standards for acid gases ( HCl and HF)
. Hydro gen chloride ( Hydrochloric acid ( HCl ) is These acid ga ses are a product of combustion, and the level of emissions is dictated by the chlorine and fluorine content of the coal or coke used as a reducing agent in the smelting process. Based on test data from the ICR, w e estimate that the two facilities in this source category emit 6 to 11 tpy of HCl. While these levels of emissions are nontrivial, they are relatively low compared to some other types of combustion sources. The primary reason for this is***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 89 of 256 that manganese producers use coke instead of coal as the pri mary reducing agent in the smelting operation. Because coke is a refined product, much of the original chlorine content in the coal is removed in the coking process, which greatly reduces potential emissions. Second, one of the five furnaces at these plant s is equipped with a scrubber, which provides co

- control of particulate matter and HCl emissions. Because the current rule has no limits for HCl these HAP,
p In any case, section 112 (d) requi r es us to set MACT for all listed HAP emitted from a source categor y. P ursuant to CAA section 112(d)(2) and 112(d)(3), we are proposing to revise the 1999 NESHAP to include emission limits for HCl acid gases
. We estimate that the two facilities in this source category emit 6 to 11 tpy of HCl , and 1 to 7 tpy of HF per facil ity, respectively
. While these levels of emissions are nontrivial, they are relatively low compared to some other types of combustion sources. The primary reason for this is that manganese producers use coke instead of coal as the primary reducing agent in the smelting operation. Because coke is a refined product, much of the original chlorine or fluorine content in the coal is removed in the coking process, which greatly reduces potential emissions. Second, one of the five furnaces at these plants is equip ped with a scrubber, which provides co

- control of particulate matter and acid gas emissions. Nevertheless, we believe it is appropriate to propose emission limits for HCl these HAP in today‘s action.***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 90 of 256 As discussed above, the MACT floor limit is calculated b ased on the average performance of the units in each category plus an amount to account for these units‘ variability. To account for variability in the operation and emissions, the stack test data were used to calculate the average emissions and the 99 per cent UPL to derive the MACT floor limit. However, a number of the individual data points were reported as below the applicable test detection limit s . 33 The following discussion describes how we handle such data in our MACT calculations. Test method measurem ent imprecision is a contributor to the variability of a set of emissions data. One element is associated with method detection capabilities and a second is a function of the measurement value. Measurement imprecision is proportionally highest for values m easured below or near a method‘s detection level and proportionally lower for values measured above the method detection level. The probability procedures applied in calculating the MACT floor

or beyond the floor emissions limit inherently and reasonably account for emissions data variability including measurement imprecision when the database represents multiple tests from multiple emissions units for which all of the data are measured significantly above the method detection level. This is less true when the database includes some

33 We conducted this analysis for all measured pollutant according to the following method when non detects were reported. However only the hydrochloric acid , hydrofluoric acid and formaldehyde data needed a detection limit correction to adequately account for variability, as describe d below.***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 91 of 256 emissions occurring below method detection capabilities that are reported as the method detection level values. The EPA‘s guidance to facilities for reporting pollutant emissions in response to the ICR data collection specified the criteria for determining test

- specific method detection levels. Those criteria ensure that there is only about a 1 percent probability of an error in deciding that the pollutant measured at the method detection level is present when in fact it was abse nt. Such a probability is also called a false positive or an alpha, Type I, error. Because of sample and emissions matrix effects, laboratory techniques, sample size, and other factors, method detection levels normally vary from test to test for any specif ic test method and pollutant measurement. The expected measurement imprecision is 40 to 50 percent or greater at levels measured at the method detection level or less
. The expected measurement imprecision decreases to a relative 10 to 15 percent for values measured at a level about three times the method detection level or greater . 34 Also in accordance with our guidance, source owners identified emissions data which were measured below the method detection level and reported those values as equal to the meth od detection level as determined for that test. An effect of reporting data in this manner is that the resulting database is somewhat truncated at the lower end

34 American Society of Mechanical Engineers, Reference Method Accuracy and Precision (ReMAP): Phase 1, Precision of Manual Stack Emission Measurements , CRTD Vol. 60, February 2001.***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 92 of 256 of the measurement range ( i.e. , no values reported below the test

specific method detection lev el). A MACT floor or beyond the floor emissions limit based on a truncated database or otherwise including values measured near the method detection level may not adequately account for measurement imprecision contribution to the data variability. We appli ed the following procedures to account for the effect of measurement imprecision associated with a database that includes method detection level data. The following process also addresses the concerns associated with use of a small data set, such as the
Fe rroalloys Production data set for HCl acid gases . As a first step, we reviewed an HCl emissions data set for the industrial boilers rule, which represents several hundred emissions tests used in the floor calculations ( i.e. , best performers) for the boilers rule to determine typical method detection levels. We have data from multiple industrial boilers tests and used those data to confirm th a t method detection levels testers reported were as good as or better ( i.e. , lower) than the values reported in the met hod. We presume that data for the best performing units also reflect the capabilities of high quality testing companies and laboratories. Further, the method detection levels calculated from larger data sets are more representative of the inherent measurem ent variability both within and between testing companies than the limited Ferroalloys Production dataset. We believe that emissions tests conducted with these methods***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 93 of 256 for most combustion operations ( e.g. , fossil fuel, biomass, and waste fired units; brick and clay kilns; Portland cement kilns), including ferroalloys production, should produce method detection levels very similar to the level of 60 μg/dscm that is the result of this review.
We assumed that the representative detection level ( RDL ) for HF wou ld be the same as for HCl. The second step in the process was to calculate three times the RDL and compare that value to the calculated MACT floor or beyond the floor emissions limit. We use the multiplication factor of three to approximate a 99 percent up per confidence interval for a data set of seven or more values. If three times the RDL w as less than the calculated MACT floor emissions limit calculated from the UPL, we would conclude that measurement variability was adequately addressed. The calculated MACT floor or beyond the floor emissions limit would need no adjustment. If, on the other hand, the value equal to three times the RDL was greater than the UPL, we would conclude that the calculated MACT floor or beyond the floor emissions limit does not

a ccount entirely for measurement variability. If indicated, we substituted the value equal to three times the RDL to apply as the adjusted MACT floor or beyond the floor emissions limit. This adjusted value would ensure measurement variability is adequately addressed in the MACT floor or the beyond the floor emissions limit. For HCl, three times the RDL was less than the calculated 99 percent UPL for exhaust HCl concentration from existing furnaces.***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 94 of 256 Thus, for existing sources, the MACT floor for HCl is set a t the UPL, or 809 μg/dscm corrected to 2 percent CO 2 . Similarly, f or HF, three times the RDL was less than the calculated 99 percent UPL for exhaust HF concentration from existing furnaces. Thus, for existing sources, the MACT floor for HF is 801 μg/dscm c orrected to 2 percent CO 2 . Consistent with CAA section 112(d)(3), the MACT floor for new sources cannot be less stringent than the emissions control that is achieved in practice by the best

- controlled similar source. The 99 percent UPL calculated for both HCl and HF based on the best performing source is less stringent than the MACT floor for HCl and
HF at existing furnaces. We determined that the use of th e best performing source UPL is not appropriate in this situation because the high variability and sm all data pool would result in a new source MACT floor limit that is less stringent than the limit based on the UPL calculated from the larger data pool for existing sources. Given that the 99 percent UPL for new sources is higher than the 99 percent
UPL fo r existing sources, w e determined that the MACT limit for new sources should be equal to the MACT limit for existing sources. We then considered a beyond

- the

- floor option to further reduce emissions of HCl and HF at existing sources based on application of additional add

- on control devices, such as lime injection, but their use is not indicated given the high costs of installing and operating such controls. There is also concern that use of this technology could prevent the current practice of reusing or se lling baghouse***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 95 of 256 dust and the resulting waste reduction benefits
. See the Draft MACT Floor Analysis for the Ferroalloys Production Source Category in the docket for more discussion of this topic. Therefore, pursuant to CAA sections 112(d)(2) and 112(d)(3), w e are proposing to revise the 1999 NESHAP to include emission limits for new and existing sources for HCl and HF of 809 μg/dscm and 801 μg/dscm, respectively . At this level, we do not anticipate that either source would be required to install controls to m eet the limit s . As described above, there are some measurements reported as below the method detection level. Because of the potential uncertainty in basing a limit partially on non - detect values , w e considered the possibility of proposing work practice st andards such as a limit on the amount of coal (the primary source of chlorine in the raw materials) in lieu of numerical emission limits . W e request comment on whether this or other work practices might be appropriate. 4. Formaldehyde Formaldehyde emission s are also products of incomplete combustion from the smelting operation. The existing particulate matter control devices only achieve partial control of these volatile compounds. Based on test data from the ICR, we estimate that the two facilities in this source category emit approximately 2 tpy of formaldehyde
. Pursuant to CAA section 112 (d)(2) and 112 (d)(3), we are proposing to revise the 1999 NESHAP to include emission limits for formaldehyde.***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 96 of 256 The measured average formaldehyde emissions ranged from 57 t o 78 μg/dscm corrected to 2 percent CO 2 . Because the formaldehyde emissions data included some many data points reported as below the detection limit, we employed a version of the methodology used for HCl acid
gases to determine set the MACT floor. However, in this case we lack the underlying large data set of formaldehyde method detection limits that we had for HCl method detection limits. In this case, the first step was to define a method detection level that is representative of the data used in defining the best performers for the inclusive source category ( i.e. , combined data for all subcategories). We identified all of the available reported pollutant specific method detection levels and calculated the arithmetic mean value. We deemed the resulting mea n of the method detection levels as the (RDL). Three times the RDL was greater than the calculated 99 percent UPL for exhaust formaldehyde concentrations from existing furnaces, resulting in a MACT floor of three times the RDL, or 201 μg/dscm at 2 percent
CO 2 . Based on available data, all of the existing sources could meet this limit without installing additional controls. Due to the high variability in the data pool, the 99 percent UPL for the best

- performing source is less stringent than the existing

sou rce MACT floor. Therefore, pursuant to CAA section 112(d)(2) and 112(d)(3), we are proposing to revise the 1999 NESHAP to include a n emission limit for formaldehyde for new and existing sources of 201 μg/dscm based on the MACT floor calculation
. We have no t identified***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 97 of 256 any appropriate beyond

- the

- floor control technology options specifically for formaldehyde. We recognize the potential for some

co - control of formaldehyde emissions that would be achieved by using activated carbon injection to control mercury e missions, but we were unable to quantify those reductions
. More information regarding how the MACT limits were calculated and the costs is provided in Ferroalloys Production MACT Floor and Cost Memos, which are available in the docket for this rulemaking
. B. What are the results of the risk assessment and analyses? As described above, for the Ferroalloys Production source category, we conducted an inhalation risk assessment for all HAP emitted. We also conducted multipathway screening analyses for
mercury a nd POM. Details of the risk assessment and additional analyses can be found in the residual risk documentation referenced in s ection III.B of this preamble, which is available in the docket for this action. The Agency considered the available health inform ation

-- the MIR; the numbers of persons in various risk ranges; cancer incidence; the maximum non

- cancer HI; the maximum
worst

- case acute non

- cancer HQ; the extent of non

- cancer risks; the potential for adverse environmental effects; and distribution of

r isks in the exposed population (54 FR 38044, September 14, 1989)

– in developing the proposed CAA section 112(f)(2) standards for the Ferroalloys Production source category. 1. Inhalation Risk Assessment Results***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 98 of 256 Table 5 of this preamble provides an overal l summary of the results of the inhalation risk assessment. Table 5. Ferroalloys Production Inhalation Risk Assessment Results

Maximum Individual Cancer Risk (in 1 million) 1 Estimated Popu

lation at increased Risk of cancer ≥ 1

- in

- 1 Million Estimated

Annual Cancer Incidence (cases per year) Maximum Chronic

Non

- cancer TOSHI 3 Maxi

mum Screen

- ing Acute Non

cancer HQ 4 Based on Actual Emissions Level 2 Based on

Allowable Emissions Level Based on Actual Emissions Level Based

on Allow

able Emis

sions Level Manganese Facilities 80 100 26,000 0.002 90 200 10 1 Estimated maximum individual excess lifetime cancer risk due to HAP emissions from the source category. 2 B ased on the con sistent views of major scientific bodies ( i.e. , NTP in their 12 th Report on Carcinogens, IARC, and other international agencies) that consider all nickel compounds to be carcinogenic, we currently consider all nickel compounds to have the potential of bein g as carcinogenic as nickel subsulfide. To implement this approach we apply the nickel subsulfide IRIS URE without a factor to reflect the assumption that 100 percent of the total mass of nickel may be carcinogenic. The EPA also considers it reasonable to use a value that is 50 percent of the IRIS URE for nickel subsulfide. If the lower end of the nickel URE range is used, the maximum individual lifetime cancer risk based on actual emissions would be 50 in 1 million. The allowable cancer risk would remain 1 00 in a million because it is at the other facility which does not have nickel as a cancer driver. The estimated annual cancer incidence would be also be reduced, but due to our presentation of incidence to one significant figure, remains 0.002. Estimated population values are not scalable with the nickel URE range, but would be lower using the lower value. 3 Maximum TOSHI. The target organ with the highest TOSHI for the Ferroalloys Production source category is the central nervous system. 4 The maximum o ff

- site HQ acute value of 10 is driven by emissions of nickel. See s ection III.B of this preamble for explanation of acute dose

- response values. The results of the chronic baseline inhalation cancer risk assessment indicate that, based on estimates of cur rent actual emissions, the current maximum individual lifetime cancer risk posed by these two facilities could be up to 80 in one million (50 in one million with the lower nickel URE value) , with process fugitive emission s (from the furnace, crushing opera tion, and casting) of***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 99 of 256 nickel, chromium and arsenic as major contributors to the risk. The total estimated cancer incidence from this source category based on actual emission levels is 0.002 excess cancer cases per year or one case in every 500 years, with emissions of nickel, chromium and arsenic contributing 36 percent, 24 percent and 24 percent respectively, to this cancer incidence. In addition, we note that approximately 1,100 people are estimated to have cancer risks greater than 10 in one million, and approximately 26,000 people are estimated to have risks greater than one in one million as a result of emissions from these two facilities. When considering the risks associated with MACT

- allowable emissions, both facilities have allowable risks of 100 in one million, driven by nickel, chromium VI, and arsenic at one facility (which would have an allowable cancer risk of 70 in one million when using the lower nickel URE value) and chromium VI and arsenic at the other facility (which would have an allowable cancer risk of 100 in one million when using the lower nickel URE value)
. the MIR could be up to 100 in one million. The maximum modeled chronic non

- cancer TOSHI value for the source category could be up to 90 with emissions of manganese from process fugit ives dominating those impacts. A TOSHI of 90 means that the m odeled long

- term average air concentration of manganese at that location is about 4.5 μg/m 3 , or 90 times above the RfC ( i.e. , 0.05 μg/m 3 ).***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 100 of 256 Approximately 28,000 people are exposed to TOSHI levels above 1. At exposure levels above a TOSHI level of 1 ( i.e. , the RfC for manganese) , manganese can cause central nervous system effects. However, the EPA cannot state at what exposure level there will be an appreciable risk of deleterious effects. Visual r eaction time, hand steadiness, and eye

- hand coordination effects have been reported in chronically

- exposed workers. When considering MACT

- allowable emissions, the maximum chronic non

- cancer TOSHI value could be up to 200. As the RfC is the level below whic h there is not likely to be appreciable risk of deleterious effects, the EPA looks carefully at values that are above the RfC. This includes evaluation of the potential adverse effect, the concentration at which these effects are observed and the applicati on of adjustment and uncertainty factors that generally reflect limitations in the database. The EPA has medium confidence in the RfC value which is 0.00005 mg/m 3

. 35 As mentioned earlier (in s ection II), ambient concentrations of manganese were monitored at three schools located near one of the regulated ferroalloy production facilities during the EPA‘s School Air Toxics Initiative in late 2009. The mean manganese concentrations were observed to be above the RfC for all three sites , however there
was a range of values above and below the RfC . In addition, we compared these monitored concentrations of manganese to predicted modeled concentrations of manganese at receptors in close proximity

35 IRIS Manganese (1995) http://www.epa.gov/iris/subst/0373.htm***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 101 of 256 (within 0.5 to 2.5 kilometers) to the monitors. At these three locatio ns, model predictions are generally within a factor of two when compared to the average monitored concentrations at these sites. These results indicate that AERMOD estimates of ambient air manganese concentrations provide a reasonable representation of the measured maximum manganese concentrations present in the ambient air near this facility. More information about the EPA‘s School Air Toxics Initiative can be found at h ttp://www.epa.gov/schoolair/index.html , while more information about the study includin g the area around the facility can be found at http://www.epa.gov/schoolair/pdfs/MariettaTechReport.pdf . More information about the model results and the model to monitor comparison can be found in the R isk Assessment document , which is available in the do cket. Our screening analysis for worst

- case acute impacts indicates the potential for two pollutants, nickel and arsenic, to exceed an HQ value of 1, with a potential maximum HQ as high as 10 for nickel and 9 for arsenic based on acute REL values for each substance. There are no AEGL or ERPG values for these pollutants. These acute result values were based on maximum hourly emissions estimates and a review of the facility boundaries to make sure the estimated impacts were off facility property. Refer to Ap pendix 1 of the Risk Assessment document in the docket for a detailed description of how the maximum hourly emissions were developed for this source category. These***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 102 of 256 results suggest there may be Based on these results, we cannot rule out the potential for ac ute impacts of concern from the emissions of nickel and arsenic from the two facilities in this category. In characterizing the potential for acute noncancer impacts of concern, it is important to remember the upward bias of these exposure estimates ( e.g. , worst

- case meteorology coinciding with a person located at the point of maximum concentration during the hour) and to consider the results along with the uncertainties related to the emissions estimates and the screening methodology. 2. Multipathway Risk Assessment and Results The PB

- HAP emitted by facilities in this category include mercury, POM (as benzo(a)pyrene toxicity equivalents, or TEQ) , and lead
. To identify potential multipathway health risks from PB

- HAP other than lead, we first performed a scre ening analysis that compared emissions of other PB

- HAP emitted from the Ferroalloys Production source category to emission threshold values. The two facilities in the source category reported emissions of mercury and
POM , and both of them had baseline emis sion rates greater than the screening emission threshold values for the pollutants indicating that there may be potential multipathway impacts of concern due to emissions of these pollutants from these two facilities. One facility‘s emission rates of mercu ry exceeded the screening threshold by 30 times, while the other facility‘s mercury emissions exceeded the threshold by 7 times. For POM, one facility‘s emission rates***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 103 of 256 exceeded the screening threshold by 600 times, while the other facility‘s emission rates exceeded the threshold by 50 times. For mercury, exceeding the screening emission threshold value relates to a potential for creating a chronic noncancer hazard quotient in excess of 1. For POM, exceeding the screening emission threshold value relates to a potential for creating a cancer risk in excess of

one in one million. Since the two PB

- HAP did not screen out during our initial screening analysis, we refined our analysis somewhat with some additional site

- specific information to develop an ―intermedia te

screen , . ‖ w hich is a more realistic analysis but still considered a screening analysis. (See Appendix 5 of the Risk Assessment document in the docket for more information about this intermediate screen.) The additional site

- specific information included land use around the facilities, the location of fishable lakes, and local wind direction and speed. The result of this analysis was the development of site

specific emission screening thresholds for POM and mercury. Based on this intermediate screening an alysis, neither facility screened out, meaning that we cannot rule out the potential for multipathway impacts of concern due to emissions of these pollutants from these two facilities. One facility‘s emission rates exceeded the site

specific screening thre shold for mercury by 4 times, while the other facility‘s emission rates equaled the threshold value. For POM, one facility‘s emission rates exceeded the site

- specific screening***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 104 of 256 threshold for POM by 60 times, while the other facility‘s emission rates exceed ed the threshold by 5 times. We were unable to obtain the data necessary to conduct a fully refined assessment of multipathway risks from these two facilities. In evaluating the potential for multipathway effects from emissions of lead, modeled maximum ann ual lead concentrations were compared to the National Ambient Air Quality Standards (NAAQS) for lead (0.15 μg/m 3 ). Results of this analysis estimate that the NAAQS for lead could be exceeded at one of the two facilities, largely due to process fugitive emi ssions. This analysis estimates that the annual lead concentrations could be as high as two times the NAAQS for lead, and if the maximum 3

- month rolling average concentrations were used, the result could be even greater concentrations above the NAAQS. Howe ver, this additional analysis was not conducted because, as shown below (in s ection IV. C .2), the maximum annual lead concentration after the proposed controls are applied is significantly below the NAAQS, with a value of 0.0 2 μg/m 3

. 3. Facilitywide Risk As sessment Results For both facilities in this source category, there are no other significant HAP emissions sources present beyond those included in the source category. All significant HAP sources have been included in the source category risk analysis. Th erefore, we conclude that the facilitywide risk is essentially the same as the source category risk and that no separate facilitywide analysis is necessary.***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 105 of 256 C. What are our proposed decisions based on risk acceptability and ample margin of safety? 1. Risk Acceptability As noted in s ection III.C of this preamble, we weigh all health risk factors in our risk acceptability determination, including the MIR; the number of persons in various risk ranges; cancer incidence; the maximum noncancer HI; the maximum ac ute noncancer HQ; the extent of noncancer risks; the potential for adverse environmental effects; distribution of risks in the exposed population; and risk estimation uncertainty (54 FR 38044, September 14 , 1989). As the D.C. Circuit held in NRDC v. EPA , 5 29 F.3d 1077, 108 2 (D.C. Cir. 2008), section 112(f)(2) ―incorporates EPA‘s  ̳interpretation‘ of the Clean Air Act from the Benzene Standard, and the text of this provision draws no distinction between carcinogens and non

- carcinogens. ‖ As th e D.C. Circuit he ld, there is nothing on the face of the statute that limits the Agency ‘s section 112(f) assessment of risk to carcinogens. Id . at 1081

– 82. Indeed, in the NRDC case, the petitioners argued , among other things, that section 112(f)(2)(B) a pplied only to non

carcinogens. The D.C. Circuit flatly rejected this position , holding that the text of th at provision ― draws no distinction between carcinogens and non

- carcinogens ,‖ and that Congress‘ incorporation of the Benzene standard applies equally to carcinogens an d non

carcinogens.***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 106 of 256 Moreover, t he Benzene NESHAP analysis referenced in CAA section 112(f)(2)(B) is based on EPA‘s interpretation of CAA section 112 as it existed prior to the 1990 CAA Amendments. The pre

- 1990 version of section 112 also used the phrase ―am ple margin of safety‖ and, in no way, distinguished between cancer and non

- cancer risks. Inherent in determining what is an ―ample margin of safety‖ is determining what level of risk is acceptable, which is the first step in a Benzene NESHAP analysis. See NRDC v. EPA, 824 F.2d at 1164 ( Vinyl Chloride ) (―We find that the congressional mandate to provide  ̳an ample margin of safety‘  ̳to protect the public health‘ requires the Administrator to make an initial determination of what is  ̳safe.‘‖). Congress incorpo rated the same ample margin of safety language in section 112(f)(2), and as the D.C. Circuit recognized in NRDC , that language calls for the Agency to assess both carcinogens and non

- carcinogens in evaluating whether the MACT standards ―provide an ample m argin of safety to protect public health.‖ Nothing on the face of the statute suggests that in reviewing the risk associated with a source category the Agency can ignore non

- carcinogens. Such a reading is wholly unsustainable and contrary to D.C. Circuit p recedent. Based on the baseline inhalation risk assessment, we estimate that the cancer risks to the individual most exposed could be up to as high as 80 in one million (50 in one million when using the lower nickel URE value) due to actual emissions of a rsenic, chromium and nickel from process fugitives and up to as high as 100 in one million***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 107 of 256 due to MACT

- allowable emissions, mainly due to chromium , and arsenic and nickel stack emissions. (There is no change in the allowable cancer risk estimate when using the lower nickel URE value.) We estimate that the incidence of cancer based on actual emissions is 0.002 excess cancer cases per year, or 1 case every 500 years, and that about 26,000 people face a cancer risk greater than one in one million due to HAP em issions from this source category. The chronic noncancer TOSHI could be up to as high as 90 due to actual emissions of manganese from process fugitives and up to as high as 200 due to
MACT

- allowable emissions of manganese from process fugitives. We estimate that about 28,000 people face a TOSHI level greater than 1 due to emissions from this source category. With respect to potential acute non

- cancer health risks, we estimate that, based on our refined analysis, the worst

- case HQ value could exceed an HQ valu e of 1 for two pollutants, nickel and arsenic, with a potential maximum HQ up to as high as 10 for nickel and 9 for arsenic. This indicates a potential acute concern relative to the baseline emissions of these two pollutants. In characterizing the potential for acute noncancer impacts of concern, it is important to remember the upward bias of these exposure estimates and to consider the results along with the uncertainties related to the emissions estimates and screening methodology. Our assessment also indi cate s d the potential for multipathway impacts of concern based on the intermediate screening assessment due to baseline emissions of***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 108 of 256 mercury and POM. Data were unavailable to conduct a fully refined assessment of multipathway risks from these two facilitie s. The risk assessment for this source category was based on facility

- specific stack

- test data and emissions estimates, giving us a generally high degree of confidence in the results. We applied a
two

- step analysis in the Benzene NESHAP to assess emissions from this source category. As noted above, we had allowable cancer risks of 100 in one a million , actual cancer risks of 80 in a million and high indices for non

- cancer effects. Considering all of the above information, we are proposing that the risks are unacceptable
. W e solicit comment on this finding. (Additional discussion on the manganese can be found in Section IV.B.1.) also conclude that the current chronic noncancer risks based on actual emissions are unacceptable, primarily due to manganese emissi ons from process fugitives. 2. Proposed controls to address unacceptable risks We conducted an assessment to estimate the risks from the two facilities in the source category based on a post

- control scenario reflecting the proposed requirements described above to address unregulated HAP (section IV.A) and the proposed controls described below . Details are provided in the Draft Risk Assessment report which is available in the docket for this action. a. Allowable stack emissions
.***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 109 of 25 6 In order to ensure that th e risks associated with this source category are acceptable, we evaluated the potential to reduce MACT

allowable stack emissions, which had driven the cancer MIR based on allowable emissions to 100 in a million, primarily due to allowable stack emissions o f arsenic , nickel and chromium , and contributed significantly to the chronic noncancer TOSHI (based on allowable emissions) of 200, primarily due to allowable stack emissions of
manganese . Our analysis determined that we could lower the existing particulat e matter emission limit s by approximately 50 percent for furnace stack emissions, by 80 percent for crushing and screening stack emissions and by 98 percent for the metal oxygen refining process, to develop limits that are achievable with existing control s . After the implementation of these tighter PM stack limits, the estimated cancer MIR for the source category based on allowable emissions would become 80 in one million and the TOSHI would be about 90
. F or the reasons described above , under the authority of CAA section 112(f)(2), we propose to set particulate matter emission limits for the stacks at levels indicative of current performance ( i.e. , based on a MACT floor UPL analysis) as discussed in section
IV.D .1 (technology review section). These new allo wable emissions limits levels will reduce potential risks due to allowable emissions from the stacks and prevent backsliding. Prevention of backsliding is important to assure that an increase in actual emissions does not***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 110 of 256 increase risks after we have comple ted our RTR review and undermine the continued validity of our findings. We propose that c ompliance for existing sources will be demonstrated by annual stack testing and installation and operation of bag leak detection systems for both new and existing sou rces. b. Process fugitive emissions sources
. Process fugitive sources are partially controlled by the existing MACT via a shop building opacity standard; however, that standard was only intended to address tapping process fugitives generated under ―normal ‖ tapping process operating conditions. Casting and crushing and screening process fugitives in the furnace building were not included. Under the authority of section 112(d)(2) of the Act, which allows the use of measures to enclose systems or processes to eliminate emissions and measures to collect, capture or treat such pollutants when released from a process, stack, storage, or fugitive emissions point, we evaluated several options to achieve improved emissions capture. We developed several control scena rios to

assess options to improve/add local ventilation and associated
control ( e.g. , improve tapping capture, install capture and control on casting operations) , but we concluded that these were all ineffective in significantly reducing emissions and risk s . As part of the technology review process, we identified a furnace building ventilation system at a non

- manganese producer of ferroalloys. W e evaluated an option based on this furnace building ventilation***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 111 of 256 system, which involves enclosing the furnace buil ding(s) and
evacuat ing the emissions to a control device(s)
. Based on our
assessment we conclude that this option w ould reduce process fugitive emissions by about 98 percent and reduce the maximum noncancer TOSHI to about 2. A TOSHI of 2 means that the mod eled long

- term concentration of manganese at th at location would be about 0.1 μg/m 3 ( i.e. , about 2 times higher than the RfC). These controls would also significantly reduce the emissions of arsenic, chromium and nickel and therefore significantly reduce t he cancer risks. T hese reductions would result in risks to acceptable risk levels. Therefore, under the authority of CAA section 112(f), we are proposing such an approach, whereby the furnace buildings must be enclosed and fugitive emissions would need to be collected under negative pressure at the ridge vents of the shop building would need to be collected under negative
pressure and ducted to a control device
. We are proposing that the PM emissions limit (as a surrogate for particulate metal HAP) at the control device would be the same as it is for the furnace stacks ( 24 mg /dscm ) . This would allow sources the option to duct some or all process fugitive emissions to an existing furnace control device if it has excess capacity. If the existing control devic e at the facility do es not have sufficient excess capacity to handle the captured emissions, the facility would have to install additional controls capable of complying with the proposed emission limit.***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 112 of 256 The source would also have to monitor building opacit y, prepare and operate according to a process fugitives ventilation plan and conduct annual performance testing of the building ventilation control device to demonstrate compliance with the proposed standards. Baghouses would be required to be equipped wit h BLDS. W e also propose that facilit ies would need to continue the practices to minimize outdoor fugitive dust emissions that are required by the 1999 MACT rule which includes implementing measures specified in the ir outdoor fugitive dust control plan s as approved by the Administrator. However, recognizing that there may be other control measures that could achieve equivalent emissions reductions that we have not yet identified, and to provide some flexibility for facilities to determine the best approac h to reduce their emissions, we are also proposing an equivalent alternative compliance approach. Under this alternative approach , w e propose that facilities would still need to continue the work practices to minimize outdoor fugitive dust emissions that a re required by the 1999 MACT rule which includes implementing measures specified in their outdoor fugitive dust control plans as approved by the Administrator. However, in lieu of building the full enclosure and capture and evacuation system described abov e to control process fugitive emissions, we are
pro po sing that f acilities can design and implement an equivalent alternative approach ( e.g. , local capture, controls, and work practices) to achieve equivalent emissions reductions of those***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 113 of 256 process fugitive e missions
. Compliance would be demonstrated by ensuring facilities apply the equivalent alternative approach to control process fugitive emissions , continue the work practices to minimize outdoor fugitive dust emissions, and also conduct fenceline monitorin g to demonstrate that the ambient concentration of manganese at their facility boundar y is no more than 0.1 μg/m 3 on a 60

- day rolling average , as described below. However , we acknowledge that there may be other control measures and alternative approaches that we have not identified that are effective in reducing process fugitive emis sions from the furnace building. Therefore, as an alternative to the requirement to enclose the furnace building(s) and evacuate the emissions to a control device(s), we are pr oposing a fenceline action level that would serve as a trigger for corrective action should such level be exceeded. This monitoring alternative is designed to allow for flexibility and prevent redundant requirements. Specifically, we propose to require tha t sources seeking to use this alternative prepare and submit for the Administrator‘s approval a written plan describing and explaining the equivalent alternative approach that they propose to apply to achieve equivalent emissions reductions and a proposed compliance monitoring network that must consist of at least two monitors located at or near the facility boundary, and in locations expected to have the highest concentrations of manganese, and the procedures for sampling, sample handling and custody, samp le analysis, quality assurance, and***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 114 of 256 recordkeeping procedures. The purpose of the ambient air monitoring network would be to ensure that manganese concentrations in air near the facility boundaries remain at or below 0.1 μg/m 3 based on 10

- sample rolling ave rages, with samples being collected every 6 days ( i.e. , 60

- day rolling averages) . The monitoring plan must include a minimum of two monitoring sites that are placed in locations that are most likely to capture measurements of the maximum concentrations at or near the facility boundaries. For example, at least one monitor must be placed in the predominant downwind direction from main emissions sources based on historical weather patterns in the area. This standard for manganese emissions would be a surrogate for all particulate HAP metals (including arsenic, nickel and chromium) since they are emitted by the same processes and controlled with the same devices and measures. This alternative regulatory requirement would provide flexibility to facilities in det ermining the within

- facility emission sources that should be captured and vented to a control device that

are most effective for reducing process fugitive emissions at their facilities. However, any facility considering this alternative approach would need to demonstrate that they will be able to achieve the necessary reductions with the proposed alternative approach and obtain approval from the Administrator . This is especially important for facilities with a history of elevated ambient manganese
concentra tions based on monitor ing by state regulatory agenc ies or***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 115 of 256 the EPA , or any facility that has been confirmed as the main contributor to elevated monitored manganese concentrations in a particular area. Nevertheless , we are seeking comments on this proposed a lternative requirement, including the controls and practices that can achieve the equivalent level of reductions, the averaging time for monitoring, and whether two monitors would be sufficient or if more monitors may be warranted. We propose that if the 10

- sample rolling averages exceed the specified concentration then corrective actions must be implemented
. Upon the first exceedance of a 10

- sample rolling average, the source would be required within 6 months to evaluate the capture and control of process fugitives from the furnace building , evaluate other potential sources of fugitive emissions, and then implement any changes indicated to reduce fugitives to levels that would result in air concentrations below 0.1 μg/m 3 based on 10

- sample rolling
averages . Upon a subsequent exceedance of the 10

- sample rolling average following the 6

- month evaluation and implementation period, the source would be required to comply with the requirement to enclose the furnace building(s) and evacuate the emissions to a
contr ol device(s). In this case, the source would be required to complete the enclosure within 1 year from the time the subsequent exceedance occurs. In order to avoid delays in complying with process fugitives standards, we propose to require that the written plan be submitted***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 116 of 256 within 45 days of the effective date of the final rule so that all necessary planning, equipment acquisition, and system development can take place before the 2

- year compliance date. In this way, if the source determines that the use of s uch system is unlikely to be an effective alternative to the building enclosure option, the source would be able to comply with the primary option by the compliance date of the final rule
. We propose to set the fenceline concentration action level at 0.1 μ g/m 3 to reflect the equi v a l ent comparable level of emissions control risk that we estimate will be achieved is estimated to remain after compliance with the requirement to enclose the furnace building(s) and evacuate the emissions to a control device(s). As described in section IV.D.2, the maximum modeled chronic noncancer inhalation TOSHI value is would be 2 after full enclosure and evacuation of emissions , based on because the post

- control modeling analysis. This means that the modeled concentration at the maximum impact location after these controls are in place would be 0.1 μ g/m 3 , which is 2 times higher than indicates the maximum ambient concentration of manganese would be twice the current value of the value of the RfC for manganese. Therefore, a value t wice this concentration , achieving and maintaining an air manganese level of 0.1 μg/m 3 , at the facility boundary is proposed as the equivalent alternative standard to minimize emissions of HAP metals. fenceline action level. We request comment on whether t he action level should***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 117 of 256 instead be based on the actual RfC of 0.05 μg/m 3 to ensure that variations in ambient concentrations of manganese over the course of the 10

- sample period will remain at acceptable levels. We note that the RfC is not designed to be a regulatory limit, and it is defined as ― An estimate (with uncertainty spanning perhaps an order of magnitude) of a continuous inhalation exposure to the human population (including sensitive subgroups) that is likely to be without an appreciable risk of de leterious effects during a lifetime. It can be derived from a NOAEL, LOAEL, or benchmark concentration, with uncertainty factors generally applied to reflect limitations of the data used.‖ 36 Therefore , w Nevertheless, w e request comment on other concentrati on values that might be appropriate to serve as the action concentration level for fenceline monitoring under this alternative. The proposed averaging period is consistent with the School Air Toxics Initiative ambient air monitoring program, but W w e also r equest comment on whether a different averaging period should be required. As part of this alternative, we are also proposing a provision that would allow for reduced monitoring if the facility demonstrates ambient manganese concentrations less than 50 per cent of the ambient manganese concentration limit for 3 consecutive years at each monitor. We propose that a revised monitoring plan may be submitted (for review and possible approval by the Administrator) to reduce the

36 I RIS Glossary. http://www.epa.gov/iris/help_gloss.htm***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 118 of 256 sampling and analysis frequency if a ll of the 10

- sample rolling average concentrations at each monitor are less than 50 percent of the limit of 0.1 μg/m 3 over a 3

- year perio d. All of t hese proposed controls are described further under the technology review (in s ection IV.D.2.) of this preamb le. c. Results of the post

- control risk assessment
. The results of the post

- control chronic inhalation cancer risk assessment indicate that , based on actual emissions, the maximum individual lifetime cancer risk posed by these two facilities, after the imp lementation of the proposed controls, could be up to 5 in one million, reduced from 80 in one million ( i.e. , pre - controls), with an estimated reduction in cancer incidence to 0.0004 excess cancer cases per year, reduced from 0.002 excess cancer cases per y ear. In addition, the number of people estimated to have a cancer risk greater than or equal to one in one million would be reduced from 26,000 to 1,300. The results of the post

- control assessment also indicate that , based on actual emissions, the maximum chronic noncancer inhalation TOSHI value would be reduced to 2, from the baseline estimate of 90. The number of people estimated to have a TOSHI greater than 1 would be reduced from 28,000 to less than 10. We also estimate that after the implementation of controls, the maximum worst

- case acute refined HQ value would be reduced from a***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 119 of 256 potential high of 10 to 0. 3 (based on the REL value for nickel compounds) eliminating any potential for acute impacts of concern. Considering post

- control emissions of multipa thway HAP, mercury emissions would be reduced approximately 88 percent, while POM emissions would be reduced approximately 66 percent from the baseline emission rates. Based on our intermediate screening approach for multipathway risks, emissions of mercur y ―screen out,‖ or are reduced below the screening threshold for both facilities, indicating no potential for multipathway impacts of concern due to mercury. However, emissions of POM (as benzo(a)pyrene TEQ) remain above the intermediate screening threshol ds for both facilities (one by a factor of 20 and one by a factor of 2), indicating that we cannot rule out the potential for multipathway impacts of concern due to emissions of POM from these facilities. As mentioned above, the highest lead concentration after controls, 0.02 μg/m 3 , is well below the NAAQS, indicating a low potential for multipathway impacts of concern due to lead. 3. Ample margin of safety analysis and proposed controls Under the ample margin of safety analysis, we evaluate the cost and fe asibility of available control technologies and other measures (including the controls, measures and costs reviewed under the technology review) that could be applied in this source category to further reduce the risks due to emissions of HAP identified in our risk assessment.***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 120 of 256 We estimate that the actions proposed under CAA section 112(f)(2), as described above to address unacceptable risks , will reduce the MIR associated with arsenic, nickel and chromium from 80 in one million (50 in a million using the lo wer end of the nickel URE range) to 5 in one million for actual emissions. The cancer incidence will be reduced from 0.002 to 0.0004, and the number of people estimated to have cancer risks greater than one in one million will be reduced, from 26,000 peopl e to 1,300 people. T he chronic noncancer inhalation TOSHI will be reduced from 90 to 2, and the number of people exposed to a TOSHI level greater than 1 will be reduced from 28,000 people to less than 10 people. In addition, the maximum acute HQ value will be reduced from potentially up to 10 to less than 1, and the potential multipathway impacts will be reduced. Based on all of the above information, we conclude that the risks after implementation of the proposed controls are acceptable. Based on our resea rch and analysis, we did not identify any cost

effective controls beyond those proposed above. As a result, we conclude that the implementation of th e is proposed requirements described above rule will provide public health protection with an ample margin o f safety. Nevertheless, we are soliciting comments and information regarding additional dust and process fugitive control measures and , work practices that may be available and their feasibility to further reduc e process and dust fugitive emissions of met al HAP, or***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 121 of 256 additional monitoring that may be warranted to ensure adequate control of process fugitive emissions. We also request comments on the costs and effectiveness of achieving the proposed process fugitive control measures and any additional options that may be suggested
. D. What are the results and proposed decisions based on our technology review? Based on our technology review, we determined that there have been advances in emissions control measures since the Ferroalloys Production NESHAP was ori ginally promulgated in 1999. Since promulgation, facilities have steadily improved the performance of their control devices through upgrades or replacements. They have also developed improved capture techniques for some process fugitives ( e.g. , casting and tapping emissions). Additional details regarding these analyses can be found in the following technical document for this action which is available in the docket: Draft Technology Review for the Ferroalloys Production Source Category
. 1. Metal HAP emissio ns from stacks We propose to continue to use particulate matter as a surrogate for metal HAP other than mercury. For a discussion regarding the appropriateness of particulate matter as a surrogate for non

- mercury metal HAP, please see the metal HAP surroga cy memo ―Surrogate for Metal HAP Emissions for the Ferroalloys Source Category‖ in the docket for this proposed rule. Based on the results from the ICR test***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 122 of 256 program, we determined that all of the sources of stack emissions are emitting at significantly low er levels than their maximum permitted levels . For this reason, under the authority of CAA section 112(d)(6), we are proposing revised emission limits for new and existing sources. We are also proposing that any uncontrolled furnace vent stacks would be su bject to the same concentration limits. We calculated the proposed emission limits based on a MACT floor
UPL analysis , resulting in a proposed existing source furnace stack emissions limit of 24 mg /dscm and proposed new source furnace stack emissions limi t of 9 .3 mg/dscm. We also calculated a proposed stack emission limit of 13 mg/dscm for crushing and screening equipment that would apply to both new and existing sources. The metal oxygen refining operation is a unique process, and so we only have a singl e ICR test data point. Therefore, we calculated a proposed emissions limit for this source using the 99 percent UPL
f rom the test data, resulting in a proposed limit of 1.5 3.9 mg/dscm that would apply to new and existing metal oxygen refining operation

sou rces. We request comment on whether we should instead set the MOR limit to be the same as the proposed furnace stack limit for existing sources. This change would allow a facility to use any excess capacity in the MOR control device to treat furnace emissi ons, if needed. Such a lim it is still more stringent than the current limit included in subpart XXX for the MOR (approximately 69 mg/dscm).***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 123 of 256 Based on our analyses, we expect that no additional controls would be required for the facilities to comply with the se proposed limits. To demonstrate compliance, W w e propose that s ources would be required to conduct periodic performance testing, and develop and operate according to a baghouse operating plan or continuously monitor scrubber operating parameters. Furnace baghouses would be required to be equipped with bag leak detection systems (BLDS). 2. Metal HAP emissions from process fugitives As described above, we evaluated several options to improve and increase the capture and control of process fugitive sources. The two main options involve either local ventilation or building ventilation. Local ventilation ( e.g. , hoods or ductwork located in close proximity to an emissions source such as tapping or casting) is common in this industry, but performance varies due t o design of the capture system, maintenance practices and control device capacity. Industry representatives have expressed concern that extensive retrofitting of local ventilation is complicated at existing facilities because of the need for material movem ent using large overhead cranes and ladles. We identified a furnace building ventilation system at a ferrosilicon producer, using a similar production process. This ―system‖ is basically an enclosure of the furnace building with evacuation of emission to a control device. We evaluated an option to enclose the furnace building(s) and evacuate the emissions to a control device(s) similar to the system***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 124 of 256 used at the ferrosilicon producing facility described above . Based on that evaluation, we believe that it is feasible to install enclosures and have the fugitive emissions at the ridge vents of the shop building collected under negative pressure and ducted to a control device , and have a PM emissions limit at the control device the same as it is for the furnace s tacks ( i .e. , 24 mg /dscm). This would allow sources the option to duct some or all process fugitive emissions to an existing furnace control device if it has excess capacity. If it does not have excess capacity, the facility would have to install additional controls. Under this option, t he source would also have to monitor building opacity; prepare and operate according to a process fugitives emissions ventilation plan, which would include requirements to demonstrate that the building is being operated at a negative pressure of at least 0.007 inches of water; and conduct periodic performance testing of the building ventilation control device to demonstrate compliance with the proposed standards. Baghouses would be required to be equipped with BLDS. We estimat e the total capital costs of installing the required ductwork, fans, and baghouses under this option to be $9. 4 5 million and the total annualized costs to be $2.3 million for the two plants. We estimate that particulate metal HAP emission s would be reduc ed by 81 tons, resulting in a cost per ton of HAP removed at $28,000 per ton ($14 per pound). We also estimate that this option would achieve PM emission reduction s of 630 tons, resulting in a cost per ton of PM***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 125 of 256 removed at $3,600 per ton and achieve PM 2.5 em ission reductions of 257 315 tons, resulting in a cost per ton of PM 2.5 removed of $ 7 8 , 8 2 00 per ton. In light of the technical feasibility and cost effectiveness of this approach, we are proposing this option under the authority of section 112(d)(6). These proposed requirements are exactly the same as those proposed under Section 112(f) which are described in s ection IV.C.2 of this preamble. As described above in section IV.C.2.b, we a re also proposing an equivalent alternative compliance approach. Facilitie s can design and implement an equivalent alternative approach ( e.g. , local capture, controls, and work practices) to achieve equivalent emissions reductions of those process fugitive emissions. Compliance would be demonstrated by ensuring facilities apply the equivalent alternative approach to control process fugitive emissions, continue the work practices to minimize outdoor fugitive dust emissions, and also conduct fenceline monitoring to demonstrate that the ambient concentration of manganese at their fa cility boundar y is no more than 0.1 μg/m 3 on a 60

- day rolling average
. We acknowledge that there may be other control measures and alternative approaches that we have not identified that are effective in reducing process fugitive emissions from the furnace building. Therefore, as an alternative to the requirement to enclose the furnace building(s) and evacuate the emissions to a control device(s), we are proposing a fenceline action level that would serve as a trigger for corrective action should such***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 126 of 256 level be exceeded. This monitoring alternative i s designed to allow for flexibility and prevent redundant requirements. Specifically, we propose to require that sources seeking to use this alternative prepare and submit for the Administrator‘s approval a writte n plan describing and explaining a proposed compliance monitoring network to consist of at least two monitors and procedures for sampling, sample handling and custody, sample analysis, quality
assurance, and recordkeeping procedures. The purpose of the amb ient air monitoring network would be to ensure that manganese concentrations in air near the facility boundaries remain at or below 0.1 μg/m 3 based on 10

- sample rolling averages, with samples being collected every 6 days. The monitoring plan must include a minimum of two monitoring sites that are placed in locations that are most likely to capture measurements of the maximum concentrations at or near the facility boundaries. For example, at least one monitor must be placed in the predominant downwind direct ion from main emissions sources based on historical weather patterns in the area. This alternative regulatory requirement would provide flexibility to facilities in determining the within

- facility sources that should be vented to a control device that are most effective for reducing process fugitive emissions at their facilities. Nevertheless, we are seeking comments on this proposed alternative requirement, including whether two monitors would be sufficient or if more monitors may be warranted.***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 127 of 256 We propose that if the 10

- sample rolling averages exceed the specified concentration then corrective actions must be implemented
. Upon the first exceedance of a 10

- sample rolling average, the source would be required within 6 months to evaluate the capture and contro l of process fugitives from the furnace building , and evaluate other potential sources of fugitive emissions, and then implement any changes indicated to reduce fugitive emission s to levels that would result in air levels below 0.1 μg/ m 3 based on 10

- sampl e rolling
averages . Upon a next exceedance of the 10

- sample rolling average following the 6

- month implementation period, the source would be required to comply with the requirement to enclose the furnace building(s) and evacuate the emissions to a control device(s). In this case, the source would be required to complete the enclosure within 1 year from the time the next exceedance occurs. In order to avoid delays in complying with process fugitives standards, we propose to require that the written plan be s ubmitted within 45 days of the effective date of the final rule so that all necessary planning, equipment acquisition and system development can take place before the 2

- year compliance date. In this way, if the source determines that the use of such system is unlikely to be an effective alternative to the building enclosure option, the source would be able to comply with the primary option by the compliance date of the proposed standards.***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 128 of 256 We propose to base the fenceline concentration action level to reflec t the comparable level of risk that is estimated to remain after compliance with the requirement to enclose the furnace building(s) and evacuate the emissions to a control device(s). As described in section IV.D.2, the maximum chronic noncancer inhalation TOSHI value would be 2, because the post

- control modeling indicates the maximum ambient concentration of manganese would be twice the current value of the RfC for manganese. Therefore, a value twice this concentration, 0.1 μg/m 3 , is proposed as the fenceli ne action level. We request comment on whether the action level should instead be based on the actual RfC of 0.05 μg/m 3 to ensure that variations in manganese emissions over a 10

- sample period will remain at acceptable levels. We note that the RfC is not d esigned to be a regulatory limit, and it is defined as ― An estimate (with uncertainty spanning perhaps an order of magnitude) of a continuous inhalation exposure to the human population (including sensitive subgroups) that is likely to be without an apprec iable risk of deleterious effects during a lifetime. It can be derived from a NOAEL, LOAEL, or benchmark concentration, with uncertainty factors generally applied to reflect limitations of the data used.‖ 37 Therefore , we request comment on other concentrat ion values that might be appropriate to monitor under this fenceline alternative. The proposed averaging period is consistent with the School Air Toxics Initiative ambient air

37 IRIS Glossary. http://www.epa.gov/iris/help_gloss.htm
.***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 129 of 256 monitoring program, but we request comment on whether a different averaging peri od should be required. As part of this alternative, we are also proposing a provision that would allow for reduced monitoring if the facility demonstrates ambient manganese concentrations less than 50 percent of the ambient manganese concentration limit fo r 3 consecutive years at each monitor. We propose that a revised monitoring plan may be submitted (for review and possible approval by the Administrator) to reduce the sampling and analysis frequency if all of the 10

- sample rolling average concentrations a t each monitor are less than 50 percent of the limit of 0.1 μg/m 3 over a 3

- year period. 3. Hydrochloric acid, hydrofluoric acid and formaldehyde , m ercury and
PAH emissions from furnace stacks
T he controls for HCl, f ormaldehyde , mercury and PAHs were descr ibed in Section IV.A., and no additional controls have been identified. No facilities in the source category use add

- on control devices or work practices to limit emissions of these pollutants beyond what is normally achieved as co

- control of the emissions with particulate matter control device. There are available add

- on control devices, such as lime injection, but their use is not indicated given the costs of installing and operating such controls and a concern that use of this control technology could pre vent the current practice of reusing o r selling baghouse dust and the resulting waste reduction benefits
. See the Draft MACT Floor Analysis for the***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 130 of 256 Ferroalloys Production Source Category in the docket for more discussion of this topic. For this reason, we are not proposing any additional requirements for HCl , FH, or formaldehyde under CAA section 112(d)(6). 4. Mercury emissions from furnace stacks As described in s ection IV.A of today‘s preamble, we are proposing MACT limits for mercury based a beyond the floor analysis. In this section we provide further discussion of the review of the relevant technologies. No facilities in the source category use add

- on control devices or use work practices to limit emissions of mercury emissions beyond what is normally achieved as co

- control of the emissions with the particulate matter control device. We found that the bulk of mercury emissions are emitted from the furnace control devices as measured during the ICR test program. Because of the magnitude of mercury emiss ions (estimated to be 540 pounds per year (lb/yr) at one plant and 140 lb/yr at the other plant), we evaluated potential add

- on control in the form of activated carbon injection. The use of activated carbon injection is being considered in other recent NE SHAP such as the Utility MACT NESHAP and the Portland Cement NESHAP, and mercury reductions of up to 90 percent should be achievable at ferroalloys production facilities. Based on our experience with mercury controls for other combustion sources such as***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 131 of 256 bo ilers, w e conclude that activated carbon injection is a viable control technology in the Ferroalloys Production source category, but we request comment on other possible controls that could be effective and perhaps less costly. We recognize the potential c oncern that use of these controls upstream of the particulate matter control device may pose issues with fabric filter dust contamination or sludge contamination and may result in some waste products being classified as Resource Conservation and Recovery A ct (RCRA) waste versus the more easily and less costly to dispose of industrial waste. In addition, some companies re

- use or sell their baghouse dust (primarily for use in cement kilns). There is concern that even if the material meets quality standards, t hat re

- introduction of the dust into a furnace or kiln w c ould cause the mercury to become unbound from the carbon and be emitted into the atmosphere. We reviewed facility specific control options that included putting the mercury controls downstream of th e existing furnace baghouse to avoid the potential issues associated with upstream controls. Under this scenario, t he activated carbon injection system would be followed by a ―polishing‖ baghouse to capture the activated carbon for disposal. In the case of the existing furnace scrubber, we assumed the source could put the activated carbon injection system upstream of the scrubber, the carbon would be captured by the scrubber and the resulting sludge treated according to the existing treatment process at the plant. Based on discussion with vendors and***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 132 of 256 other control technology experts, we do not believe that the resulting carbon waste in either scenario would trigger the RCRA compliance concerns raised by the companies . This is because once the mercury absorbs to the activated carbon, it will stay there until heated above 400 degrees Fahrenheit. The captured activated carbon should pass the Toxicity Characteristic Leaching Procedure test, which is an EPA test method used to characterize waste as either hazardou s or non - hazardous for the purpose of disposal. Therefore, the captured activated carbon would unlikely be considered hazardous waste and can be disposed of in a landfill.
It might would be technically feasible to install controls at the remaining source to achieve even further reductions. However these reductions would be based on a much lower level of emissions and require installing the activated carbon injection systems upstream of three positive pressure baghouses, which would mean that they would not be able to reuse or sell any of their baghouse dust. We do not consider this to be a viable option at this time. The option that we are proposing under section 112(d)(3), which is described in section IV.A. of this preamble, requires an estimated $1.7 mil lion in capital costs, $1.4 million in annualized costs, with cost effectiveness of $3,300 per pound of mercury reduction. We conclude believe this option reflects feasible and cost

- effective controls. For this reason, under the authority of CAA section 112 (d)(6), we are also proposing to establish emission limits for***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 133 of 256 mercury emissions at the beyond the floor level of 16 μg/dscm at 2 percent CO 2 , which is the exact same standard that we are proposing under section 112(d)(2) and 112(d)(3) of the CAA, as descr ibed in

s ection IV.A. of today‘s preamble. Both sources would be subject to periodic performance testing and periodic sampling of the manganese ore for variations in mercury content. Should the resulting weighted average mercury content increase significa ntly, the source would be required to retest in order to demonstrate continuing compliance. For this proposal, we propose that the determination of a significant increase in mercury content would be that the rolling weighted average mercury concentration in the manganese ore increase s by 10 percent or more compared to the baseline weighted average mercury concentration. If that limit is exceeded, the source would be required to readjust the carbon injection rate as specified in the source‘s monitoring plan or retest within 30 days if there is not a dedicated mercury control device. If a new ore is added, sampling would be required as well. We are interested in any data that would show the variability in mercury concentration between different ore samples f rom the same location and the variability of the types of ores used in manganese production. If ore type and mercury content are demonstrated to be stable, we might consider whether to reduce the frequency of sampling/calculations to quarterly or less.***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 134 of 256 Fi nally, any source installing activated carbon injection would be required to continuously monitor the carbon injection rate into the airstream being controlled. W e request comment on the level of variability in the carbon injection rate that should be allo wed, and what percent de crease in the rate should be considered significant. 5. Polycyclic aromatic hydrocarbons from the furnace stack Like mercury, no existing facilities in the source category control PAH or use work practices to limit emissions of PAH emissions beyond what is normally achieved by modest co

- control of the emissions with the particulate matter control device. Under today‘s proposal, t hese pollutants would be controlled with the same activated carbon injection technology as mercury. Becau se of this, emission reductions could be achieved via co

- control at no additional
costs. As described in section IV.A. of this preamble, t he MACT floor for POM is based on an UPL that we believe both facilities can meet with existing controls . Using the d ata from the higher emitting facility, we calculated a beyond the floor emissions level based on a 90 percent reduction of the 99 percent UPL for PAH from this plant. The resulting limit is 89 μg/dscm. With a limit of 89 μg/dscm we estimate that the lower emitting facility would be able to meet this limit with no additional controls. We estimate that the higher emitting facility will be able to achieve this limit using activated carbon injection, which is the same controls we expect they would use***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 135 of 256 to meet t he mercury limit. Therefore, there would be no additional control costs to meet the limit for PAHs. As described in s ection IV.A. of this preamble , we are proposing a this limit of 89 μg/dscm for PAHs under section 112(d)(3) of the CAA based on the beyond the floor analysis
. No additional cost

- effective controls have been identified for PAHs beyond those described in Section IV.A. of this preamble. We are also proposing the exact same limit under s ection 112(d)(6) of the CAA since it reflects feasible and c ost

- effective control technologies.
4 6 . Outdoor fugitive dust emissions The existing rule has a requirement for an outdoor fugitive dust control plan. We are unable to quantify HAP emissions from outdoor fugitive dust sources and did not identify any addit ional procedures or controls that could be expected to have a significant impact on these emissions. Therefore, we are not proposing to change the existing requirements.
E . What other actions are we proposing? 1. Startup, Shutdown, Malfunction The United States Court of Appeals for the District of Columbia Circuit vacated portions of two provisions in the EPA‘s CAA section 112 regulations governing the emissions of HAP during periods of 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***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 136 of 256 are part of a regulation, commonly referred to as the ―General Provisions Rule,‖ that the EPA promulgated under CAA s ection 112. When incorporated into CAA section 112(d) regulations for specific source categories, these two provisions exempt sources from the requirement to comply with the otherwise applicable CAA section 112(d) emissions standard during periods of SSM. We are proposing the elimination of the SSM exemption in this rule. Consistent with Sierra Club v. EPA , the EPA is proposing standards in this rule that apply at all times. We are also proposing several revisions to Table 1 to subpart XXX of p art 63 (the G eneral Provisions Applicability table). For example, we are proposing to eliminate the incorporation of the General Provisions‘ requirement that the source develop an SSM plan. We also are proposing to eliminate or revise certain recordkeeping and reportin g that related to the SSM exemption. The EPA has attempted to ensure that we have not included in the proposed regulatory language any provisions that are inappropriate, unnecessary, or redundant in the absence of the SSM exemption. We are specifically see king comment on whether there are any such provisions that we have inadvertently incorporated or overlooked. In proposing the standards in this rule, the EPA has taken into account startup and shutdown periods and, for the reasons explained below, has not proposed different standards for those periods.***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 137 of 256 Information on periods of startup and shutdown received from the industry in the ICR indicate that emissions during these periods do not increase. Control devices such as baghouses for metal HAP particulate control and activated carbon controls for mercury are started up before the process units, and are operational during the shutdown phase of a process. Therefore, no increase in emissions is expected during these periods. Building ventilation systems for
pr ocess fugitive emissions will be in place at all times. Therefore, separate standards for periods of startup and shutdown are not being proposed. Periods of startup, normal operations, and shutdown are all predictable and routine aspects of a source‘s ope rations. 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 6 3.2). 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 1 12 standards
. Under CAA section 112, emissions standards for new sources must be no less stringent than the level ―achieved‖ by the best controlled similar source , and emission standards for existing sources generally must be no less stringent than the average emissions limitation ―achieved‖ by the best performing 12 percent (or 5 sources in cases where there are fewer than 30 sources in the***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 138 of 256 source category) of sources in the category
. There is nothing in CAA section 112 that directs the Agency to consider malfunctions in determining the level ―achieved‖ by the best performing or best
controll ed sources when setting emissions standards. Moreover, while the EPA accounts for variability in setting emissions standards consistent with the CAA section 112 case law, nothing in that case law requires the Agency to consider malfunctions as part of that analysis. Section 112 of the CAA uses the concept of ―best controlled‖ and ―best performing‖ unit in defining the level of stringency that CAA 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 a cross 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 ―reason ably‖ foreseeable. See, e.g., Sierra Club v. EPA , 167 F. 3d 658, 662 (D.C. Cir. 1999) ( The 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 th e basis of imperfect scientific information, rather than to "invest the resources to***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 139 of 256 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 e ventualities, must be a matter for the administrative exercise of case

- by

- case enforcement discretion, 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 non

malfunctioning source. The EPA‘s approach to malfunctions is consistent wi th CAA section 112 and is a reasonable interpretation of the statute. 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,***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 140 of 256 ―sudden, infrequent, not reasonably preventable‖ and was not instead ―caused in part by poor maintenance or careless operation‖ 40 CFR 63.2 (definition of malfunctio n). 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 emissions standard. ( See, e.g. , State Implementation Plans: Policy Regar ding Excessive Emissions During Malfunctions, Startup, and Shutdown (Sept. 20, 1999); Policy on Excess Emissions During Startup, Shutdown, Maintenance, and Malfunctions (Feb. 15, 1983)). The EPA is therefore proposing to add to the final rule an affirmativ e defense to civil penalties for exceedances of emissions limits that are caused by malfunctions. See 40 CFR 63. 16 2 2 (defining ―affirmative defense‖ to mean, in the context of an enforcement proceeding, a response or defense put forward by a defendant, reg arding 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 are proposing other regulatory provisions to specify the elements that are necessar y 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 40 CFR 63. 16 2 7 (40 CFR 22.24). The criteria ensure that the affirmative defense is available only where the e vent that causes an exceedance of the emissions limit meets the narrow definition of malfunction in 40 CFR 63.2 (sudden,***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 141 of 25 6 infrequent, not reasonable preventable and not caused by poor maintenance and or careless operation). For example, to successfully

asse rt the 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 40 CFR 63. 16 2 3(g) and to prevent future malfunctions. For example, the source must pr ove by a preponderance of the evidence that ―[r] epairs were made as expeditiously as possible when the applicable emissions limitations were being exceeded ...‖ and that ―[a] ll possible steps were taken to minimize the impact of the excess emissions on ambien t 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 th e affirmative defense, appropriate penalties may be assessed in accordance with CAA s ection 113 (see also 40 CFR 22. 2 7 7). The EPA included an affirmative defense in the proposed rule in an attempt to balance a tension, inherent in many types of air regula tion, to ensure adequate compliance while simultaneously recognizing that despite the most diligent of efforts, emission***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 142 of 256 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 requ ired 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 caselaw 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. Ruckelshau s , 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 preserv e 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 th ese cases today, they support the EPA‘s view that a system that incorporates some level of flexibility is***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 143 of 256 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 hol der.‖ Marathon Oil Co. v. EPA , 564 F.2d 1253, 1272

- 73 (9 th 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 flexibi lity 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. Specifically, we are proposing the following changes to the rule. Added general duty requirements in 40 CFR 63. 16 2 3 ( g ) to replace General Provision requirements that reference vacated SSM provisions. Added replacement language that eliminates the reference to SSM exemptions applicable to performance tests in 4 0 CFR 63. 16 2 5 ( a ) (5)
. Added paragraphs in 40 CFR 63. 16 2 9 ( d ) requiring the reporting of malfunctions as part of the affirmative defense provisions.***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 144 of 256 Added paragraphs in 40 CFR 63. 16 2 9 ( b ) requiring the keeping of certain records during malfunctions as part of the affirmative defense provisions. Developed Table 1 to subpart XX X of part 63 to reflect changes in the applicability of the General Provisions to this subpart resulting from a court vacatur of certain SSM requirements in the General Provisions. 2
. Elec tronic reporting The EPA and other authorities such as state, local and tribal agencies 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 determinatio ns, emission factor development, and annual emission rate determinations. We believe that improvements in the process of submitting, reviewing and storing test data would result in increases in efficiency and cost savings to the regulated community; state, local and tribal agencies; the public and ourselves. These improvements are possible because stack testing firms are increasingly collecting 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. Through this proposal , the EPA is pr oposing a step to increase the ease and efficiency of data submittal and improve data accessibility
. Specifically, the EPA is prop osing that o wners and***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 145 of 256 operators of Ferroalloys Production facilities submit electronic copies of required performance test reports to the EPA‘s WebFIRE database. The WebFIRE database wa s constructed to store performance test data for use in developing emis sion factors. A description of the WebFIRE database is available at h ttp://cfpub.epa.gov/oarweb/index.cfm?action=fire.main
. As proposed above, d ata entry would be through an electronic emissions test report structure called the Electronic Reporting Tool ( ERT)
. The ERT would be able to transmit the electronic report through the EPA‘s Central Data Exchange 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.e pa.gov/ttn/chief/ert/index.html
. The proposal to submit performance test data electronically to the EPA would apply only to those performance tests conducted using test methods that will be supported by the ERT. The ERT contains a specific electronic data entry form for most of the commonly used the 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
. W e believe that industry would benefit from this proposed app roach to electronic data submittal. Having these data, the EPA would be able to develop improved emission factors, make fewer information requests, and promulgate better regulation s .***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 146 of 256 One major advantage of the proposed submittal of performance test data t hrough the 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 proposed 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 th e 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 required residual risk assessments or technology reviews. This would result in a reduced burden on both affected facilities (in terms of reduced manpower to respond to data collectio n requests) and the EPA (in terms of preparing and distributing data collection requests and assessing the results).
State , local , and tribal agencies could also benefit from more streamlined and accurate review of electronic data submitted to them. The ER T would allow for an electronic review process rather than a manual data assessment making review and evaluation of the source provided data and calculations easier and more efficient . Finally, another benefit of the proposed data submittal to WebFIRE elec tronically is that these data would greatly improve the overall quality of existing and new emission s factors by supplementing the pool of emissions test data for establishing emission s factor s and by***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 147 of 256 ensuring that the factors are more representative of cu rrent 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 incorporati on of data f rom most performance te sts , the EPA would 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, and other air pollution control activities, having an electronic database populated with performance test data would save industry,
state , local , tribal agencies , and the EPA significant time , money , and effort while also improv ing the quality of emission inventories and , as a result, a ir quality regulations
. 3. Emissions Averaging We are proposing to add an emissions averaging option for electric arc furnace stack emissions ( PM , mercury, PAH , HCl , HF, or formaldehyde )
. We are also proposing to allow averaging between existing process fu gitive control devices for PM stack emissions and between existing crushing and screening equipment for PM stack emissions
. If you have more than one existing emission source ( e.g. , electric arc furnace ) located at one or more contiguous properties, which are under common control of the same person (or persons under common control), you may demonstrate compliance by emission averaging among the existing emission sources , if your averaged emissions for***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 148 of 256 such emission sources are equal to or less than the appl icable emission limit. We are also proposing to allow averaging between existing process fugitive control devices for PM stack emissions as a second

a veraging group . However, we believe it may be appropriate to combine these process fugitive stack emission s into the furnace stack averaging group for PM emissions for two reasons. First, both types of emissions are likely to be controlled with similar, if not common control devices, e.g. , large fabric filters. Second, we are proposing to apply an identical PM emission limit for both of these emission sources, which would simplify averaging of PM emissions . We request comment on this option. We are also proposing to allow aver a ging between existing crushing and screening equipment for PM stack emissions . We bel ieve this is a distinct averaging group compared to the furnace and process fugitives groups. The airflow and associated control devices are typically much smaller and they are subject to a more stringent emission limit than the other PM sources
. However, we request comment on the potential for more broadly defined averaging options for this
group. As part of the EPA‘s general policy of encouraging the use of flexible compliance approaches where they can be properly monitored and enforced, we are including emissions averaging for existing

sources in this proposed rule. Emissions averaging can provide***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 149 of 256 sources the flexibility to comply in the least costly manner while still maintaining regulation that is workable and enforceable. Emissions averaging would not be applicable to new affected sources
. Emissions averaging would allow owners and operators of an existing affected source to demonstrate that the source complies with the proposed emission limits by averaging the emissions from an individual affected emis sion unit that is emitting above the proposed emission limits with other affected emission unit at the same facility that are emitting below the proposed emission limits and that are within the same averaging group , as described below
. This proposed rule i ncludes an emissions averaging compliance alternative because emissions averaging represents an equivalent, more flexible, and less costly alternative to controlling certain emission points to MACT levels. We have concluded that a limited form of averaging could be implemented that would not lessen the stringency of the MACT limits and would provide flexibility in compliance, cost and energy savings to owners and operators of existing sources
. We also recognize that we must ensure that any emissions averagi ng option can be implemented and enforced, will be clear to sources, and most importantly, will be no less stringent than unit by unit implementation of the MACT limits. The EPA is proposing has concluded that it is permissible to establish within a NESHAP a unified compliance regimen that permits averaging within an existing affected source across individual***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 150 of 256 a ffected units subject to the standard under certain conditions. Averaging across affected units is permitted only if it can be demonstrated that the total quantity of any regulated pollutant that
may be emitted by that portion of a contiguous major source that is subject to the NESHAP will not be greater under the averaging mechanism than it could be if each individual affected unit complied separately with the applicable s tandard. Under this test, the practical outcome of averaging is equivalent to compliance with the MACT limits by each discrete unit, and the statutory requirement that the MACT standard reflect the maximum achievable emissions reducti ons is, therefore, fully effectuated. In past rulemakings, the EPA has generally imposed certain limits on the scope and nature of emissions averaging programs. These limits include: (1) n o averaging between different types of pollutants; (2) no averaging between sources that are not part of the

same affected source; (3) no averaging between individual sources within a single major source if the individual sources are not subject to the same NESHAP; and (4) no averaging between existing sources and new sour ces. This proposed rule is consistent with these limitations would fully satisfy each of these criteria . First, emissions averaging would only be permitted between individual sources at a single existing affected source, and would only be permitted between individual sources subject to the proposed Ferroalloys Production NESHAP. Further, emissions averaging would not***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 151 of 256 be permitted between two or more different affected sources. Finally, new affected sources could not use emissions averaging. Accordingly,

we h ave concluded that the averaging of emissions across affected units is consistent with the CAA. In addition, this proposed rule would require each facility that intends to utilize emission averaging to submit an emission averaging plan, which provides add itional assurance that the necessary criteria will be met . In this emission averaging plan, the facility must include the identification of: (1) a ll units in the averaging group; (2) the control technology installed; (3) the process parameter s that will be monitored; (4) the specific control technology or pollution prevention measure (s) to be used; (5) the test plan for the measurement of the HAP being averaged; and (6) the operating parameters to be monitored for each control device. Upon receipt, the
regu latory authority would not be able to approve an emission averaging plan containing averaging between emissions of different types of pollutants or between different affected sources ( e.g. , between furnaces and crushing and screening equipment)
. This propo sed rule would also exclude new affected sources from the emissions averaging provision. The EPA believes emissions averaging is not appropriate for new affected sources because it is most cost effective to integrate state

- of

- the

- art controls into equipmen t design and to install the technology during construction of

new sources. One reason we allow emissions averaging is to give***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 152 of 256 existing sources flexibility to achieve compliance at diverse points with varying degrees of add

- on control already in place in th e most
cost

- effective and technically reasonable fashion. This flexibility is not needed for new affected sources because they can be designed and constructed with compliance in mind. In addition, w W e seek comment on use of a discount factor when emissions averaging is used and on the appropriate value of a discount factor, if used. Such discount factors ( e.g. , 10 percent) have been used in previous NESHAP, particularly where there was variation in the types of units within a common source category to

ensur e that the environmental benefit was being achieved. In this situation, however, the affected sources are more homogeneous, making emissions averaging a more straight forward analysis. Further, with the monitoring and compliance provisions that are being p roposed, there is additional assurance that the environmental benefit will be realized. The emissions averaging provisions in this proposed rule are based in part on the emissions averaging provisions in the Hazardous Organic NESHAP (HON). The legal basis and rationale for the HON emissions averaging provisions were provided in the preamble to the final HON. 38 Consistent with the position we have explained in the HON and subsequent rulemakings that addressed averaging, we are not proposing emission averaging provisions for new sources.
4 3
. Other Changes

38 Hazardous Organic NESHAP (59 FR 19425; April 22, 1994).***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 153 of 256 The following lists additional minor changes to the NESHAP we are proposing. The main focus of these changes is to ensure that the rule provides adequate monitoring, reporting, recordkeeping and testing provis ions to ensure that the affected sources are able to demonstrate continuous compliance with the proposed standards. These changes reflect changes we have made to many other existing NESHAP to improve the quality of these compliance requirements. This list also includes proposed rule changes that address editorial corrections and plain language revisions:

Re duce frequency of emission testing for the primary furnace control devices for PM and propose periodic testing for PM and other regulated pollutants. Thi s change is possible because of requirement to conduct continuous monitoring . Also add a periodic testing requirement for the building ventilation system control devices and crushing and screening equipment control devices. Add requirement for new and exis ting baghouses that control furnace or building ventilation systems to be equipped with BLDS to demonstrate continuous compliance. Retain provisions for baghouses to have a baghouse SOP manual. Add requirements to implement and enforce more detailed requir ements for continuous parameter monitoring systems to ensure continuous compliance. Reduce the shop building opacity limit to 10 percent opacity to reflect current industry performance. Eliminate 6

- minute excursion level because it does not provide any sig nificant flexibility (sources that tend to exceed the general opacity limit in any 6

- minute period tend to do so for several minutes so that the excursions for one 6

- minute period is meaningless). Eliminate events excluded from the opacity observation as t hey are infrequent, can be avoided in s o me cases, are emitted from operations we intend to control better, and can be confusing to enforce. Change the format of the PM standards to reflect an outlet concentration format (mg/dscm). This format is the direct output of the emissions test and reflects the constant output nature of the predominant control device, i.e. , a baghouse.***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 154 of 256 Add PM continuous emissions monitoring system as an alternative to installing and operating a BLDS . Editorial c C hange s, including re vising the title s of sections in the subpart to better reflect the description of proposed requirements and to make the regulation easier for the reader to navigate. Update the recordkeeping and reporting sections to reflect the new monitoring requirement s and monitoring options described above. Update the compliance dates to include the anticipated dates the proposed requirements will become effective.

F . What c ompliance d ates are we proposing? We are proposing that facilities must comply with the new
p roposed requirements in this action (which are being proposed under CAA sections 112(d)(2), 112(d)(3), 112(d)(6 ) and 112(f)(2) for all affected sources) , no later than 2 years after the effective date of this rule. In the period between the effective date of this rule and the compliance date, existing sources would continue to comply with the existing requirements specified in §§63.1650 through 63.1661
. Under 40 CFR 63.6(i)( 4 )(ii), ―the owner or operator of an existing source unable to comply with a releva nt standard established ...pursuant to section 112(f)...may request that the Administrator grant an extension allowing the source up to 2 years after the standard‘s effective date to comply with the standard.‖ The rule further specifies a written application f or such a request. Here, the EPA is already fully aware of the steps needed for each source to comply with the proposed standards and to reasonably estimate the amount of time it will take each source to do so. We believe that the 2

- year***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 155 of 256 extension would be warranted in all cases for sources needing to upgrade current practice. This includes the time needed to : construct required building ventilation systems and i nstall associated control devices for process fugitive sources; determine appropriate mercury

an d PAH control devices, locations, amount and type of carbon needed and assess potential waste disposal issues; select and install appropriate monitoring technologies; seek bids, select a vendor, install and test the new equipment; and, purchase, install an d conduct QA and quality control measures on compliance monitoring equipment (see Estimated Time Needed to Achieve Compliance with The Proposed Revisions to the MACT standard for Ferroalloys Production Facilities , which is available in the docket for this proposed action)
. The EPA believes it reasonable to interpret 40 CFR 63.6(i)(4)(ii) to allow this plenary finding, rather than utilizing a facility

- by

- facility application process, when the facts are already known and a category

- wide adjudication is theref ore possible. In addition, utilizing this process allows for public comment on the issue which would not be possible if a case

- by

- case application process with a 90

- day window for completion were used.
V. Summary of Cost, Environmental, and Economic Impact s
A. What are the affected sources? We anticipate that the two manganese production ferroalloys production facilities currently operating in the United States will be affected by these proposed amendments. We do not know of any new***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 156 of 256 facilities that are expe cted to be constructed in the foreseeable future . However, there is one facility that has a permit to produce ferromanganese or silicomanganese in an electric arc furnace, but it did so for only a brief period, several years ago. It is possible that this f acility could resume production or another non

- manganese ferroalloy producer could decide to commence production of ferromanganese or silicomanganese. One of the existing facilities is considering building a new manganese furnace, but their timeline and

ac tual intent to go forward is unclear. Given this uncertainty, our impact analysis is focused on the two existing sources that are currently operating.
B . What are the air quality impacts? The EPA estimated the emissions reductions that are expected to

resu lt from the proposed amendments to the 199 9 NESHAP compared to the 20 10 baseline emission s estimates
. A detailed documentation of the analysis can be found in: Draft Cost Impacts of the Revised NESHAP for the Ferroalloys Production Source Category . Emissio ns of metal HAP from ferroalloys production sources have declined in recent years, primarily as the result of state actions and also due to the industry‘s own initiative. The current proposal would cut HAP emissions (primarily particulate metal HAP such as manganese, arsenic and nickel) by 6 0 percent from their current levels
. Under the proposed emissions limit for process fugitives emissions from the furnace building , we estimate that the HAP***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 157 of 256 emissions reductions would be 81 tpy TPY , including significant

r eductions of manganese
. We also anticipate mercury reductions of 420 lb/yr and PAH reductions of 2.5 tpy TPY from installation of activated carbon injection controls at one facility
. Total HAP reductions for the two facilities are estimated to be 84 tpy.
Ba sed on the emissions data available to the EPA, we believe that both facilities will be able to comply with the proposed emissions limits for HCl , HF , and formaldehyde without additional controls. There may be some formaldehyde emission reductions at the
f acility that we believe will be required to install an activated carbon injection system, but we have not quantified thes e reductions because of the uncertainty of the effectiveness of the activated carbon system designed for mercury and PAH removal compar ed to formaldehyde removal. We do not anticipate any reductions in HCl the acid gas pollutants
. C. What are the cost impacts? Under the proposed amendments, ferroalloys production facilities are expected to incur capital costs for the installation of ductwo rk and baghouses for building ventilation and activated carbon injection systems. There would also be capital costs associated with installing new or improved continuous monitoring systems, included installation of BLDS on the furnace and building ventilat ion baghouses that are not currently equipped with these systems.***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 158 of 256 The capital costs for each facility were estimated based on the number and types of upgrades required. The memorandum Draft Cost Impacts of the Revised NESHAP for the Ferroalloys Production Source Category includes a complete description of the cost estimate methods used for this analysis and is available in the docket. The majority of the capital costs estimated for compliance with the amendments proposed in this action are for purchasing n ew control devices
. For the shop building ventilation system, we assumed that each facility would need to install a building ventilation system in order to comply with the proposed shop building emissions limits. For each facility, we estimated the square footage of shop building air that would need to be evacuated and the size of control device that would be required. Although the proposed amendments would provide the alternative option to install monitors at or near the property boundary to demonstrate co mpliance with the building ventilation requirements, we assume that sources would be un likely to meet the alternative standard without improving the level of control in the shop building
. To estimate the cost for the building ventilation fabric filter,

we contacted a vendor who had recently supplied a fabric filter to one of the facilities to obtain assistance in developing a cost estimate for the installation. The equipment

- only cost supplied by the vendor was used in conjunction with techniques described in the***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 159 of 256 sixth edition of the EPA Air Pollution Control Cost Manual 39 to estimate total installed capital cost and annual costs. Our cost model included installation of the baghouse and any necessary fans, ductwork, and site work, including extra ductwork f or connection to the building roof monitors. The total installed capital cost of three fabric filters (two at one facility, one at the second facility) designed for a flow

- rate of 150,000 actual cubic feet per minute was estimated at $9.4 million. The a nnu alized capital cost and operational and maintenance costs are estimated at $2.3 million, via techniques described in the sixth edition of the EPA Air Pollution Control Cost Manual. The annualized cost assumes a 20

- year life expectancy for the unit and, to be consistent with OMB Guidance in Circular A

- 4, a 7 percent cost of capital as an estimate of the annualized capital cost. We considered installation of both fixed carbon beds and activated carbon injections for the control of mercury and PAH emissions. A fter talking to carbon vendors, we learned that fixed carbon beds are not a viable option given the size of the furnace airstream we would need to control. We also considered whether to put the activated carbon injection upstream or downstream of the exist ing
PM control device. By installing the system downstream of the PM control device, we would avoid potential concerns with the activated carbon interfering with potential sale or reuse of baghouse dust or

39 http://epa.gov/ttn/catc/products.html#cccinfo
.***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 160 of 256 potential increase in mercury load in the scrubber sludge impoundment. This approach requires installation of a separate ―polishing‖ baghouse to capture the injected carbon for disposal. Unlike activated carbon systems used primarily for control of volatile organic compounds, we have been told that mercu ry impregnated compounds cannot be recycled. There is concern that such downstream control could result in sufficient concentration of mercury in the baghouse dust that the facility would be required to treat such dust as a hazardous waste under the RCRA. However, based on conversations with vendors and other mercury control experts, we believe that the resulting waste will most likely be nonhazardous. We are seeking comments on the cost methodology and assumptions used to develop these cost estimates.
Cos ts for Activated Carbon Injection (ACI) were estimated using cost equations developed for the Utility NESHAP 40 . The calculated equipment costs for ACI and fabric filters were used in conjunction with techniques described in the sixth edition of the EPA Air Pollution Control Cost Manual to estimate total installed capital cost and annual costs. Our cost model included installation of the
two ACI systems, one polishing fabric filter, and associated fans, ductwork, and site work. We estimate the total capital c osts are $ 1
. 7 million and the annual costs are $1. 4 million
.

40 Sargent & Lundy, IPM Model

- Revision s to Cost and Performance for APC Technologies, Mercury Control Cost Development Methodology Final, March, 2011. http://www.epa.gov/airmarkt/progsregs/epa

- ipm/docs/append5_3.pdf
.***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 161 of 256 The estimated costs for the proposed change to the monitoring requirements for baghouses, including installation of seven new BLDS for four existing furnace baghouses and three building ventilati on baghouses is $ 270 ,000 of capital cost . The capital cost for a differential pressure monitor to ensure that shop buildings are under negative pressure is $9 , 200. The capital cost estimated for a continuous parameter monitoring system for the wet scrubber at one facility is estimated to be $ 50,000 . Finally, the estimated capital cost for carbon injection monitoring is $20,000. The capital costs for all additional monitoring and recordkeeping requirements, including the baghouse monitoring proposed, is esti mated at $ 34 0 , 2 00
. Annualized costs are estimated to be $ 94 ,000 for the BLDS , $ 18 ,000 for the scrubber parameter monitoring system, and $ 6,200 for the carbon injection monitor ing system . There is also an estimated annualized cost to monitor the manganese ore content for mercury emissions of $1,200. The estimated annual cost for reporting and recordkeeping is $37,000. We estimate the costs of the periodic performance testing requirements to be $800,000. The resulting total annualized costs are $ 3 47 ,000. The total annualized costs for the proposed rule are estimated at $ 4
. 0 million (20 10 dollars). Table 6 provides a summary of the estimated costs and emissions reductions associated with the proposed amendments to the Ferroalloys Production NESHAP presented in today‘s action.***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 162 of 256 Table 6
. Estimated Costs and Reductions for the Proposed Standards in this Action Proposed Amendment Estimated

Capital Cost ($MM) 1 Estimated

Annual Cost ($MM) Total HAP

Emissions Reductions ( tpy TPY ) Cost

Effectiveness in $ per ton total HAP reduction (and in $ per pound) Capture and Control Process Fugitives 9.4 2.3 81 (of metal HAP) $ 0. 0 3 MM per

ton ($ 14 per pound) MACT Limits for Mercury 1.7 1. 4 0.2 (of mercury) $ 6
. 7 MM per

ton ($ 3, 3 00 per pound) MACT Limits for c o control of PAH NA N/A 2.5 (of PAH ) N/A

H Cl , HF, and f ormal

dehyde concen tration l imits 0 0 0 N/A

Compliance testing over 3

- year period N/A 0. 26 N/A N/A

Annual average monitoring over 3

- year period 0. 11 0. 08 N/A N/A

D. What are the economic impacts? We estimate that there will be no more than a 0.2 percent price change and a similar reduction in output associated with the proposal. The impacts to affected firms will be low because the annual compliance costs are quite small when compared to the annual revenues for the two affected parent firms (much less than 1 percent for each). The impacts to affected consumers should also be quite***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 163 of 256 small. Thus, there will not be any significant impacts on affected firms and their consumers as a result of this proposal.
E. What are th e benefits? We estimate the monetized benefits of thi s regulatory action to be $ 7 1 0 million to $ 1 7 8 0 m illion (20 10 $), at a 3 percent discount rate in the implementation year ( 201 5 ). The monetized benefits of the regulatory action at a 7 percent discount ra te are $ 6 3 0 m illion to $ 160 m illion (20 10 $) in the same implementation year. Using alternate relationships between PM 2.5 and premature mortality supplied by experts, higher and lower benefits estimates are plausible, but most of the expert

- based estimates fall between these two estimates. 41 A summary of the monetized benefits estimates at discount rates of 3 percent and 7 percent is in Table 7 of this preamble. Table 7
. Summary of the Monetized Benefits Estimates f or the Ferroalloys Industry in 2015 (millio ns of 20 10 $)

Pollutant Estimated

Emission Reductions (tpy) Total Monetized

Benefits (3% Discount Rate) Total Monetized Benefits (7% Discount Rate) PM 2.5 257 $ 7 1 0 to $ 1 7 8 0 $ 6 3 0 to $ 160 1 All estimates are for the implementation year ( ―2015‖, assuming the final rule is published in January 2012 ) and are rounded to two significant figures so numbers may not sum across rows. All fine particles are assumed to have equivalent health effects
. Benefits from reducing HAP s emissions are not included. These benefi ts estimates represent the total monetized human health benefits for populations exposed to less PM 2.5 in 2015 from controls installed to reduce air pollutants in order to meet these

41 Roman, et al., 2008. Expert Judgment Assessment of the Mortality Impact of Changes in Ambient Fine Particulate Matter in the U.S. Environ. Sci. Technol., 42, 7, 2268

– 2274.***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 164 of 256 proposed standards. These estimates are calculated as the sum of the

mone tized value of avoided premature mortality from reducing PM 2.5 . To estimate human health benefits derived from reducing PM 2.5 , we used the general approach and methodology laid out in Fann, Fulcher, and Hubbell (2009). 42 However, i I n this proposal , we also included utilized source apportionment consideration based on current air quality modeling for the ferroalloys industry. 43 Therefore all benefits per ton estimates are specific to the ferroalloys sector. To generate the BPT estimates, we used a model to conv ert emissions of direct PM 2.5 into changes in ambient PM 2.5 levels and another model to estimate the changes in human health associated with that change in air quality. Finally, the monetized health benefits were divided by the emission reductions to creat e the BPT estimates. These models assume that all fine particles, regardless of their chemical composition, are equally potent in causing premature mortality because there is no clear scientific evidence that would support the development of differential e ffects estimates by particle type. In this rule only d irectly emitted PM 2.5 is considered . Direct
PM 2.5 emissions convert directly into ambient PM 2.5 ; thus, to the extent that emissions occur in population areas, exposures to direct

42 Fann, N., C.M. Fulcher, B.J. Hubbell. 2009. ―The influence of location, source, and emission type in estimates of the human health benefits of reducing a t on of air pollution.‖ Air Qual Atmos Health (2009) 2:169

– 176. 43 U.S. Environmental Protection Agency. 2011. Technical support document: Estimating the benefit per ton of reducing PM 2.5 precursors from the ferroalloy sector (Draft) ; EPA: Research Triangle Park, NC.***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 165 of 256 PM 2.5 will tend to be h igher than exposure to any other precursor , and monetized health benefits will be higher as well
. For context, it is important to note that the magnitude of the PM benefits is largely driven by the concentration response function for premature mortality. Experts have advised the EPA to consider a variety of assumptions, including estimates based on both empirical (epidemiological) studies and judgments elicited from scientific experts, to characterize the uncertainty in the relationship between
PM 2.5 conce ntrations and premature mortality. For this rule, we cite two key empirical studies, the American Cancer Society cohort study 44 and the extended Six Cities cohort study. 45 In the Regulatory Impact Analysis ( RIA ) 46 for this rule, we also include benefits estim ates derived from expert judgments and other assumptions. The EPA strives to use the best available science to support our benefits analyses. We recognize that interpretation of the science regarding air pollution and health is dynamic and evolving. After reviewing the scientific literature and recent scientific advice, we have determined that the no

- threshold model is the most appropriate model for assessing the mortality benefits associated with reducing
PM 2.5 exposure. Consistent with this recent advice, we are replacing

44 Pope et al, 2002. ―Lung Cancer, Cardiopulmonary Mortality, and Long

- term Exposure to Fine Particulate Air Pollution.‖ Journal of the American Medical Association. 287:1132

- 1141. 45 Laden et al, 2006. ―Reduction in Fine Particulate Air Pollution and Mortality.‖ American Journal of Respiratory and Critical Care Medicine
. 173: 667

- 672. 46 U.S. Environmental Protection Agency, 2006. Final Regulatory Impact Analysis: PM 2.5 NAAQS. Prepared by Office of Air and Radiation. Octobe r. Available on the Internet at h ttp://www.epa.gov/ttn/ecas/ria.html.***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 166 of 256 the previous threshold sensitivity analysis with a new ―Lowest Measured Level (LML)‖ assessment. While an LML assessment provides some insight into the level of uncertainty in the estimated PM mortality benefits, the EPA does not view the LML as a threshold and continues to quantify PM

- related mortality impacts using a full range of modeled air quality concentrations. Most of the estimated PM

- related benefits in this rule would accrue to populations exposed to higher levels of PM 2.5 . Using the Pope, et al., (2002) study, 8 9 5 percent of the population is exposed at or above the LML of 7.5 μg/m 3 . Using the Laden, et al., (2006) study, 31 40 percent of the population is exposed above the LML of 10 μg/m 3 . It is important to emphasize that we hav e high confidence in
PM 2.5 - related effects down to the lowest LML of the major cohort studies. This fact is important, because as we estimate PM

- related mortality among populations exposed to levels of PM 2.5 that are successively lower, our confidence in t he results diminishes. However, our analysis shows that the great majority of the impacts occur at higher exposures. This analysis does not include the type of detailed uncertainty assessment found in the 2006 PM 2.5 NAAQS RIA because we lack the
necessary air quality input and monitoring data to run the benefits model. In addition, we have not conducted any air quality modeling for this rule. However, to estimate BPT specifically for this sector we did have some updated air quality modeling. The 2006 PM 2.5 NAAQS***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 167 of 256 benefits analysis provides an indication of the sensitivity of our results to various assumptions. It should be emphasized that the monetized benefits estimates provided above do not include benefits from several important benefit categories, includ ing reducing other air pollutants, ecosystem effects, and visibility impairment, as well as mercury and formaldehyde among other HAPs . Although we do not have sufficient information or modeling available to provide monetized estimates for this rulemaking, we include a qualitative assessment of the health effects of these other effects in the R IA 47 for this proposed rule
. The metal HAPs for which regulations are proposed can cause a range of effects including, mucous membrane irritation (e.g. bronchitis, decr eased lung function); gastrointestinal effects; nervous system disorders (from loss of function to tremors and numbness); skin irritation; and reproductive and developmental disorders. Many are also known (arsenic, chromium (VI), nickel) or probable (nicke l carbonyl) human carcinogens. Mercury is associated most closely with neurodevelopmental effects, while the PAHs for which regulations are proposed are probable human carcinogens. The proposed regulations are expected to result in fewer incidences of thes e health effects. While emission limits are also proposed for HCl and formaldehyde, these limits are not expected to result in the reduction of emissions of these HAPs from current levels. As a result, there are not expected

47 U.S. Environmental Protection Agency. Draft Regulatory Impact Analysis (RIA) for the Proposed Manganese Ferroalloys RTR. September 2011***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 168 of 256 to be human health benefits fro m these limits and these HAPs are not discussed in the HAP benefits section of the RIA. A more complete discussion of the health effects of each of the regulated HAPs for which emissions reductions are expected can be found in the RIA. F. What demographic groups might benefit the most from this regulation? To examine the potential for any environmental justice (EJ) issues that might be associated with the source category, we performed a demographic analysis of the at

- risk population. In this analysis, we ev aluated the distributions of HAP

- related cancer and noncancer risks from the Ferroalloys Production source category across different social, demographic and economic groups within the populations living near these two facilities. The methodology and the

re sults of the demographic analyses are included in a technical report , Risk and Technology Review

– Analysis of Socio

- Economic Factors for Populations Living Near Ferroalloys Facilities , available in the docket for this action
. The results of the demograph ic analys i s are summarized in Table 8 below. These results, for various demographic groups, are based on the estimated risks from actual emissions levels for the population living within 50 km of the facilities.
TABLE 8
. F erroalloy Production D emographic R isk A nalysis R esults

Nationwide Population with

Cancer Risk at or Above 1

- in

- 1 Million Population with

Chronic Hazard Index Above 1 Total 285,000,000 26,000 28,000***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 169 of 256 P opulation Race by Percent White 75 97 97 All Other Races 25 3 3 Race by Percent Wh ite 75 97 97 African American 12 1 0.8 Native American 0.9 0.3 0.3
Other and Multiracial 12 2 1.8 Ethnicity by Percent Hispanic 14 1 0.7 Non

- Hispanic 86 99 99 Income by Percent Below Poverty L evel 13 13 13 Above Poverty L evel 87 87 87 Education b y Percent Over 25 and without H igh School D iploma 13 11 9

Over 25 and with a High School D iploma 87 89 91

The results of the Ferroalloy P roduction source category demographic analysis indicat e that there are approximately 2 6,000 people exposed to a ca ncer risk at or above one in one million and approximately 28,000 people exposed to a chronic noncancer TOSHI greater than 1 due to emissions from the source category (we note that many of those in the first risk group are the same as those in the second)
. The percentages of the at

- risk population in each demographic group are similar to or lower than their res pective***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 170 of 256 nationwide percentages. Implementation of the provisions included in this proposal is expected to significantly reduce the number of at

risk people due to HAP emissions from these sources ( from 26,000 people to about 1,000 for cancer risks and from 28,000 people to less than 10 for chronic noncancer TOSHI)
. VI . Request for Comments We are soliciting comments on all aspects of this proposed acti on. In addition to general comments on this proposed action, we are also interested in any additional data that may help to reduce the uncertainties inherent in the risk assessment and other analyses. We are specifically interested in receiving corrections to the site

specific emissions profiles used for risk modeling. Such data should include supporting documentation in sufficient detail to allow characterization of the quality and representativeness of the data or information. Section VII of this preamble provides more information on submitting data.
VII . Submitting Data Corrections The site

- specific emissions profiles used in the source category risk and demographic analyses are available for download on the RTR

w eb p age at: http://www.epa.gov/ttn/atw/rri sk/rtrpg.html
. The data files include detailed information for each HAP emissions release point for the facilit ies included in the source category. If you believe that the data are not representative or are inaccurate, please identify the data in question , provide your reason***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 171 of 256 for concern, and provide any ―improved‖ data that you have, if available. When you submit data, we request that you provide documentation of the basis for the revised values to support your suggested changes. To submit comments on the data downloaded from the RTR Web page, complete the following steps:
1
. Within this downloaded file, enter suggested revisions to the data fields appropriate for that information. The data fields that may be revised include the following:

Data Element Def inition Control Measure Are control measures in place? (yes or no)
Control Measure Comment Select control measure from list provided, and briefly describe the control measure Delete Indicate here if the facility or record should be deleted Delete Comme nt Describes the reason for deletion Emissions Calculation Method Code For Revised Emissions Code description of the method used to derive emissions. For example, CEM, material balance, stack test, etc. Emissions Process Group Enter the general type of e missions process associated with the specified emissions point

Fugitive Angle Enter release angle (clockwise from true North); orientation of the y

- dimension relative to true North, measured positive for clockwise starting at 0 degrees (maximum 89 degrees ) Fugitive Length Enter dimension of the source in the east

- west (x

- ) direction, commonly referred to as length (ft) Fugitive Width Enter dimension of the source in the north

- south (y

- ) direction, commonly referred to as width (ft) Malfunction Emissions Enter total annual emissions due to malfunctions ( tpy )***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 172 of 256 Data Element Def inition Malfunction Emissions Max Hourly Enter maximum hourly malfunction emissions here (lb/hr)

North American Datum Enter datum for latitude/longitude coordinates (NAD27 or NAD83); if left blank, NAD83 is assumed Process Comment Enter general comments about process sources of emissions REVISED Address Enter revised physical street address for MACT facility here REVISED City Enter revised city name here REVISED County Name Enter revised county name here REVISED Emissions Release Point Type Enter revised Emissions Release Point Type here REVISED End Date Enter revised End Date here REVISED Exit Gas Flow Rate Enter revised Exit Gas Flowrate here (ft 3 /sec) REVISED Exit Gas Temperature Enter revised Exi t Gas Temperature here (F) REVISED Exit Gas Velocity Enter revised Exit Gas Velocity here (ft/sec) REVISED Facility Category Code Enter revised Facility Category Code here, which indicates whether facility is a major or area source REVISED Facility Nam e Enter revised Facility Name here REVISED Facility Registry Identifier Enter revised Facility Registry Identifier here, which is an ID assigned by the EPA Facility Registry System REVISED HAP Emissions Performance Level Code Enter revised HAP Emissions Performance Level here REVISED Latitude Enter revised Latitude here (decimal degrees) REVISED Longitude Enter revised Longitude here (decimal degrees) REVISED MACT Code Enter revised MACT Code here REVISED Pollutant Code Enter revised Pollutant Code here REVISED Routine Emissions Enter revised routine emissions value here ( tpy ) REVISED SCC Code Enter revised SCC Code here REVISED Stack Diameter Enter revised Stack Diameter here (ft) REVISED Stack Height Enter revised Stack Height here (ft) REVIS ED Start Date Enter revised Start Date here REVISED State Enter revised State here REVISED Tribal Code Enter revised Tribal Code here REVISED Zip Code Enter revised Zip Code here***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 173 of 25 6 Data Element Def inition Shutdown Emissions Enter total annual emissions due to shutdown events ( t py ) Shutdown Emissions Max Hourly Enter maximum hourly shutdown emissions here (lb/hr) Stack Comment Enter general comments about emissions release points Startup Emissions Enter total annual emissions due to startup events ( tpy ) Startup Emissions Max Hourly Enter maximum hourly startup emissions here (lb/hr) Year Closed Enter date facility stopped operations

2. Fill in the commenter information fields for each suggested revision ( i.e. , commenter name, commenter organization, commenter e

mail address , commenter phone number, and revision comments). 3. Gather documentation for any suggested emissions revisions ( e.g. , performance test reports, material balance calculations). 4. Send the entire downloaded file with suggested revisions in Microsoft® Acces s format and all accompanying documentation to Docket ID Number EPA

- HQ

- OAR

- 2010

- 0895 (through one of the methods described in the ADDRESSES section of this preamble). To expedite review of the revisions, it would also be helpful if you submitted a copy of your revisions to the EPA directly at RTR@epa.gov in addition to submitting them to the docket. 5. If you are providing comments on a facility, you need only submit one file for that facility, which should contain all sugg ested changes for all sources at that facility. We request that all data revision comments be submitted in the form of updated Microsoft®***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 174 of 256 Access files, which are provided on the RTR Web Page at: http://www.epa.gov/ttn/atw/rrisk/rtrpg.html
. V III . Statutory and Executive Order Reviews
A. Executive Order 12866: Regulatory Planning and Review and Executive Order 13563: Improving Regulation and Regulatory Review Under Section 3(f)(1) of Executive Order 12866 (58 FR 51735, October 4, 1993), this action is an "eco nomically significant regulatory action‖ because it is likely to have an annual effect on the economy of $100 million or more . Accordingly, the EPA submitted this action to OMB for review under Executive Orders 12866 and 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. In addition, the EPA prepared an analysis of the potential costs and benefits associated with this action. This analysis is contained in the RIA for this proposed rule. A copy of the analysis is available in the docket for this action, and the analysis is briefly summarized above here
. The proposed rule will reduce emissions of directly emitted PM and estimates of the PM 2.5 benefits of these air qu ality improvements may be found in Table 2 of this preamble. When characterizing uncertainty in the PM

- mortality relationship, the EPA has historically presented a sensitivity analysis applying alternate assumed thresholds in the PM concentration

- response relationship. In***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 175 of 256 its synthesis of the current state of the PM science, the EPA‘s 2009 Integrated Science Assessment for Particulate Matter concluded that a

no - threshold log

- linear model most adequately portrays the PM

mortality concentration

- response relat ionship. In the RIA accompanying this rulemaking, rather than segmenting out impacts predicted to be associated with levels above and below a ―bright line‖ threshold, the EPA includes a LML analysis that illustrates the increasing uncertainty that characte rizes exposure attributed to levels of PM 2.5 below the LML of each epidemiological study used to estimate PM 2.5 - related premature death. Figures provided in the RIA show the distribution of baseline exposure to PM 2.5, as well as the lowest air quality lev els measured in each of the epidemiology cohort studies. This information provides a context for considering the likely portion of PM

- related mortality benefits occurring above or below the LML of each study; in general, our confidence in the size of the e stimated reduction PM 2.5 - related premature mortality diminishes as baseline concentrations of PM 2.5 are lowered. Using the Pope, et al. (2002) study, 86 percent of the population is exposed at or above the LML of 7.5 μg/m 3 . Using the Laden, et al. (2006) s tudy, 30 percent of the population is exposed at or above the LML of 10 μg/m 3 . Although the LML analysis provides some insight into the level of uncertainty in the estimated PM mortality benefits, the EPA does not view the LML as a threshold and continues to quantify PM

- related mortality impacts using a full range***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 176 of 256 of modeled air quality concentrations. It is important to note that the monetized benefits include many but not all health effects associated with PM 2.5 exposure. Benefits are shown as a range fro m those highlighted in Pope, et al. (2002) , to those highlighted in Laden, et al. (2006). These models assume that all fine particles, regardless of their chemical composition, are equally potent in causing premature mortality because there is no clear sci entific evidence that would support the development of differential effects estimates by particle type. The cost and benefit analys e i s are is also subject to uncertainties. More information on the se cost uncertainties can be found in the RIA and in the cost memo for the proposal
. A summary of the monetized benefits and net benefits for the proposed rule at discount rates of 3 percent and 7 percent is in Table 2 of this preamble and a more detailed discussion of the benefits is found in section V. E of this pr eamble. For more information on the benefits analysis, please refer to the RIA for this rulemaking, which is available in the docket.
B. Paperwork Reduction Act The information collection requirements in this rule have been submitted for approval to the Of fice 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 2448.01
. The information collection***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 177 of 256 requirements are not en forceable until OMB approves them. The information requirements are based on notification, recordkeeping, and reporting requirements in the NESHAP General Provisions (40 CFR part 63, subpart A), which are mandatory for all operators subject to national emi ssions 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 confidentia lity is made is safeguarded according to Agency policies set forth in 40 CFR part 2, subpart B. We are proposing new paperwork requirements to the Ferroalloys Production source category in the form of increased frequency and number of pollutants tested for stack testing as described in § 63. 16 2 5(c) and tighter parameter monitoring requirements to demonstrate continuous compliance as described in §63.16 2 5(c)(6) and §63.16 2 6
. In conjunction shop building process fugitives monitoring, we believe that sources ar e currently equipped with adequate monitoring equipment and that the facilities will not incur a capital cost due to this requirement.
For th is proposed rule, the EPA is adding affirmative defense to the estimate of burden in the ICR. To provide the publi c 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***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 178 of 256 what the notification, recordkeeping and re porting requirements associated 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 re cord 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 an affirmative defense. Current historical records would be an inappropriate basis, as source owners or operators previously operat ed 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 would be expected to result***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 179 of 256 fro m 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 avail themselves of the affirmative defense will be extremely small. For this reason, we estimate no more than 1 or 2 such occurrences for all sources subject to subpart XX X over the 3

- year period covered by this ICR. We expect to gather infor mation on such events in the future and will revise this estimate as better information becomes available. We estimate two regulated entities are currently subject to subpart XX X and will be subject to all proposed standards. The annual monitoring, report ing, and recordkeeping burden for this collection (averaged over the first 3 years after the effective date of the standards) for these amendments to subpart XXX ( Ferroalloys Production ) is estimated to be $ 384 ,000 per year. This includes 4 83 labor hours p er year at a total labor cost of $ 37,000 per year, and total non

- labor capital and operation and maintenance costs of $ 347 ,000 per year. This estimate includes performance tests, notifications, reporting, and recordkeeping associated with the new requireme nts for front

- end process vents and back

- end process operations. The total burden for the Federal government (averaged over the first 3 years after the effective date of the standard) is***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 180 of 256 estimated to be 48 hours per year at a total labor cost of $ 2,200 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 regula tions in 40 CFR are listed in 40 CFR part 9. When these ICRs are approved by OMB, the Agency 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. To comment on the Agency's need for this information, the accuracy of the provided burden estimates, and any suggested methods for minimizing respondent burden, the EPA has established a public docket for this rule, which inc ludes this ICR, under Docket ID number
EPA

- HQ

- OAR

- 201 0

- 0 895
. Submit any comments related to the ICR to the EPA and OMB. See the ADDRESSES section at the beginning of this notice for where to submit comments to the EPA. Send comments to OMB at the Office of Information and Regulatory Affairs, Office of Management and Budget, 725 17th Street, NW, Washington, DC 20503, Attention: Desk Office for EPA. Because OMB is required to make a decision concerning the ICR between 30 and 60 days after [ INSERT THE
DATE OF PUBLICATION OF THIS PROPOSED RULE IN THE FEDERAL REGISTER ], a comment to OMB is best assured of having its full effect if OMB receives it by [ INSERT THE DATE 30 DAYS AFTER THE DATE OF PUBLICATION***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 181 of 256 IN THE FEDERAL REGISTER ]
. The final rule will respond to any OMB or public comments on the information collection requirements contained in this proposal.
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 inclu de small businesses, small organizations, and small governmental jurisdictions. For purposes of assessing the impacts of this proposed rule on small entities, small entity is defined as: (1) a 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 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 e nterprise that is independently owned and operated and is not dominant in its field. For this source category, which has the N AICS code 331 112 ( i.e. , Electrometallurgical ferroalloy product manufacturing) , the SBA small business size standard is 750 employ ees according to the SBA small business standards definitions
.***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 182 of 256 After considering the economic impacts of today‘s proposed rule on small entities, I certify that this action will not have a significant economic impact on a substantial number of small entit ies. Neither of the companies affected by this rule is considered to be a small entity per the definition provided in this section
. D. Unfunded Mandates Reform Act This proposed rule does not contain a Federal mandate under the provisions of Title II of t he Unfunded Mandates Reform Act of 1995 (UMRA), 2 U.S.C. 1531

- 1538 for s tate, local, or tribal governments or the private sector. The proposed rule would not result in expenditures of $100 million or more for s tate, local, and tribal governments, in aggreg ate, or the private sector in any 1 year. The proposed rule imposes no enforceable duties on any State, local or tribal governments or the private sector. Thus, this proposed rule is not subject to the requirements of sections 202 or 205 of the UMRA. This proposed rule 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 proposed rule does not have federalism implications. It will not have substantial direct effects on the s tates, on the***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 183 of 256 relationship between the national government and the s ta tes, or on the distribution of power and responsibilities among the various levels of government, as specified in Executive Order 13132. None of the facilities subject to this action are owned or operated by s tate governments, and, because no new requireme nts are being promulgated, nothing in this propos ed rule will supersede State regulations. Thus, Executive Order 13132 does not apply to this proposed rule. In the spirit of Executive Order 13132, and consistent with the EPA policy to promote communicatio ns between the EPA and s S tate and local governments, the EPA specifically solicits comment on this proposed rule from State and local officials.
F. Executive Order 13175: Consultation and Coordination with Indian Tribal Governments
T his proposed rule does not have tribal implications, as specified in Executive Order 13175 (65 FR 67249, November 9, 2000)
. Thus, Executive Order 13175 does not apply to this action. The EPA specifically solicits additional comment on this proposed action from tribal officials.
G. Executive Order 13045: Protection of Children from Environmental Health Risks and Safety Risks This proposed rule is not subject to Executive Order 13045 (62 FR 19885, April 23, 1997) because the Agency does not believe the environmental health risks o r safety risks addressed by this action present a disproportionate risk to children. The report , Analysis of***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 184 of 256 Socio

- Economic Factors for Populations Living Near Ferroalloys Facilities , shows that , prior to the implementation of the provisions included in th is proposal, on a nationwide basis, there are approximately 26,000 people exposed to a cancer risk at or above one in one million and approximately 28,000 people exposed to a chronic noncancer TOSHI greater than 1 due to emissions from the source category. T he percentages for all demographic groups , including children 18 years and younger, are similar to or lower than their respective nationwide percentages. Further, implementation of the provisions included in this proposal is expected to significantly red uce the number of at

- risk people due to HAP emissions from these sources (from between 26,000 to 28,000 people to about 1,000), providing significant benefit to all the demographic groups in the
at

- risk population. This proposed rule is expected to reduce environmental impacts for everyone, including children. This action proposes emissions limits at the levels based on MACT , as required by the CAA . Based on our analysis, w e believe that this rule does not have a disproportionate impact on children. The pu blic is invited to submit comments or identify peer

reviewed studies and data that assess effects of early life exposure
to manganese, lead, arsenic, nickel, or mercury
. H. Executive Order 13211: Actions Concerning Regulations That Significantly Affect Ene rgy Supply, Distribution, or Use***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 185 of 256 This action is not a ―significant energy action‖ as defined under Executive Order 13211, ―Actions Concerning Regulations That Significantly Affect Energy Supply, Distribution, or Use‖ (66 FR 28355, May 22, 2001), because it is not likely to have significant adverse effect on the supply, distribution, or use of energy. This action will not create any new requirements and therefore no additional costs for sources in the energy supply, distribution, or
use sectors.
I. National Technology Transfer and Advancement Act ( NTTAA) Section 12(d) of the National Technology Transfe r 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 regu latory 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 a gency decides not to use available and applicable VCS . This proposed rulemaking involves technical standards. The EPA proposes to use EPA Methods 1, 2, 3A, 3B, 4, 5 , 5D, 9, 10, 26A, 30B, 316, CARB 429, SW

- 846 Method 3052, SW

- 846 Method 7471b and EPA water Method 1631E of 40 CFR Part 60, Appendix A. No applicable VCS were identified for EPA Methods 30B, 5D, 316, 1631E and CARB 429, SW

- 846***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 186 of 256 Method 3052, and SW

- 846 and M ethod 7471b.
Two VCS were identified acceptable alternatives to EPA test methods for the purposes of this rule. The VCS standard ANSI/ASME PTC 19

- 10

- 1981

- Part 10, ― Flue and Exhaust Gas Analyses ‖ is an acceptable alternative to Method 3B. The VCS ASTM D7520

- 09, ―Standard Test Method for Determining the Opacity of a Plume in the Outdoor Ambient Atmosphere‖ is an acceptable alternative to Method 9 under specified conditions
. However, t T he Agency has identified 18 20 VCS as being potentially applicable to these methods cited in this rule. However, the EPA determined that the 18 candidate VCS would not be practical due to lack of equivalency, documentation , validation data and other important technical and policy considerations. The 18 20 VCS and other information and conclusions, including the search and review results , are in the docket for this proposed rule. The EPA welcomes comments on this aspect of this proposed rulemaking and, specifically, invites the public to identify potentially

- applicable voluntary cons ensus standards and to explain why such standards should be used in this regulation. Under section 63.7(f) and section 63.8(f) of Subpart A of the General Provisions, a source may apply to the EPA for permission to use alternative test methods or alternati ve monitoring requirements in place of any required testing methods, performance specifications, or procedures in the proposed rule.***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 187 of 256 J. Executive Order 12898: Federal Actions to Address Environmental Justice in Minority Populations and Low

- Income Populatio ns Executive Order 12898 (59 FR 7629, February 16, 1994) establishes f ederal executive policy on environmental justice. Its main provision directs f ederal 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.
T he EPA has determined that the current health risks posed by emissions from this source category are unacceptable. There are about 26,000 to 28,000 people nationwide that are currently subject to health risks which are non

- negligible ( i.e. , cancer risks greater than one in one million or chronic noncancer TOSHI greater than 1) due to emissions from this source category. The demographic makeup of this ―at

- risk‖ population is similar to the national distribution for all demographic groups . The proposed rule will reduce the number of people in this at

- risk group from between 26,000

- 28,000 people to about 1,000 people. Based on this analysis, the EPA has determined that the proposed rule will not have disproportionately high and adverse human health or envir onmental effects on minority or low

income populations because it increases the level of environmental protection for all affected populations
.***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 188 of 256 National Emission St andards for Hazardous Air Pollutants: Ferroalloys Production

List of Subjects in 40 CFR Part 63 Environmental protection, Air pollution control, Hazardous substances, Incorporation by reference, Reporting and recordkeeping requirements.

____________________________ Dated:

____________________________ Lisa P. Jackson, Administrator.***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 189 of 256 Fo r the reasons stated in the preamble, part 63 of title 40, chapter I, of the Code of Federal Regulations is proposed to be 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: to be added

a. Adding paragraph (b)(69); b. Revising paragraph (i)(1); c. Revising paragraph (p)(6) and adding paragraphs (p)(7) and (p)(8) ; and d. By adding paragraphs (r)(1) and (r)(2). §63.14 Incorporations by r eference. (b) * * * (69) ASTM D 7520

- 09, ―Standard Test Method for Determining the Opacity in a Plume in an Outdoor Ambient Atmosphere,‖ IBR approved
for § 63.1625(b)( 9 ).
* * * * * (i) * * * (1) ANSI/ASME PTC 19.10

– 1981, ―Flue and Exhaust Gas Analyses [Part 10, Instruments and Apparatus],‖ IBR approved for §§63.309(k)(1)(iii), 63.865(b), 63.1625(b)(3)(iii), 63.3166(a)(3), 63.3360(e)(1)(iii), 63.3545(a)(3), 63.3555(a)(3), 63.4166(a)(3), 63.4362(a)(3), 63.4766(a)(3), 63.4965(a)(3), 63.5160(d)(1)(iii),***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 190 of 256 63.9307(c )(2), 63.9323(a)(3), 63.11148(e)(3)(iii), 63.11155(e)(3), 63.11162(f)(3)(iii) and (f)(4), 63.11163(g)(1)(iii) and (g)(2), 63.11410(j)(1)(iii), 63.11551(a)(2)(i)(C), table 5 to subpart DDDDD of this part, table 1 to subpart ZZZZZ of this part, and table 4 t o subpart JJJJJJ of this part.
* * * * * (p) * * * (6) SW

– 846

– 7471B, Mercury i n Solid Or Semisolid Waste (Manual Cold

- Vapor Technique), Revision 2, February 2007, in EPA Publication
No. SW

– 846, Test Methods for Evaluating Solid Waste, Physical/Chemical Met hods, Third Edition, IBR approved for §63.1625(b) (10 ), table 6 to subpart DDDDD of this part and table 5 to subpart JJJJJJ of this part.
* * * * * (8) SW

- 846

- Method 3052 , Microwave Assisted Acid Digestion Of Siliceous a nd Organically Based Matrices , Revisi on 0, December 1996, in EPA Publication No. SW

– 846, Test Methods for Evaluating Solid Waste, Physical/Chemical Methods, Third Edition, IBR approved for §63.1625(b) (10 ). (9) Method 1631, Revision E: Mercury in Water by Oxidation, Purge and Trap, and Cold Va por Atomic Fluorescence Spectrometry , August 2002 located at http://water.epa.gov/scitech/methods/cwa/metals/mercury/upload/2007_0***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 191 of 256 7_10_ methods_method_mercury_1631.pdf , IBR approved for §63.1625(b) ( 1 0 ). ( r ) The following material is available from the California Air Resources Board (CARB), 1102 Q Street, Sacramento, California 95814, ( http://www.arb.ca.gov/testmeth/vol3/M_429.pdf ). (1) Method 429, Determination of Polycyclic Aromatic Hydrocarbon (PAH) Emissions from Stationary Sources , Adopted September 1989, Amended July 1997 , IBR approved for §63.1625(b)(1 1 )
. (2) [Reserved]
* * * * * To be added Subpart XXX

— [AMENDED] 3. Section 63.1620 is added to read as follows: § 63.1620 Am I subject to this subpart? (a) You are subject to this subpart if you own or operate a new or existing ferromanganese and/or silicomanganese production fa cility that is a major source or is co

- located at a major source of hazardous air pollutant emissions. (b) You are subject to this subpart if you own or operate any of the following equipment as part of a ferromanganese or silicomanganese production facili ty: (1) Open, semi

- sealed, or sealed submerged arc furnace, (2) Casting operations, (3) Metal oxygen refining (MOR) process,***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 192 of 256 (4) Crushing and screening operations, (5) Outdoor fugitive dust sources. (c) A new affected source is any of the sources listed in paragraph (b) of this section for which construction or reconstruction commenced after [INSERT DATE OF PUBLICATION IN FEDERAL REGISTER]. (d) Table 1 of this subpart specifies the provisions of subpart A of this part that apply to owners and operators of f erromanganese and silicomanganese production facilities subject to this subpart. (e) 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. (f) Emission stan dards in this subpart apply at all times. 4. Section 63.1621 is added to read as follows: § 63.1621 What are my c ompliance dates? (a) Existing affected sources must be in compliance with the provisions specified in §§63.1620 through 63.1630 no later than [2 YEARS AFTER EFFECTIVE DATE OF FINAL RULE]. (b) Affected sources in existence prior to [INSERT DATE OF PUBLICATION OF THE PROPOSED RULE IN THE FEDERAL REGISTER] must be in compliance with the provisions specified in §§63.1650 through 63.1661 by November 21 , 2001 and until [2 YEARS AFTER EFFECTIVE DATE OF FINAL RULE]. As of [2 YEARS AFTER EFFECTIVE DATE OF FINAL RULE], the provisions of §§63.1650 through 63.1661 cease to apply to affected***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 193 of 256 sources in existence prior to [INSERT DATE OF PUBLICATION OF THE
PROPO SED RULE IN THE FEDERAL REGISTER]. The provisions of §§63.1650 through 63.1661 remain enforceable at a source for its activities prior to [2 YEARS AFTER EFFECTIVE DATE OF FINAL RULE]. (c) If you own or operate a new affected source that commences
construct ion or reconstruction after [INSERT DATE OF PUBLICATION OF THE PROPOSED RULE IN THE FEDERAL REGISTER], you must comply with the requirements of this subpart by [EFFECTIVE DATE OF FINAL RULE], or upon startup of operations, whichever is later. 5. Section 63 .1622 is added to read as follows: § 63.1622 What definitions apply to this subpart? Terms in this subpart are defined in the Clean Air Act (Act), in subpart A of this part, or in this section as follows: Affirmative defense means, in the context of an enfo rcement 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. Bag leak detection system means a system that is capable of continuously monitoring particulate matter (dust) loadings in the exhaust of a baghouse in order to detect bag leaks and other upset conditions. A bag leak detection system includes, but is not limited to, an instru ment that operates on triboelectric, light scattering,***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 194 of 256 light transmittance, or other effect to continuously monitor relative particulate matter loadings. Building ventilation means a system of ventilated ducts designed to place the shop building under nega tive pressure and to capture process fugitive emissions from the shop building. Capture system means the collection of components used to capture the gases and fumes released from one or more emissions points and then convey the captured gas stream to a co ntrol device or to the atmosphere. A capture system may include, but is not limited to, the following components as applicable to a given capture system design: duct intake devices, hoods, enclosures, ductwork, dampers, manifolds, plenums, and fans. Castin g means the period of time from when molten ferroalloy is removed from the tapping station until pouring into casting molds or beds is completed. This includes the following operations: pouring alloy from one ladle to another, slag separation, slag removal , and ladle transfer by crane, truck, or other conveyance. Crushing and screening equipment means the crushers, grinders, mills, screens and conveying systems used to crush, size, and prepare for packing manganese

- containing materials, including raw materi als, intermediate products, and final products. Electric arc furnace means any furnace where electrical energy is converted to heat energy by transmission of current between electrodes partially submerged in the furnace charge.***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 195 of 256 Ladle treatment means a post

- tapping process including metal and alloy additions where chemistry adjustments are made in the ladle after furnace smelting to achieve a specified product. Local ventilation means hoods and ductwork designed to capture process fugitive emissions close to the area where the emissions are generated ( e.g. , tap hoods). Metal oxygen refining (MOR) process means the reduction of the carbon content of ferromanganese through the use of oxygen. Outdoor fugitive dust source means a stationary source from which haza rdous air pollutant

- bearing particles are discharged to the atmosphere due to wind or mechanical inducement such as vehicle traffic. Fugitive dust sources include plant roadways, yard areas, and outdoor material storage and transfer operations. Plant roadw ay means any area at a ferromanganese and silicomanganese production facility that is subject to plant mobile equipment, such as fork lifts, front end loaders, or trucks, carrying
manganese - bearing materials. Excluded from this definition are employee and visitor parking areas, provided they are not subject to traffic by plant mobile equipment. Primary emissions means gases and emissions collected by hoods and ductwork located above an open furnace or under the cover of a semi

- closed or sealed furnace.
Proc ess fugitive emissions source means a source of hazardous air pollutant emissions that is associated with ferromanganese or***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 196 of 256 silicomanganese production, but is not the primary exhaust stream from an electric arc furnace, MOR or crushing and screening equipm ent, and is not a fugitive dust source. Process fugitive sources include emissions that escape capture from the electric arc furnace, tapping operations, casting operations, ladle treatment, MOR or crushing or screening equipment. Shop building means the b uilding which houses one or more electric arc furnaces. Shutdown means the cessation of operation of an affected source for any purpose. Startup means the setting in operation of an affected source for
any purpose. Tapping emissions means the gases and emi ssions associated with removal of product from the electric arc furnace under normal operating conditions, such as removal of metal under normal pressure and movement by gravity down the spout into the ladle and filling the ladle. Tapping period means the time from when a tap hole is opened until the time a tap hole is closed. 6. Section 63.1623 is added to read as follows: § 63.1623 What are the emissions standards for new, reconstructed and existing facilities? (a) Electric arc furnaces . You must install, operate, and maintain a capture system that collects the emissions from each***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 197 of 256 electric arc furnace (including charging, melting, and tapping operations and emissions from any vent stacks) and conveys the collected emissions to a control device for the remov al of the pollutants specified in the emissions standards specified in paragraphs (a)(1) through (a)(6) of this section
. (1) Particulate matter emissions
. (i) You must not discharge exhaust gases (including primary and tapping emissions) containing partic ulate matter in excess of 9. 3 milligrams per dry standard cubic meter (mg/dscm), corrected to 2 percent carbon dioxide (CO 2 ) into the atmosphere from any new or reconstructed electric arc furnace. This emission limit must be met by any furnace vent stacks. (ii) You must not discharge exhaust gases (including primary and tapping emissions) containing particulate matter in excess of 24
mg /dscm, corrected to 2 percent carbon dioxide ( CO 2 ) into the atmosphere from any existing electric arc furnace. This emissio n limit must be met by any furnace vent stacks. (2) Mercury emissions . You must not discharge exhaust gases (including primary and tapping emissions) containing mercury emissions in excess of 16 μg/dscm, corrected to 2 percent CO 2 into the atmosphere from any new, reconstructed or existing electric arc furnace. (3) Polycyclic aromatic hydrocarbon emissions . You must not discharge exhaust gases (including primary and tapping emissions)***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 198 of 256 containing polycyclic aromatic hydrocarbon emissions in excess of 89 μg/d scm, corrected to 2 percent CO 2 into the atmosphere from any new, reconstructed or existing electric arc furnace. (4) Hydrochloric acid emissions . You must not discharge exhaust gases (including primary and tapping emissions) containing hydrochloric acid e missions in excess of 809 μg/dscm, corrected to 2 percent CO 2 into the atmosphere from any new, reconstructed or existing electric arc furnace. (5) Hydrofluoric acid emissions . You must not discharge exhaust gases (including primary and tapping emissions) containing hydrofluoric acid emissions in excess of 801 μg/dscm , corrected to 2 percent CO 2 into the atmosphere from any new, reconstructed, or existing electric arc furnace. (6) Formaldehyde emissions . You must not discharge exhaust gases (including pri mary and tapping emissions) containing formaldehyde emissions in excess of 201 μg/dscm, corrected to 2 percent CO 2 into the atmosphere from any new, reconstructed or existing electric arc furnace. (b) Process fugitive emissions
. (1) You must install, oper ate, and maintain a capture system that collects all of the process fugitive emissions from the shop building (including tapping, casting, ladle treatment and crushing and screening equipment process fugitives) at a negative pressure of***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 199 of 256 at least 0.007 inch es of water, and conveys the collected emissions to a control device. You must not discharge into the atmosphere emissions from the control device containing particulate matter in excess of 24 mg /dscm, corrected to 2 percent CO 2 . (2) You must not cause emi ssions exiting from a shop building, to exceed 10 percent opacity for more than one 6

- minute period. (3) As an alternative to meeting the requirements specified in paragraph (b)(1) of this section, you can elect to demonstrate compliance by meeting the req uirements of paragraphs (b)(3)(i) through (b)(3)(ii i ) of this section. (i) You must install compliance monitors on or near the plant boundary, at locations approved by the Administrator, to demonstrate that the manganese concentration in air is at all time s maintained below a 10

- sample rolling average value of 0.10 μ g/m 3 at each monitor. (A) Samples must be collected every 6 days. All samples are 24

- hr integrated samples. (B) Calculate a 10

- sample rolling average to demonstrate compliance with the action le vel specified in paragraph (b)(3)(i) of this section. Missed or invalidated samples must be made up only on the established site

- specific 1

- in 6

- day schedule to include the required number of makeup samples to achieve a minimum of 10 valid samples). (C) C ollect particles in the PM10 size fraction at a set flow rate of 16.7 l/minute using a 47 mm Teflon filter.***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 200 of 256 (D) Conduct the analysis using an EPA method (such as compendium method IO

- 3.5) and ensure the manganese method detection limit (MDL) is no greater than 0.01 μg/m 3

. (E) All data, to include values below MDL, must be reported. Under no circumstances are data value substitutions ( e.g. , 1⁄2 MDL) acceptable
. (ii) (A) The monitoring system must include at least two ambient monitors and at least one of thes e monitors must be in a location that is expected to have the highest air concentrations at or near the facility boundary based on ambient dispersion modeling or other methods approved by the Administrator. (B) You must submit a written plan describing and explaining the basis for the design and adequacy of the compliance monitoring network, the sampling, analytical and quality assurance procedures and the justification for any data adjustments within 45 days after the effective date of this subpart. (C) Th e Administrator at any time may require changes in or expansion of, the monitoring program, including additional sampling and more frequent sampling, or revisions to the analytical protocols and network design. (iii) Upon the first exceedance of a 10

- samp le rolling average, the source would be required within 6 months to evaluate the capture and control of process fugitives from the furnace building and implement any changes indicated to reduce process fugitives to***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 201 of 256 acceptable levels. Upon a next exceedance of the 10

- sample rolling average following the 6

- month implementation period, the source would be required to comply with the requirement to enclose the furnace building(s) and evacuate the emissions to a control device(s). In this case, the source would be required to complete the enclosure within 1 year from the time the next exceedance occurs. (c) Local ventilation emissions . If you operate local ventilation to capture tapping, casting, or ladle treatment emissions and direct them to a control device ot her than one associated with the electric arc furnace, you must not discharge into the atmosphere any captured emissions containing particulate matter in excess of 24
mg /dscm, corrected to 2 percent CO 2 . (d) MOR process . You must not discharge into the atm osphere from any new, reconstructed or existing MOR process exhaust gases containing particulate matter in excess of 3.9 1.5 mg/dscm, correct ed to 2 percent CO 2 . (e) Crushing and screening equipment . You must not discharge into the atmosphere from any new, reconstructed, or existing piece of equipment associated with crushing and screening exhaust gases containing particulate matter in excess of 13 mg/dscm. (f) Emissions Averaging Option
. (1) As an alternative to meeting the emission standards specified in p aragraphs (a)(1) through (a)(6) of this section on an electric arc furnace

- specific basis, and if you have more than one***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 202 of 256 existing electric arc furnace located at one or more contiguous properties, which are under common control of the same person (or
pers ons under common control), you may demonstrate compliance by emission averaging among the existing electric arc furnaces, if your averaged emissions for such electric arc furnaces are equal to or less than the applicable emission limit. (2) As an alternati ve to meeting the emission standard specified in paragraph (b)(1) of this section on a building ventilation control device

- specific basis, and if you have more than one existing building ventilation control device located at one or more contiguous properti es, which are under common control of the same person (or persons under common control), you may demonstrate compliance by emission averaging among the existing building ventilation control devices, if your averaged emissions for such building ventilation control devices are equal to or less than the applicable emission limit. (3) As an alternative to meeting the emission standard specified in paragraph (e) of this section on a crushing and screening equipment control device

- specific basis, and if you have more than one existing crushing and screening equipment control device located at one or more contiguous properties, which are under common control of the same person (or persons under common control), you may demonstrate compliance by emission averaging a mong the existing crushing or screening equipment control device, if your averaged***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 203 of 256 emissions for such crushing or screening equipment control devices are equal to or less than the applicable emission limit. (g) The averaged emissions rate from the existing equipment specified in paragraph (f) of this section participating in the emissions averaging option must be in compliance with the emission standards specified in paragraph s (a) , (b) and (e) (1) of this section the compliance date specified in § 63.1621 . Y ou must develop, and submit to the applicable regulatory authority for review and approval upon request, an implementation plan for emission averaging according to the following procedures and requirements in paragraphs (g)(1) through (g)(4) of this sectio n. (1) You must submit the implementation plan no later than 180 days before the date that the facility intends to demonstrate compliance using the emission averaging option. (2) You must include the information contained in paragraphs (g)(2)(i) through (g )(2)(vii) of this section in your implementation plan for all emission sources included in an emissions average: (i) The identification of all existing equipment specified in paragraph (f) of this section in the applicable averaging group, including for ea ch either the applicable HAP emission level or the control technology installed as of [DATE 60 DAYS AFTER EFFECTIVE DATE OF THE FINAL RULE] and the date on which you are requesting emission averaging to commence;***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 204 of 256 (ii) A description of how you will comply w ith the monitoring procedures specified in § 63.1626 for each averaging group; (iii) The specific control technology to be used for each piece of equipment specified in paragraph (f) of this section in the averaging group and the date of its installation o r application; (iv) The test plan for the measurement of particulate matter, hydrochloric acid, hydrofluoric acid, formaldehyde and mercury emissions, as applicable, in accordance with the requirements in § 63.1625 and the planned test dates to ensure that averaged units are tested concurrently or with minimal differences in the testing dates testing will occur ; (v) The operating parameters to be monitored for each control system or device consistent with § 63.1626 and a description of how the operating limi ts will be determined; (vi) If you request to monitor an alternative operating parameter pursuant to §63.8, you must also include: (A) A description of the parameter(s) to be monitored and an explanation of the criteria used to select the parameter(s); and (B) A description of the methods and procedures that will be used to demonstrate that the parameter indicates proper operation of the control device; the frequency and content of monitoring, reporting, and recordkeeping requirements; and a demonstration, to the satisfaction of the applicable regulatory authority, that the***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 205 of 25 6 proposed monitoring frequency is sufficient to represent control device operating conditions; and (vii) A demonstration that compliance with each of the applicable emission limit(s) will be achieved under representative operating conditions. (3) The regulatory authority shall review and approve or disapprove the plan according to the following criteria: (i) Whether the content of the plan includes all of the information specified in paragr aph (g)(2) of this section; and (ii) Whether the plan presents sufficient information to determine that compliance will be achieved and maintained. (4) The applicable regulatory authority shall not approve an emission averaging implementation plan containi ng any of the following provisions: (i) Any averaging between emissions of differing pollutants or between differing sources; or (ii) The inclusion of any emission source other than an existing unit in the same source category. (h) At all times, you must o perate 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 oper ation and maintenance procedures are being used will be based on information available to the Administrator that may***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 206 of 256 include, but is not limited to, monitoring results, review of operation and maintenance procedures, review of operation and maintenance rec ords, and inspection of the source. 7. Section 63.1624 is added to read as follows: § 63.1624 What are the operational and work practice standards for new, reconstructed and existing facilities? (a) Process fugitives sources
. (1) If you are complying with t he standard specified in § 63.1623 (b)(1), you must prepare and operate according to a process fugitives ventilation plan for each shop building. (2) You must prepare a process fugitives ventilation schematic for each shop building indicating duct size and l ocation, enclosure and hood sizes and locations, control device types, size and locations, and exhaust locations should be developed. The process fugitives ventilation system schematic must be annotated with the location and size of each shop building air supply unit and each shop building exhaust fan. (3) You must conduct a baseline survey to establish actual air flow and static pressure values before and after each emission control device and in each branch of the process ventilation system after each enc losure or hood. You must also determine actual air flow and static pressure values for each shop building air supply and exhaust device. You must demonstrate that air supply and exhaust are balanced.***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 207 of 256 (4) You must repeat the baseline survey should at least every 5 years or following significant ventilation system changes. (5) The process fugitives ventilation plan must contain a description of each enclosure and hood with explanation demonstrating that adequate control of the process source is being achieve d or actions planned to improve performance. (6) The process fugitives ventilation plan must be adequate to ensure that the building is continuously maintained at a negative pressure of at least 0.007 inches of water. (7) The process fugitives ventilation plan must identify critical maintenance actions, schedule to complete, and verification record of completion. (8) You must submit a copy of the process fugitives ventilation plan to the designated permitting authority on or before the applicable compliance date for the affected source as specified in § 63.1621 . The requirement for you to operate the facility according to a written process fugitives ventilation plan must be incorporated in the operating permit for the facility that is issued by the designated permitting authority under part 70 of this chapter. (b) Outdoor fugitive dust sources
. (1) You must prepare, and at all times operate according to, an outdoor fugitive dust control plan that describes in detail the measures that will be put in place to c ontrol outdoor fugitive dust emissions from the individual fugitive dust sources at the facility.***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 208 of 256 (2) You must submit a copy of the outdoor fugitive dust control plan to the designated permitting authority on or before the applicable compliance date for th e affected source as specified in § 63.1621 (a) . The requirement for you to operate the facility according to a written outdoor fugitive dust control plan must be incorporated in the operating permit for the facility that is issued by the designated permitti ng authority under part 70 of this chapter. (3) You are permitted to use existing manuals that describe the measures in place to control outdoor fugitive dust sources required as part of a State implementation plan or other federally enforceable requiremen t for particulate matter to satisfy the requirements of paragraph (b)(1) of this section. 8. Section 63.1625 is added to read as follows: § 63.1625 What are the performance test and compliance requirements for new, reconstructed and existing facilities? (a) Performance testing
. (1) All performance tests must be conducted according to the requirements in §63.7 of subpart A. (2) Each performance test must consist of three separate and complete runs using the applicable test methods. (3) Each run must be condu cted under conditions that are representative of normal process operations. (4) Performance tests conducted on air pollution control devices serving electric arc furnaces must be conducted such that at least***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 209 of 256 one tapping period, or at least 20 minutes of a tapping period, whichever is less, is included in at least two of the three runs. The sampling time for each run must be at least as long as three times the average tapping period of the tested furnace, but no less than 60 minutes. (5) You must conduct the performance tests specified in paragraph (c) of this section under such conditions as the Administrator specifies based on representative performance of the affected source for the period being tested. Upon request, you must make available to the Administ rator such records as may be necessary to determine the conditions of performance tests. (b) Test methods. The following test methods in a ppendi ces of part 60 or 63 of this chapter or as specified elsewhere must be used to determine compliance with the emi ssion standards. (1) Method 1 of Appendix A

- 1 of 40 CFR part 60 to select the sampling port location and the number of traverse points. (2) Method 2 of Appendix A

- 1 of 40 CFR part 60 to determine the volumetric flow rate of the stack gas. (3)(i) Method 3A or 3B of Appendix A

- 2 1 of 40 CFR part 60 (with integrated bag sampling) to determine the outlet stack and inlet oxygen and CO 2 content. (ii) You must measure CO 2 concentrations at both the inlet and outlet of the positive pressure fabric filter in conjunct ion with the***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 210 of 256 pollutant sampling in order to correct pollutant concentrations for dilution and to determine isokinetic sampling rates. (iii) As an alternative to EPA Reference Method 3B, ASME PTC

- 19

- 10

- 1981

- Part 10 , ―Flue and Exhaust Gas Analyses‖ may be us ed (incorporated by reference, see 40 CFR 6 3 .1 4 )
. (4) Method 4 of Appendix A

- 3 1 of 40 CFR part 60 to determine the moisture content of the stack gas. (5)(i) Method 5 of Appendix A

- 3 1 of 40 CFR part 60 to determine the particulate matter concentration of th e stack gas for negative pressure baghouses and positive pressure baghouses with stacks. (ii) Method 5D of Appendix A

- 3 1 of 40 CFR part 60 to determine particulate matter concentration and volumetric flow rate of the stack gas for positive pressure baghous es without stacks. (iii) The sample volume for each run must be a minimum of 4.0 cubic meters (141.2 cubic feet). For Method 5 testing only, you may choose to collect less than 4.0 cubic meters per run provided that the filterable mass collected ( e.g. , net filter mass plus mass of nozzle, probe and filter holder rinses) is equal to or greater than 10 mg. If the total mass collected for two of three of the runs is less than 10 mg, you must conduct at least one additional test run that produces at least 10 mg of filterable mass collected ( i.e. , at a greater sample volume). Report the results of all test runs.***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 211 of 256 (6) Method 30B of Appendix A

- 8 1 of 40 CFR part 60 to measure mercury. Apply the minimum sample volume determination procedures as per the method. (7)(i) Method 26A of Appendix A

- 8 1 of 40 CFR part 60 to determine outlet stack or inlet hydrochloric acid and hydrofluoric acid concentration. (ii) Collect a minimum volume of 2 cubic meters. (8)(i) Method 316 of Appendix A

- 1 of 40 CFR part 6 3 0 to determine outle t stack or inlet formaldehyde. (ii) Collect a minimum volume of 1.0 cubic meter. (9)(i)Method 10 of Appendix A

- 1 of 40 CFR part 60 to determine inlet carbon monoxide concentration. (ii) Collect one 1

- hour test run corresponding ( e.g. , overlapping in time) to each of the three formaldehyde test runs. ( 9 10 ) Method 9 of Appendix A

- 4 1 of 40 CFR part 60 to determine opacity. AST M D7520

- 09 , ―Standard Test Method for Determini n g the Opacity of a Plume in the Outdoor Ambient Atmosphere‖ may be used (incorporated b y reference, see 40 CFR 6 3 .1 4 ) with the following conditions: ( i ) During the digital camera opacity technique (DCOT) certification p rocedure outlined in Section 9.2 of ASTM D7520

- 09, you or the DCOT vendor must pres e nt the plumes in front of various backgr ounds of color and contrast representing conditions anticipated***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 212 of 256 during field use such as blue sky, trees and mixed backgrounds (clouds and/or a sparse tree stand). ( i i ) You must also have standard operating procedures in place including daily or other freq uency quality checks to ensure the equipment is within manufacturing specifications as outline d in Section 8.1 of ASTM D7520

- 09. (iii) You must follow the recordkeeping procedures outlined in § 63.10(b)(1) for the DCOT certification, compliance report, data sheets and all raw unaltered JPEGs used for opacity and certification determination. (iv) You or the DCOT vendor must have a minimum of four (4) independent technology users apply the software to determine the visible opacity of the 300 certification plum es. For each set of 25 plumes, the user may not exceed 15 percent opacity of any one reading and the average error must not exceed 7.5 percent opacity. (v) Use of this approved alternative does not provide or imply a certification or validation of any vend or‘s hardware or software. The onus to maintain and verify the certification and/or training of the DCOT camera, software and operator in accordance with ASTM D7520

- 09 and these requirements is on the facility, DCOT operator and DCOT vendor. (1 0 1 ) Methods to determine the mercury content of manganese ore including a total metals digestion technique, SW

- 846 Method 3052, and***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 213 of 256 a mercury specific analysis method, SW

- 846 Method 7471b (Cold Vapor AA) or Water Method 1631E (Cold Vapor Atomic Fluorescence). (1 1 2 ) Ca lifornia Air Resources Board (CARB) Method 429, Determination of Polycyclic Aromatic Hydrocarbon (PAH) Emissions from Stationary Sources to determine total PAH emissions. The method is available from California Resources Board, 1102 Q Street, Sacramento,
C alifornia 95814, ( http://www.arb.ca.gov/testmeth/vol3/M_429.pdf ). ( 1 2 3 ) The owner or operator may use alternative measurement methods approved by the Administrator following the procedures descr ibed in §63.7(f) of subpart A. (c) Compliance demonstration with the emission standards
. (1) You must conduct an initial performance test for air pollution control devices or vent stacks subject to § 63.1623 (a) through (e) to demonstrate compliance with the applicable emission standards. (2) You must conduct performance tests every 5 years for the air pollution control devices and vent stacks associated with the electric arc furnaces and furnace building ventilation systems. The results of these periodic tes ts will be used to demonstrate compliance with the emission standards in § 63.1623 (a)(1) through (a)( 5 6 ), (b)(1) and (b)(2), as applicable. (3) For any air pollution control device that serves tapping emissions combined with non

- furnace emissions, such as t he MOR process, or equipment associated with crushing and screening, casting***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 214 of 256 or ladle treatment, you must conduct a performance test at least every 5 years. The results of these tests will be used to demonstrate compliance with the emission standards in § 6 3.1623 (c) through (e), as applicable. (4) Compliance is demonstrated for all sources performing emissions tests if the average concentration for the three runs comprising the performance test does not exceed the standard or if you successfully comply with the emission averaging option specified in § 63.1623 (f). (5) Operating Limits . You must establish parameter operating limits according to paragraphs (c)(5)(i) through (c)(5)(vi) of this section. Unless otherwise specified, compliance with each established

o perating limit shall be demonstrated for each 24

- hour operating day. (i) For a wet particulate matter scrubber, you must establish the minimum liquid flow rate and pressure drop as your operating limits during the three

- run performance test. If you use a w et particulate matter scrubber and you conduct separate performance tests for particulate matter, you must establish one set of minimum liquid flow rate and pressure drop operating limits. If you conduct multiple performance tests, you must set the minimum liquid flow rate and pressure drop operating limits at the highest minimum hourly average values established during the performance tests. (ii) For a wet acid gas scrubber, you must establish the minimum liquid flow rate and pH, as your operating limits d uring the three

-***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 215 of 256 run performance test. If you use a wet acid gas scrubber and you conduct separate performance tests for hydrochloric acid or hydrofluoric acid , you must establish one set of minimum liquid flow rate and pH operating limits. If you conduct m ultiple performance tests, you must set the minimum liquid flow rate and pH operating limits at the highest minimum hourly average values established during the performance tests. (iii) For a dry scrubber, dry sorbent injection (DSI) system or activated ca rbon injection system, you must establish the minimum hourly average sorbent or activated carbon injection rate, as measured during the three

- run performance test as your operating limit. (iv) For emission sources with fabric filters that choose to demonst rate continuous compliance through bag leak detection systems you must install a bag leak detection system according to the requirements in § 63.1626 (d), and you must set your operating limit such that the sum duration of bag leak detection system alarms do es not exceed 5 percent of the process operating time during a 6

- month period. (v) If you choose to demonstrate continuous compliance through a particulate matter CEMS, you must determine an operating limit (particulate matter concentration in mg/dscm) dur ing performance testing for initial particulate matter compliance. The operating limit will be the average of the PM filterable results of the three***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 216 of 256 Method 5 or Method 5D of Appendix A

- 3 1 of 40 CFR part 60 performance test runs. To determine continuous com pliance, the hourly average PM concentrations will be averaged on a rolling 30 operating day basis. Each 30 operating day average would have to meet the PM operating limit. (v) For any furnace stack, you must establish a weighted average mercury concentrat ion of the manganese ore being used in the furnace during the emission test. Collect a sample of all ores used in the furnace and prepare a weighted average based on the relative mass of each type of ore used in the furnace charge. (d) Compliance demonstra tion with shop building opacity standards
. (1)(i) If you are subject to § 63.1623 (b)(2), you must conduct initial opacity observations of the shop building to demonstrate compliance with the applicable opacity standards according to §63.6(h)(5), which addre sses the conduct of opacity or visible emission observations. (ii) You must conduct the opacity observations according to EPA Method 9 of 40 CFR part 60, Appendix A

- 4, for a minimum of 60 minutes to include at one least 20 minutes of a tapping period , or at least 20 minutes of a tapping period, whichever is less, in at least two of the three runs to coincide with each performance test run of the associated control device.
.***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 217 of 256 (iii) Repeat this opacity observation at least every 5 years during the periodic perfo rmance tests required pursuant to paragraph s (c)(2) of this section
. (2)(i) When demonstrating initial compliance with the shop building opacity standard, as required by paragraph (d)(1) of this section, you must simultaneously establish parameter values f or one of the following: the capture system fan motor amperes and all capture system damper positions, the total volumetric flow rate to the air pollution control device and all capture system damper positions, or volumetric flow rate through each separate ly ducted hood that comprises the capture system. (ii) You may petition the Administrator to reestablish these parameters whenever you can demonstrate to the Administrator's satisfaction that the electric arc furnace operating conditions upon which the par ameters were previously established are no longer applicable. The values of these parameters determined during the most recent demonstration of compliance must be maintained at the appropriate level for each applicable period. (iii) You will demonstrate co mpliance by installing, operating, and maintaining a digital differential pressure device that shows you are maintaining the shop building under negative pressure to at least 0.007 inches of water. (3) You will demonstrate continuing compliance with the op acity standards by following the monitoring requirements specified in***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 218 of 256 § 63.1626 (h) and the reporting and recordkeeping requirements specified in § 63.1629 (b)(5) xx . (e) Compliance demonstration with the operational and work practice standards (1) Process fug itives sources . You will demonstrate compliance by developing and maintaining a process fugitives ventilation plan, by reporting any deviations from the plan and by taking necessary corrective actions to correct deviations or deficiencies. (2) Outdoor fugi tive dust sources . You will demonstrate compliance by developing and maintaining an outdoor fugitive dust control plan, by reporting any deviations from the plan and by taking necessary corrective actions to correct deviations or deficiencies. (3) Baghouse s equipped with bag leak detection systems . You will demonstrate compliance with the bag leak detection system requirements by developing analysis and supporting documentation demonstrating conformance with EPA guidance and specifications for bag leak dete ction systems in §60.57c(h). 9. Section 63.1626 is added to read as follows: § 63.1626 What m onitoring requirements must I meet? . (a) Baghouse Monitoring . You must prepare, and at all times operate according to, a standard operating procedures manual that d escribes in detail procedures for inspection, maintenance, and bag leak detection and corrective action plans for all baghouses (fabric filters or cartridge filters) that are used to control process vents,***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 219 of 256 process fugitive, or outdoor fugitive dust emissio ns from any source subject to the emissions standards in § 63.1623 , 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) Unless the baghouse is equipped with a bag leak detection system, the procedures that you specify in the standard operating procedures manual for inspections and routine maintenance mus t, at a minimum, include the requirements of paragraphs (c)(1) and (c)(2) of this section. (1) You must observe the baghouse outlet on a daily basis for the presence of any visible emissions. (2) In addition to the daily visible emissions observation, you must conduct the following activities: (i) Weekly confirmation that dust is being removed from hoppers through visual inspection, or equivalent means of ensuring the proper functioning of removal mechanisms. (ii) Daily check of compressed air supply for pu lse

- jet baghouses. (iii) An appropriate methodology for monitoring cleaning cycles to ensure proper operation. (iv) Monthly check of bag cleaning mechanisms for proper functioning through visual inspection or equivalent means.***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 220 of 256 (v) Quarterly visual check of bag tension on reverse air and shaker

- type baghouses to ensure that the bags are not kinked (kneed or bent) or lying on their sides. Such checks are not required for shaker

- type baghouses using self

- tensioning (spring loaded) devices. (vi) Quarterly confi rmation of the physical integrity of the baghouse structure through visual inspection of the baghouse interior for air leaks. (vii) Semiannual inspection of fans for wear, material buildup, and corrosion through visual inspection, vibration detectors, or

e quivalent means. (d) Bag leak detection system
. (1) For each baghouse used to control emissions from an electric arc furnace or building ventilation system, you must install, operate, and maintain a bag leak detection system according to paragraphs (d)(2) through (d)(4) of this section, unless a system meeting the requirements of paragraph (i) of this section, for a CEMS and continuous emissions rate monitoring system, is installed for monitoring the concentration of particulate matter. You may choose to i nstall, operate and maintain a bag leak detection system for any other baghouse in operation at the facility according to paragraphs (d)(2) through (d)(4) of this section. (2) The procedures you specified in the standard operating procedures manual for bag house maintenance must include, at a minimum, a preventative maintenance schedule that is consistent with***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 221 of 256 the baghouse manufacturer's instructions for routine and long

- term maintenance. (3) Each bag leak detection system must meet the specifications and re quirements in paragraphs (d)(3)(i) through (d)(3)(viii) of this section. (i) The bag leak detection system must be certified by the manufacturer to be capable of detecting PM emissions at concentrations of 1.0 milligram per dry standard cubic meter (0.0004 4 grains per actual cubic foot) or less. (ii) The bag leak detection system sensor must provide output of relative PM loadings. (iii) The bag leak detection system must be equipped with an alarm system that will alarm when an increase in relative particul ate loadings is detected over a preset level. (iv) You must install and operate the bag leak detection system in a manner consistent with the guidance provided in ―Office of Air Q q uality Planning and Standards (OAQPS) Fabric Filter Bag Leak Detection Guida nce‖ EPA

- 454/R

- 98

- 015, September 1997 (incorporated by reference) and the manufacturer's written specifications and recommendations for installation, operation, and adjustment of the system. (v) The initial adjustment of the system must, at a minimum,

cons ist of establishing the baseline output by adjusting the***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 222 of 256 sensitivity (range) and the averaging period of the device, and establishing the alarm set points and the alarm delay time. (vi) Following initial adjustment, you must not adjust the sensitivity or r ange, 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 th e 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. (vii) You must install the bag leak detector downstream of the bag house. (viii) Where multiple detectors are required, the system's instrumentation and alarm may be shared among detectors. (vii) You must install the bag leak detection sensor downstream of the fabric filter. (viii) Where multiple detectors are required, the system‘s instrumentation and alarm may be shared among detectors. (4) 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 ca se 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 as well as the corrective***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 223 of 256 actions taken to minimize emissions as specif ied in paragraphs (d)(4)(i) and (d)(4)(ii) of this section. (i) The procedures used to determine the cause of the alarm must be initiated within 30 minutes of the alarm. (ii) The cause of the alarm must be alleviated by taking the necessary corrective acti on(s) that may include, but not be limited to, those listed in paragraphs (d)(4)(i)(A) through (d)(4)(i)(F) of this section. (A) Inspecting the baghouse for air leaks, torn or broken filter elements, or any other malfunction that may cause an increase in

e missions. (B) Sealing off defective bags or filter media. (C) Replacing defective bags or filter media, or otherwise repairing the control device. (D) Sealing off a defective baghouse compartment. (E) Cleaning the bag leak detection system probe, or otherw ise repairing the bag leak detection system. (F) Shutting down the process producing the particulate emissions. (e) If you use a wet particulate matter scrubber, you must collect the pressure drop and liquid flow rate monitoring system data according to § 6 3.162 9 6 , reduce the data to 24

- hour block averages and maintain the 24

- hour average pressure drop and liquid flow

- rate at or***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 224 of 256 above the operating limits established during the performance test according to § 63.1625 (c)(5)(i). (f) [ Reserved ] (g) If you use a dry scrubber, DSI sorbent injection or carbon injection, you must collect the sorbent or carbon injection rate monitoring system data for the dry scrubber, DSI or ACI according to § 63.162 9 6 , reducing the data to 24

- hour block averages; and maintain the 24

- hour average sorbent or carbon injection rate at or above the operating limit established during the performance test according to § 63.1625 (c)(5)(iii). (h) Shop building opacity . In order to demonstrate continuous compliance with the opacity standards in § 63.1623 , you must comply with one of the monitoring options in paragraphs (h)(1), (h)(2), (h)(3) or (h)(8) of this section. The selected option must be consistent with that selected during the initial performance test described in § 63.1625 (d)(2). Alternat ively, you may use the provisions of §63.8(f) to request approval to use an alternative monitoring method. (1) You must check and record the control system fan motor amperes and capture system damper positions once per shift. (2) You must install, calibrat e, and maintain a monitoring device that continuously records the volumetric flow rate through each separately ducted hood.***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 225 of 256 (3) You must install, calibrate, and maintain a monitoring device that continuously records the volumetric flow rate at the inlet of the air pollution control device and check and record the capture system damper positions once per shift. (4) The flow rate monitoring devices must meet the following requirements: (i) Be installed in an appropriate location in the exhaust duct such that reproducible flow rate monitoring will result. (ii) Have an accuracy ±10 percent over its normal operating range and be calibrated according to the manufacturer's instructions. (5) The Administrator may require you to demonstrate the accuracy of the monito ring device(s) relative to Methods 1 and 2 of Appendix A

- 1 of part 60 of this chapter. (6) Failure to maintain the appropriate capture system parameters (fan motor amperes, flow rate, and/or damper positions) establishes the need to initiate corrective act ion as soon as practicable after the monitoring excursion in order to minimize excess emissions. (7) You must install, operate, and maintain a digital differential pressure monitoring system to continuously monitor each total enclosure as described in para graphs (h)(7)(i) through (h)(7)(v) of this section.***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 226 of 256 (i) You must install and maintain a minimum of one building digital differential pressure monitoring system at each of the following three walls in the shop building: (A) The leeward wall. (B) The windwar d wall. (C) 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 p lus or minus ten meters of the midpoint of a straight 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. (ii) The digital differential pressure monitoring systems mu st be certified by the manufacturer to be capable of measuring and displaying negative pressure in the range of 0.01 to 0.2 mm mercury (0.005 to 0.11 inches of water) with a minimum accuracy of plus or minus 0.001 mm mercury (0.0005 inches of water). (iii ) You must equip each digital differential pressure monitoring system with a continuous recorder. (iv) 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.***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 227 of 256 (v) You must equip the digital differential pressure monitoring system with a backup, uninterruptible power supply to ensure continuous operation of the monitoring system during a power outage. (8) If you comply with the requirements specified in § 63.1623 (b)(3), you must install, operate and maintain a continuous monitoring system for the measurement of manganese concentrations in air as specified in paragraphs (h)(8)(i) through (h)(8) ( (v) of th is section. (i) You must operate a minimum of two compliance monitors sufficient in location and frequency of sample collection to detect expected maximum concentrations of manganese in air due to emissions from the affected source(s) in accordance with a written plan as described in paragraph (h)(8)(ii) of this section and approved by the Administrator. The plan must include descriptions of the sampling and analytical methods used. At least one 24

- hour sample must be collected from each monitor every 6 da ys except during periods or seasons exempted by the Administrator . All records pertaining to the implementation and results of the compliance monitoring shall be kept

on - site for a period of no less than 5 years from the date of generation of the record. (ii) You must submit a written plan describing and explaining the basis for the design and adequacy of the compliance monitoring network, the sampling, sample handling and custody, analytical procedures, quality assurance procedures, recordkeeping procedur es***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 228 of 256 and any other related procedures, and the justification for any seasonal, background, or other data adjustments within [45 DAYS AFTER EFFECTIVE DATE OF FINAL RULE]. (iii) The Administrator at any time may require changes in, or expansion of, the monitor ing program, including additional sampling and, more frequent sampling, revisions to the analytical protocols and network design. (iv) If all rolling 10

- sample average concentrations of manganese in air measured by the compliance monitoring system are less than 50 percent of the manganese concentration limits specified in § 63.1623 (b)(3)(i) for 3 consecutive years, you may submit a proposed revised plan to reduce the monitoring sampling and analysis frequency to the Administrator for review. If approved by t he Administrator, you may adjust your monitoring accordingly. (v) For any subsequent period, if any rolling 10

- sample average manganese concentration in air measured at any monitor in the monitoring system exceeds 50 percent of the concentration limits
spe cified in § 63.1623 (b)(3), you must resume monitoring pursuant to paragraph (h)(8)(i)(A) of this section at all monitors until another 3 consecutive years of manganese concentration measurements is demonstrated to be less than 50 percent of the manganese

co ncentration limits specified in § 63.1623 (b)(3). (i) Furnace Capture System . You must perform monthly inspections of the equipment that is important to the performance of the furnace***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 229 of 256 capture system, including capture of both primary and tapping emissions
. T his inspection must include an examination of the physical condition of the equipment ( e.g. , has hood location been changed or obstructed because of contact with cranes or ladles), to include suitable for detecting holes in ductwork or hoods, flow constric tions in ductwork due to dents or accumulated dust, and operational status of flow rate controllers (pressure sensors, dampers, damper switches, etc.). Any deficiencies must be recorded and proper maintenance and repairs performed. (j) Requirements for sou rces using CMS . If you demonstrate compliance with any applicable emissions limit through use of a continuous monitoring system (CMS), where a CMS includes a continuous parameter monitoring system (CPMS) as well as a continuous emissions monitoring system (CEMS), you must develop a site

- specific monitoring plan and submit this site

- specific monitoring plan, if requested, at least 60 days before your initial performance evaluation (where applicable) of your CMS. Your site

- specific monitoring plan must addres s the monitoring system design, data collection, and the quality assurance and quality control elements outlined in this section and in §63.8(d). You must install, operate, and maintain each CMS according to the procedures in your approved site

- specific

mo nitoring plan. Using the process described in §63.8(f)(4), you may request approval of monitoring system quality assurance and quality control procedures alternative to those specified in paragraphs***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 230 of 256 (j)(1) through (j)(6) of this section in your site

- specif ic monitoring plan. (1) The performance criteria and design specifications for the monitoring system equipment, including the sample interface, detector signal analyzer and data acquisition and calculations; (2) Sampling interface location such that the mo nitoring system will provide representative measurements; (3) Equipment performance checks, system accuracy audits, or other audit procedures; (4) Ongoing operation and maintenance procedures in accordance with the general requirements of §63.8(c)(1) and (c)(3); and (5) Conditions that define a continuous monitoring system that is out of control consistent with §63.8(c)(7)(i) and for responding to out of control periods consistent with §63.8(c)(7)(ii) and (c)(8) or Appendix A to this subpart, as applicabl e. (6) Ongoing recordkeeping and reporting procedures in accordance with provisions in §63.10(c), (e)(1) and (e)(2)(i) and Appendix A to this subpart, as applicable. (k) If you have an operating limit that requires the use of a CPMS, you must install, oper ate, and maintain each continuous parameter monitoring system according to the procedures in paragraphs (k)(1) through (k)(7) of this section. (1) The continuous parameter monitoring system must complete a minimum of one cycle of operation for each success ive 15

- minute***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 231 of 256 period. You must have a minimum of four successive cycles of operation to have a valid hour of data. (2) Except for periods of monitoring system malfunctions, repairs associated with monitoring system malfunctions, and required monitoring sys tem quality assurance or quality control activities (including, as applicable, system accuracy audits and required zero and span adjustments) , you must operate the CMS at all times the affected source is operating. A monitoring system malfunction is any

su dden, infrequent, not reasonably preventable failure of the monitoring system to provide valid data. Monitoring system failures that are caused in part by poor maintenance or careless operation are not malfunctions. You are required to complete monitoring system repairs in response to monitoring system malfunctions and to return the monitoring system to operation as expeditiously as practicable
. (3) You may not use data recorded during monitoring system malfunctions, repairs associated with monitoring syst em malfunctions, or required monitoring system quality assurance or control activities in calculations used to report emissions or operating levels. You must use all the data collected during all other required data collection periods in assessing the oper ation of the control device and associated control system. (4) Except for periods of monitoring system malfunctions, repairs associated with monitoring system malfunctions , and required quality monitoring system quality assurance or quality control***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 232 of 256 activi ties (including, as applicable, system accuracy audits and required zero and span adjustments), failure to collect required data is a deviation of the monitoring requirements. (5) You must conduct other CPMS equipment performance checks, system accuracy au dits, or other audit procedures specified in your site

- specific monitoring plan at least once every 12 months. (6) You must conduct a performance evaluation of each CPMS in accordance with your site

- specific monitoring plan. (7) You must record the results of each inspection, calibration, and validation check. (l) For a CPMS for measuring gaseous flow
. : (1) Use a flow sensor with a measurement sensitivity of 5 percent of the flow rate or 10 cubic feet per minute, whichever is greater, (2) Check all mechanic al connections for leakage at least every month, and (3) Perform a visual inspection at least every 3 months of all components of the flow CPMS for physical and operational integrity and all electrical connections for oxidation and galvanic corrosion if y our flow CPMS is not equipped with a redundant flow sensor. (m) For a CPMS for measuring liquid flow : . (1) Use a flow sensor with a measurement sensitivity of 2 percent of the flow rate and***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 233 of 256 (2) Reduce swirling flow or abnormal velocity distributions due
t o upstream and downstream disturbances. (n) For a CPMS for measuring pressure : . (1) Minimize or eliminate pulsating pressure, vibration, and internal and external corrosion and (2) Use a gauge with a minimum tolerance of 1.27 centimeters of
water or a tran sducer with a minimum tolerance of 1 percent of the
pressure range. (3) Perform checks at least once each process operating day to ensure pressure measurements are not obstructed ( e.g. , check for pressure tap pluggage daily). (o) For a CPMS measuring flow of sorbent or carbon ( e.g., weigh belt, weigh hopper, or hopper flow measurement device) , . I i nstall and calibrate the device in accordance with manufacturer's procedures and specifications. (p) For a CPMS for measuring pH : . (1) E nsure the sample is proper ly mixed and representative of the fluid to be measured. (2) C heck the pH meter's calibration on at least two points every 8 hours of process operation. (q) Particulate Matter CEMS . If you are using a CEMS to measure particulate matter emissions to meet re quirements of this subpart, you must install, certify, operate, and maintain the particulate***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 234 of 256 matter CEMS as specified in paragraphs ( q n )(1) through ( q n )( 4 3 ) of this section. (1) You must conduct a performance evaluation of the PM CEMS according to the appl icable requirements of §60.13, and Performance Specification 11 at 40 CFR part 60, Appendix B of this chapter. (2) During each PM correlation testing run of the CEMS required by Performance Specification 11 at 40 CFR part 60, Appendix B of this chapter, PM and oxygen (or carbon dioxide) collect data concurrently (or within a 30

- to 60

- minute period) by both the CEMS and by conducting performance tests using Method 5 or 5D at 40 CFR part 60, Appendix A

– 3 or Method 17 at 40 CFR part 60, Appendix A

– 6 of this ch apter. (3) Perform quarterly accuracy determinations and daily calibration drift tests in accordance with Procedure 2 at 40 CFR part 60, Appendix F of this chapter. Relative Response Audits must be performed annually and Response Correlation Audits must be performed every 3 years. (4) Within 60 days after the date of completing each CEMS relative accuracy test audit or performance test conducted to demonstrate compliance with this subpart, you must submit the relative accuracy test audit data and performanc e test data to the EPA by successfully submitting the data electronically into the EPA‘s Central Data Exchange by using the Electronic Reporting Tool (see http://www.epa.gov/ttnchie1/ert/ ).***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 235 of 256 (r) Ore Sampling Requirements
. (1) Following completion of the in itial compliance demonstration where you established a weighted average mercury concentration of the manganese ore being used in the furnace during the emission test, you must determine the weighted average mercury concentration of the manganese ores used in the process on a monthly basis. If you introduce a new type of ore, you must analyze the sample according the methods specified in § 63.1625 (b)(11) and factor the results into your updated weighted average mercury concentration. (2) If the weighted avera ge mercury concentration is more than 10 percent higher than the weighted average operating limit, and you are operating an activated carbon injection system, you must reassess the activated carbon injection rate and revise the rate according to procedures established in your CMS monitoring plan. (3) If the weighted average mercury concentration is more than 10 percent higher than the weighted average operating limit, and you are not operating an activated carbon injection system, you must retest the contro l device within 30 days to demonstrate compliance with the mercury emission limit and establish a new weighted average mercury concentration and associated activated carbon injection rate. 10. Section 63.1627 is added to read as follows: § 63.1627 What is a n affirmative defense for exceedence of an emission s limit during malfunction?***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 236 of 256 In response to an action to enforce the standards set forth in paragraph § 63.1623 you may assert an affirmative defense to a claim for civil penalties for exceedances of such s tandards that are caused by malfunction, as defined at 40 CFR 63.2. Appropriate penalties may be assessed, however, if the respondent fails to meet its 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 meet the notification requirements in paragraph (b) of this section, and must prove by a prepondera nce of evidence that: (1) The excess emissions: (i) Were 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; and (ii) Could not h ave been prevented through careful planning, proper design or better operation and maintenance practices; and (iii) Did not stem from any activity or event that could have been foreseen and avoided, or planned for; and (iv) Were not part of a recurring pat tern indicative of inadequate design, operation, or maintenance; and (2) Repairs were made as expeditiously as possible when the applicable emission limitations were being exceeded. Off

- shift and***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 237 of 25 6 overtime labor were used, to the extent practicable to make these repairs; and (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; and (4) If the excess emissions resulted from a bypass of control
eq uipment or a process, then the bypass was unavoidable to prevent loss of life, personal injury, or severe property damage; and (5) All possible steps were taken to minimize the impact of the excess emissions on ambient air quality, the environment and huma n health; and (6) All emissions monitoring and control systems were kept in operation if at all possible, consistent with safety and good air pollution control practices; and (7) All of the actions in response to the excess emissions were documented by pro perly signed, contemporaneous operating logs; and (8) At all times, the facility was operated in a manner consistent with good practices for minimizing emissions; and (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 t hat were the result of the malfunction.***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 238 of 256 (b) Notification
. (1) If you experience an exceedence of the facilities‘ emission limit(s) during a malfunction, you must notify the EPA Administrator by telephone or facsimile (FAX) transmission as soon as possible , but no later than two (2) business days after the initial occurrence of the malfunction, if you wish to avail yourself of an affirmative defense to civil penalties for that malfunction. (2) You must also submit a written report to the EPA Administrator, within 45 days of the initial occurrence of the exceedence of the standard in § 63.1623 , to demonstrate, with all necessary supporting documentation, that you have met the requirements set forth in paragraph (a) of this section. (3) You may seek an exten sion 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, you are subject to the requirement to submit such report within 45 days of the initial occurrence of the exceedances. 11. Section 63.1628 is added to read as follows: § 63.1628 What notification requirements must I meet? (a) You must comply with all of the notification requirements of §63.9 of subpart A, General Provisions. Electronic notifications are encouraged when possible.***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 239 of 256 (b)(1) You must submit the process fugitives ventilation plan required under § 63.1624 (a), the outdoor fugitive s dust control plan required under § 63.1624 (b), the site

- specific monitoring plan for CMS required under § 63.1626 (j), the standard operating procedures manual for baghouses required under § 63.1626 (a) and the manganese monitoring alternative plan required under § 63.1626 (h)(8) to the Administrator or delegated au thority along with a notification that you are seeking review and approval of these plans and procedures. You must submit this notification no later than [ 1 YEAR AFTER EFFECTIVE DATE OF FINAL
RULE ]. For sources that commenced construction or reconstruction after [ EFFECTIVE DATE OF FINAL RULE ], you must submit this notification no later than 180 days before startup of the constructed or reconstructed ferromanganese or silicomanganese production facility. For an affected source that has received a constructio n permit from the Administrator or delegated authority on or before [ EFFECTIVE DATE OF FINAL RULE ], you must submit this notification no later than [ 1 YEAR AFTER EFFECTIVE DATE OF FINAL RULE ]. (2) The plans and procedures documents submitted as required

un der paragraph (b)(1) of this section 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. 12. Section 63.1629 is added to read as follows: § 63.1629 Wha t recordkeeping and reporting requirements must I meet?***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 240 of 256 (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 maintaine d in a form suitable and readily available for expeditious review, according to §63.10(b)(1). However, electronic recordkeeping and reporting is encouraged, and required for some records and reports. (2) Records must be kept on site for at least 2 years a fter the date of occurrence, measurement, maintenance, corrective action, report, or record, according to §63.10(b)(1). (b) You must maintain, for a period of 5 years, records of the information listed in paragraphs (b)(1) through (b)(1 3 2 ) 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

ex planation 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 § 63.1626 (a) as part of the practices described in the standard operating proced ures manual for baghouses required under § 63.1626 (c).***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 241 of 256 (4) Electronic records of the pressure drop and water flow rate values for wet scrubbers used to control particulate matter emissions as required in § 63.1626 (e) , identification of periods when the 1

- ho ur average pressure drop and water flow rate values below the established minimum established and an explanation of the corrective actions taken. (5) Electronic records of the shop building capture system monitoring required under § 63.1626 (h)(1) through (h )(3), (h)(7) and (h)(8) , as applicable, identification of periods when the capture system parameters were not maintained or the manganese concentration exceeded the rolling 10

- sample concentration level as required under § 63.1623 (b)(3) and an explanation of the corrective actions taken. (6) Records of the results of monthly inspections of the furnace capture system required under § 63.1626 (i). (7) Electronic records of the continuous flow monitors or pressure monitors required under § 63.1626 (j) and (k) and an identification of periods when the flow rate or pressure was not maintained as required in § 63.1626 (e). (8) Electronic records of the output of any CEMS installed to monitor particulate matter emissions meeting the requirements of § 63.1626 (j) (9) Recor ds of the total sorbent injection rate required under § 63.1626 (k).***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 242 of 256 (10) Records of the occurrence and duration of each startup and/or shutdown. (1 1 0 ) Records of the occurrence and duration of each malfunction of operation ( i.e. , process equipment) or the a ir pollution control equipment and monitoring equipment. (1 2 1 ) Records of actions taken during periods of malfunction to minimize emissions in accordance with § 63.1623 (g), including corrective actions to restore malfunctioning process and air pollution co ntrol and monitoring equipment to its normal or usual manner of operation. (1 3 2 ) Records that explain the periods when the procedures outlined in the process fugitives ventilation plan required under § 63.1624 (a), the fugitives dust control plan required un der § 63.1624 (b), the site

- specific monitoring plan for CMS required under § 63.1626 (j), the standard operating procedures manual for baghouses required under § 63.1626 (a) and the manganese monitoring alternative plan required under § 63.1626 (h)(8) were not fo llowed and the corrective actions taken. (c) 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 frequently than specified under §63.10(e)(3) of the General Provisions.***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 243 of 256 (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 Adm inistrator. (d) In addition to the information required under the applicable sections of §63.10, you must include in the reports required under paragraph (c) of this section the information specified in paragraphs (d)(1) through (d)(8) of this section. (1) R eports that explain the periods when the procedures outlined in the process fugitives ventilation plan required under § 63.1624 (a), the fugitives dust control plan required under § 63.1624 (b), the site

- specific monitoring plan for CMS required under § 63.16 26 (j), the standard operating procedures manual for baghouses required under § 63.1626 (a) and the manganese monitoring alternative plan required under § 63.1626 (h)(8) were not followed and the corrective actions taken. (2) R eports that identify the periods w hen the average hourly pressure drop or flow rate of venturi scrubbers used to control particulate emissions dropped below the levels established in § 63.1626 (e) and an explanation of the corrective actions taken. (3) Bag leak detection system
. R eports incl uding the following information: (i) Records of all alarms.***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 244 of 256 (ii) Description of the actions taken following each bag leak detection system alarm. (4) Reports of the shop building capture system monitoring required under § 63.1626 (h)(1) through (h)(3), (h)(7 ) and (h)(8) , as applicable, identification of periods when the capture system parameters were not maintained or the manganese concentration exceeded the rolling 10

- sample concentration level as required under § 63.1623 (b)(3) and an explanation of the corr ective actions taken. (5) Reports of the results of monthly inspections of the furnace capture system required under § 63.1626 (g). (6) Reports of the CPMS required under § 63.1626 , an identification of periods when the monitored parameters were not maintain ed as required in § 63.1626 , and corrective actions taken. (7) 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 perio d and caused or may have caused any applicable emissions limitation to be exceeded. The report must also include a description of actions taken by an owner or operator during a malfunction of an affected source to minimize emissions in accordance with § 63. 1623 (g), including actions taken to correct a malfunction. (8) You must submit records pursuant to paragraphs (d)(8)(i) through (d)(8)(iii) of this section.***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 245 of 256 (i) 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 the EPA‘s Central Data Exchange by using the Electronic Reporting Tool (see http://www.epa.gov/ttnchie1/ert/ ). Only data collected using test methods c ompatible with the Electronic Reporting Tool are subject to this requirement to be submitted electronically into the EPA‘s WebFIRE database. (ii) Within 60 days after the date of completing each CEMS performance evaluation test, as defined in §63.2 and re quired by this subpart, you must submit the relative accuracy test audit data electronically into the EPA‘s Central Data Exchange by using the Electronic Reporting Tool as mentioned in paragraph (d)( 8 9 )(i) of this section. Only data collected using test me thods compatible with the Electronic Reporting Tool are subject to this requirement to be submitted electronically into the EPA‘s WebFIRE database. (iii) All reports required by this subpart not subject to the requirements in paragraph (d)( 8 9 )(i) and (d)( 8 9 )(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 spre adsheet, on CD or hard copy). The Administrator retains the right to require submittal of reports***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 246 of 256 subject to paragraph (d)(9)(i) and (d)(9)(ii) of this section in paper format. 1 3 . Section 63.1630 is added to read as follows: §63.16 30 Who implements and en forces this subpart? (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 implem entation 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 s tate, 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 requirements in §§ 63.1620 and 63.1621 and 63.1623 and 63.1624
. (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.***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 247 of 256 (3) Approval of major alternatives to monitoring under §63.8(f), as defined in §63.90, and as requ ired 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. 14. Section 63.1650 is amended by :

a. Revising paragraph (d); b. R emoving and reserving paragrap h (e)( 1 ); and

c . R evising paragraph (e)(2) to read as follows: §63.16 50 Applicability and Compliance Dates.
* * * * * (d) Table 1 to this subpart specifies the provisions of subpart A of this part that apply to owners and operators of ferroalloy production facilities subject to this subpart. (e) * * * (1) [Reserved] (2) Each owner or operator of a new or reconstructed affected source that commences construction or reconstruction after August 4, 1998 and before [INSERT DATE OF PUBLICATION OF THE PROPOSED RUL E IN THE FEDERAL REGISTER], must comply with the requirements of this subpart by May 20,1999 or upon startup of operations, whichever is later. 1 5 . Section 63.165 1 is amended by adding a definition for ―Affirmative defense‖ in alphabetic order to read as f ollows :***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 248 of 256 §63.165 1 Definitions. 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 obj ectively evaluated in a judicial or administrative proceeding.

* * * * * 16. Section 63.1652 is amended by adding paragraph (f) to read as follows: §63.1652 Emission standards.
* * * * * (f) 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 bei ng 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. 17. Section 63.1656 is amended by: a. Adding paragraph (a)(6); b. Revising paragraph (e)(1); and c. Removing and reserving paragraph (e)(2)(ii) to read as follows:***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 249 of 256 §63.1656 Performance testing, test methods, and compliance demonstrations. (a) * * * (6) You mus t conduct the performance tests specified in paragraph (c) of this section under such conditions as the Administrator specifies based on representative performance of the affected source for the period being tested. Upon request, you must make available to the Administrator such records as may be necessary to determine the conditions of performance tests.
* * * * * (e) * * * (1) Fugitive dust sources
. Failure to have a fugitive dust control plan or failure to report deviations from the plan and take

neces sary corrective action would be a violation of the general duty to ensure that fugitive dust sources are operated and maintained in a manner consistent with good air pollution control practices for minimizing emissions per §63. 1652(f)
. (2) * * * (ii) [Rese rved]
* * * * * 18. Section 63.1657 is amended by: a. Revising paragraph (a)(6); b. Revising paragraph (b)(3); and c. Revising paragraph (c)(7) to read as follows:***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 250 of 256 §63.1657 Monitoring requirements. (a) * * * (6) Failure to monitor or failure to take correc tive action under the requirements of paragraph (a) of this section would be a violation of the general duty to operate in a manner consistent with good air pollution control practices that minimizes emissions per §63.1652(f). (b) * * * (3) Failure to mon itor or failure to take corrective action under the requirements of paragraph (b) of this section would be a violation of the general duty to operate in a manner consistent with good air pollution control practices that minimizes emissions per §63.1652(f). (c) * * * (7) Failure to monitor or failure to take corrective action under the requirements of paragraph (c) of this section would be a violation of the general duty to operate in a manner consistent with good air pollution control practices that minimiz es emissions per §63.1652(f). 19. Section 63.1659 is amended by revising paragraph (a)(4) to read as follows: (a) * * * (4) Reporting malfunctions
. If a malfunction occurred during the reporting period, the report must include the number, duration, and a***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 251 of 256 b rief description for each type of malfunction which occurred during the reporting period and which caused or may have caused any applicable emission limitation to be exceeded. The report must also include a description of actions taken by an owner or opera tor during a malfunction of an affected source to minimize emissions in accordance with §63.1652(f) , including actions taken to correct a malfunction
. * * * * * 20. Section 63.1660 is amended by: a. Revising paragraphs (a)(2)(i) and (a)(2)(ii); and b. Rem oving and reserving paragraphs (a)(2)(iv) and (a)(2)(v) to read as follows: (a) * * * (2) * * * (i) Records of the occurrence and duration of each malfunction of operation ( i.e. , process equipment) or the air pollution control equipment and monitoring equi pment; (ii) Records of actions taken during periods of malfunction to minimize emissions in accordance with §63.1652(f), including corrective actions to restore malfunctioning process and air pollution control and monitoring equipment to its normal or usua l manner of operation;
* * * * * (iv) [Reserved]***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 252 of 256 (v) [Reserved]
* * * * * 21 . Section 63.16 62 is added to read as follows: §63.1662 Affirmative d efense for e xceedance of e mission l imit d uring

m alfunction
. In response to an action to enforce the standards s et forth in §63. 1652 through §63.1654 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 40 CFR 63.2. Appropriate penalties may be assessed, however, if you f ail 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) 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 monito ring equipment, process equipment, or a process to operate in a normal or usual manner, and (ii) Could not have been prevented through careful planning, proper design or better operation and maintenance practices; and***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 253 of 256 (iii) Did not stem from any activity or event that could have been foreseen and avoided, or planned for; and (iv) Were not part of a recurring pattern indicative of inadequate design, operation, or maintenance; and (2) Repairs were made as expeditiously as possible when the applicable emissio n limitations were being exceeded. Off

- shift and overtime labor were used, to the extent practicable to make these repairs; and (3) The frequency, amount and duration of the excess emissions (including any bypass) were minimized to the maximum extent pract icable during per iods of such emissions; and (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; and (5) All possible ste ps were taken to minimize the impact of the excess emissions on ambient air quality, the enviro nment and human health; and (6) All emissions monitoring and control systems were kept in operation if at all possible, consistent with safety and good air pollu tion control practices; and (7) All of the actions in response to the excess emissions were documented by properly signed, contempor aneous operating logs; and (8) At all times, the affected source was operated in a manner consistent with good practices for minimizing emissions; and***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 254 of 256 (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 it s emission limit(s) during a malfunction shall notify the Administrator by telephone or facsimile (FAX) transmission as soon as possible, but no later than two business days after the initial occurrence of the malfunction, if it wishes to avail itself of a n affirmative defense to civil penalties for that malfunction. The owner or operator seeking to assert an affirmative defense shall also submit a written report to the Administrator within 45 days of the initial occurrence of the exceedance of the standard in §63. 1652 through §63.1654 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 day s 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.***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 255 of 256 22. Add Table 1 to the end of subpart XXX to read as follows: Table 1 to Subpart XXX of Part 63 — General Provisions Applicability to Subpart XXX Reference Applies to subpart XXX 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 63.1623 (g) and 63.1652(f) 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) N o 63.6(f)(1) No 6.6(f)(2)

– (f)(3) 63.6(g) Yes 63.6(h)(1) No 63.6(h)(2)

– (h)(9) Yes . 63.6(i) Yes 63.6(j) Yes §63.7(a)

- (d) Yes §63.7(e)(1) No See 63.1625 (a)(5) and 63.1656(a)(6) §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 63.1623 (g) and 63.1652(f) 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)thr ough (3 ), (h)(5) and (6), (i) and (j) Yes

63.9(f) Yes***E.O. 12866 Review – Draft ( 10 / 2 8 /2011) – Do Not Cite, Quote or Release During Review *** Page 256 of 256 Reference Applies to subpart XXX Comment 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 63.1629 and 63.1660 for recordkeeping of occurrence and duration of malfunctions and recordkeeping of a ctions 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 63.1629 and 63.1630 for recordkeeping of malfunctions. 63.10(c)( 12)

- (c)(14) Yes 63.10(c)(15) No 63.10(d)(1)

- (4) Yes 63.10(d)(5) No See 63.1629 (d)(8) and 63.1659(a)(4) for reporting of malfunctions. 63.10(e)

- ((f) Yes 63.11 No Flares will not be used to comply with the emission limits 63.12 to 63.15 Yes