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# Document

Number: 

# 45 ) F R 10-26-198 4

Docket Number: 

# A-84-3 3

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0

. \\t,' t^i' ' «-^J^r^ : 

### Federa l Registe r

/ Vol

. 49 , No

. 20 9 /

Friday , Octobe r

26 , 193 4 /

Propose dRule s 4321 1 P. 2

ENVHTONMENYA L PROTECTIO N 

# mwcv CC CF R Part s 5 1 an d 5 2 lAD-FR L 2683-1a ] 

### Re^uiremenll s Um Preparation , Avtop'tiaR

- m& Submitta l o f ImplernentMJa n Plans ; Approva l an d Promulgatio n oi? Implementatio n Plan s AGENCV : Environmenta l Protectio n Agenc y (EPA)

. ACTION: Proposa l o f

amendment s t o regulations

. SUR5B3ARV

: Th e variou s EP A regulation s tha t gover n ne w constructio n unde r th e Clea n Ai r

Ac t (th e "Act" ) generall y appl y t o "major " ne w stationar y source s o f ai r pollutio n an d"major " modification s o f

existin g sources
. The y requir e fugitiv e emission s t o b e include d i n threshol dapplicabilit y determination s o f wheths r ane w projec t

i s "major, " bu t onl y fo r 3 0 categorie s o f

sources
. EP A her e propose s t o ad dsurfac e coa l mine s t o th e curren t

lis t of 3 0 categorie s an d reopen s th e commen t

perio do n th e curren t list

. EP A i s als o solicitin g publi c commen t o n a n interpretiv e rulin g regardin g sectio n 302(j ) of th e Act , 4 2 U.S.C

. 7602(j) , a s i t

relate s t o th e revie w o f modification s involvin g fugitiv e emissions

. I n aparalle l notice , EP A i s announcin g it s reaffirmatio n o f th e curren t lis t an dth e lega l interpretatio n behin dit

. BATES : Th e perio dfo r

initia l commen t o n th e additio n of

surfac e coa l mine s t o th e curren t

list , o n th e lis t

itself, an do n EPA' s lega l interpretatio n o f Sectio n 302(j ) ivit hrespec t

t o modificatio n close s o n Decembe r

26,1984

. A publi c heerirt g o n thes e item s wil l b e hel di n Washington , D.C , o n Decembe r 3,1984 , an di n Denver , Colorado , o n Decembe r 7,1984

. EP A wil l hol dth e publi c docke t fo r thi s rulemakin g ope n fo r 3 0 day s afte r th e clos e o f

th e initia l commen t perio dfo r

th e submissio n o f

writte n rebutta l an dsupplementar y information

. AOORESSiES : Comment s shoul db e submitte d(i n triplicate , if possible ) to : Centra l Docke t

Sectio n (LE-131A) , Environmenta l Protectio n Agency , 401 M Street , S.W. , Washington , D.C

. 20460 , Attention : Docke t

No

. A-84-33 , Publi c Hearing : Roo m2126/2409 , Watersid e Mall , 40 1 M Street , S.W. , Washington , D.C

. an dEP A Regiona l Administrator' s Conferenc e Room , 9th Floor , 186 0 Lincol n Street , Denver , Colorado

. Docket : EP A ha s establishe dadocke t fo r thi s rulemaking , Docke t No

. A-84-33 , i n accordanc e wit hsectio n 307(d ) o f th e Clea n Ai r

Act , 4 2 U.S.C

. 7607(d)

. Th e docke t i s availabl e fo r

publi c inspectio n an dcopyin g betwee n 8:C 0 a.m
. an d4:0 0 p.m. , Mcnda y throug hFriday , a t EPA' s Centra l Docke t

Section , Wes t

Towe r Lobby , C-dler y 1,401 M Street , S.W. , Washington , D.C

. A reasonabl e fe e ma y b e charge dfo r

copying

. FQ K 5TOTIKIEI S INPQRMA710

M E33TACT : Kir t Q

. Cox , Nei v Sourc e Revie w Section , Offic e o f

Ai r Qualit y Plannin g an dStandards , Researc hTriangl e Park , Nort hCarolin a27711 , (919-541-5591 , FTS-629-5531)

. SUPPLEMENTAR

Y INFORMATION

: I

. Backgroun d I n 1980 , EP A overhaule dit s regulation s governin g th e constructio n o f ne w stationar y source s of ai r pollutio n an dmodification s t o existin g source s i n respons e t o Alabama Power Company v
. Costle, 63 6 F.2 d32 3 (D.C

. Cir

. 197S ) [se e 4 5 FR5267 6 (Augus t 7 , 1980)]

. Th e variou s regulation s ] tha t emerge dfro mth e overhau l appl y generall y t o "majo r

stationar y sources " an d"majo r

modifications. " I n addition , the y requir e "fugitiv e emissions " 2 t o b e include di n threshol dapplicabilit y determination s o f

whethe r aprojec t

i s "major, " bu t

onl y fo r 3 0 sourc e categories. 3 Thos e categorie s d o no t includ e surfac e coa l mines

. EP A sai d tha t i t woul ddecid e a t

afutur e tim e whethe r t o ad dsuc hmine s t o th e lis t of 3 0 categories

. Th e effec t o f thi s postponemen t

wa s t o exemp t

a t leas t temporaril y mos t

surfac e coa l mine s fro mth e substantiv e requirement s of th e relevan t PS D an dnonattainmen t regulations

. I n requirin g th e inclusio n of fugitiv e emission s fo r

3 0 sourc e categories , EP A too k accoun t o f sectio n 302(j ) o f

th e Clea n Ai r

Act , 4 2 U.S.C

. 7602(j) , whic h provides : Excep t a s otherwis e expressl y provided , th e term s "majo r

stationar y source " an d

1 On e set , 40 CF

R51.24 , specifie s th e minimu m requirement s that

apreventio n o

f significan

t deterioratio n (PSD

) permit progra mmus t contai n to warran t approval b y EP

A a s arevisio n to aStat e implementatio n plan (SIP)

. Another set , 4 0 CF R 52.21 , delineate s th e Federal PSD permit program , whichcurrentl y applie s i

n amajorit

y o f th e State s a s par t o f their SIP's

. Another

set , 4 0 CF R51.180) , specifie s th e element s o

f a n approvabl e stat e permit progra mfo r reconstructio n revie w fo r nonattainmen t

purposes
. A fourt

hset , 4 0 CF RPar t 51 , Appendi x S , embodie s the "Emission s Offse t Interpretativ e Ruling " fo

r certai n nonattainmen t situations

. A fift

hset , 4 0 CF R52.24 , embodie s th e constructio n moratoriumfo r certai n nonattainmen t areas
. A sixt

hset , 4 0 CF R51.18(k] , embodie s th e basi c requirement

o f sectio n 110(a)(2)(D) that

eac h SI P contai n apermit

progra mfo r "major " project s to assur e they will no t

interfer e wit htimely attainmen t an dmaintenanc e o

f th e national ambient

ai r qualit y standard s (NAAQS)

. 9 "Fugitiv e emissions " or

e emission s tha

t woul d not pac s throughastac k

o r other functionally equivalent

openin g [e.g., 4

0 CF R52.21(b)(20

) (1984)]

. 'See, e.g., 4

0 CF R52.2 1 (b)(4) , (i)(4)(vii) (1984)

. "majo r emittin g facility " mea n an y stationar y facilit y o r

sourc e o f

ai r pollutant s whic h directl y emits , o r

ha s th e potentia l (includin g any
. majo r

emittin g facilit y o r

sourc e o f fugitiv e emission s o f

an y suc hpollutant , a s determine db y rul e b y th e Administrator]

. Th e D.C

. Circuit , i n Alabama Poiver, 

### hel di n ligh

t o f thi s sectio n tha t

EP A ma y requir e th e inclusion s o f fugitiv e emission s i n threshol dapplicabilit y determination s fo r

aparticula r

sourc e onl y i f i t ha s firs t establishe dthroug h rulemakin g tha i f-j^itive s ar e t o b e include dfo r

tha t clas s o f sources
. Th e cour t di dno t specificall y lis t

wha t factor s i t though t EP A ha dt o conside r

i n suc harulemaking

. EP A too k th e positio n tha t

th e cectio n oblige s it , i n proposin g t o requir e inclusio n fo r a particula r

categor y c f

sources , t o determin e a t

leas t tha t th e source s pos e asignifican t

threa t of ai r qualit y degradatio n an dthen , i n takin g fina l action , t o consider , i

f commenter s objecte dt o th e proposal , whathe r inclusio n fo r

th e categor y woul d produc e unreasonabl e socia l an d economi c impact s relativ e t o th e anticipate dbenefits

. EP A adde dtha t th e adequac y o f

method s o f

measurin g an d modelin g th e fugitiv e emission s wa s no t b y itsel f adecisiv e facto r

i n determinin g whethe r t o requir e inclusion , suggestin g tha t th e potentia l o f

socia l o r

economi c disruptio n an ddamag e t o nationa l securit y woul dhav e muc hgreate r weigh t (see generally 4*F

R52690-92)

. Variou s industr y an denvironmenta l groups , includin g th e Sierr aClub , petitione dth e D.C

. Circui t t o revie w th e 198 0 regulations , includin g th e provision s relatin g t o fugitiv e emissions

. Industr y contende dtha t EPA , i n requirin g th e inclusio n of fugitiv e emission s fo r

th e 3 0 categories , ha d faile dt o conduc t

th 3 rulemakin g th e cour t ha dcontemplated

. Th e Sierr aClu b contende dtha t

SPA , i n postponin g a decisio n o n stri p mines , ha dacte d arbitraril y an dcapriciously

. Th e cour t consolidate dth e industr y challenge s unde r Chemical

Manufacturers Association (CMA) v. EPA. No

. 79-1112 , an dkep t th e Sierr aClu b chclleng e o n it s ow n track

. I n 1982 , SP A entere dint o asettlemen t agreemen t

ivit j th s industr y petitioner s i n th e CMA case
. SP A comnitte dt o propose , amon g ethe r

things , t o delet e th e requiremen t

IC T includin g fugitiv e emission s fo r

th e 3 0 categorie s an dt o tak e fina l actio n o n th e proposal

. Th e cour t staye dth e litigatio n pendin g implementatio n of

th e agreement

. O n Augus t

25,1S33 , 4 8 F

R38742 , EP A propose dt o delet e tha t requirement

. EP A state dtha t

i t ha dconclude d preliminaril y tha t

it s origina lP. 3



### 4321 2 Federa l Registe r / Vol

. 49 , No

. 20 9 /

Friday , Octobe r

26 , 198 4 /

Propose dRule s interpretatio n o

f sectio n 302(j ) wa s wrong
. In aFedera l Register

notic e tha t parallel s thi s one , EP

A i s announcin g a fina l actio n o n tha t

proposa l whic h reaffirm s th e curren t

requirements

. EP

A state s tha t

it ha s conclude dtha t

it s original interpretatio n wa s correc t after all

. Thus , EP

A continue s t o vie w sectio n 302(j ) a s requirin g i t

t o determin e onl y tha t (1 ) th e source s i n acategory coul d degrad e ai r

quality significantly , an d(2 ) n o factor s raise db y commenter s durin g th e comment

perio dindicat e tha t

listin g th e category woul dproduc e * unreasonabl e socia l an deconomi c impact s whe n compare dt o th e benefit s o f listing

. In performin g rulemakin g fo r a particular sourc e catagory , th e Agenc y regard s th e firs t

determinatio n a s establishin g apresumptio n i n favor o f listin g th e category tha t

coul db e rebutte donl y b y a n analysi s whic h prove s tha t

unreasonabl e cost s woul d resul t takin g int o accoun t

al l positiv e aspect s o f th e listing

. Th e reade r

shoul d see th e companio n notic e fo r amore detaile dexplanatio n o

f thi s "safety valve " interpretatio n o

f Sectio n 302(j ) an dth e reaffirmatio n o

f th e curren t listing

. Meanwile , o n Augus t

26,1983 , i n th e Sierra Club case , th e D.C

. Circui t remande dEPA' s postponemen t o f actio n o n stri p mines , rulin g tha t EP A unde r th e logi c o f it s 1980 actio n appeare dt o hav e n o goo dreaso n fo

r listin g th e 3 0 categorie s bu t

no t stri p mine s (71 5 F

. 2d 653)

. In EPA' s respons e t o th e remand , i t agree dwiththa t

rulin g an dcommitte d to propos e t o lis t

or no t lis t stri p mines

. Th e cour t the n ordere dEP

A t o propos e on e wa y o r

th e othe r b y Octobe r

22 , 1984

. II

. Proposa l t o Lis t

Surfac e Coal Mine s EP A ha s conclude do n th e basi s o f variou s studies 4 

### tha t

surfac e coal mine s d o pos e athrea t

o f significant

ai r quality degradation

. Mos t

suc hmine s o

f ah economicall y viabl e siz e emi t i n exces s o f 25 0 tons pe r

year , th e volume o

f emission s tha t

Congres s found significant i n sectio n 169(1 ) o

f th e Act , 4 2 U.S.C

. 7479(1) , fo

r source s outsid e th e 2 8 categorie s liste di n tha t section

. EP

A therefore propose dt o ad dsurfac e coal mine s t o th e curren t

lis t o f 3 0 categorie s o f source s whos e fugitiv e emission s ar e t o b e include di n threshol dapplicability determinations

. EP

A solicit s comment s o n thi s proposal. 5 

### EP A full y expect s tha t

weighty objection s t o th e listin g o

f surfac e coa l mine s wil l b e raised

. EP

A expect s thes e t o includ e claim s tha t

suc hmine s simpl y canno t mee t PS D requirement s i

f the y ar e listed , an dtha t

t o preven t

th e openin g o f ne w surfac e mine s b y subjectin g themt o PS D requirement s woul dno t serv e eithe r

th e caus e o

f a soun denerg y polic y or

th e broade r nationa l interest

. Moreover , surfac e mine s diffe

r fromman y othe r

source s o f pollutio n i n tha t

the y mus t

b e locate d wher e th e mineral deposi t o n whic hthe y depen di s found , an dtherefore hav e limite dgeographical mobility

. Th e fac t tha t EP A i s proposin g to lis t surfac e coal mine s doe s no t mean tha t

i t ha s determine dtha t

thes e factor s lac k merit , or that.i t i s i n some wa y unlikel y
. t o giv e weight

t o the ma t

di e time o

f final promulgation

. Rather , a s today' s companio n notic e makes clear , EP A believe s tha t

th e "safety valve " functio n o f sectio n 302(j ) i s bes t

serve di f thes e broade r issue s ar e firs t

raise di n pubi c comment s an dthereafte r

considere db y EP A i n makin g it s fina

l decision

. Becaus e o f particular

concern with longstandin g problem s arisin g fro mth e regulatio n o

f surfac e minin g an dth e requirement s o

f Executiv e Orde r

12291 , EP A i s independentl y preparin g a n analysi s o f th e effect s o

f addin g stri p mine s to th e curren t

list. 6 

### EP A intend s t o mak e th e result s o

f th e stud y availabl e t o th e publi c fo

r comment before th e Agenc y take s fina

l actio n o n today' s proposal

. EP A i s analyzin g th e natur e o f th e surfac e coal minin g industry an di s assemblin g informatio n regardin g th e size , number , location , an dlifespan o f mines , an dth e rate , siz e an dlocatio n o f industry growth

. Afte

r addressin g th e populatio n o

f mine s tha t

coul db e subjec t t o PS D permittin g requirements , a n analysi s wil l b e prepare do f th e cost s o f PS D revie w t o them

. Thi s include s th e

4 Characterizatio n o

f P M 1 0 an dTS P Air

Quality Aroun dWestern Surfac e Coa l Mines , PEDC

o Environmental , Inc. , an dTR C Environmenta

l Consultant s [EP

A Contrac t

No

. 88-02-351 2 (August 1982)]

. s EP A i s obligate dt o propos e visibilit y ne w sourc e revie w SIP' s fo

r numerou s State s under

a statemen t

agreement

i n ED Fv
. EPA , N.D

. Calif

. No

. C82-685 0 RPA

. EP

A anticipate s that

suc hSIP' s wil l contai n simila

r list s o f sourc e categorie s whos e fugitive emission s woul db e include di n threshol d applicabilit

y determinations

. EP

A als o propose dto ad dsurfac e coal mine s t o thos e list s i f an dwhen thes e ar e promulgated

. EP A solicit s commen

t on suchan actio n at

thi s time

. "A s EP A state di n th e companio n notice , i t doe s no t vie w sectio n 302(j ) a s barrin g th e preparatio n o f acost/benefi t

analysi s prior

to aproposal or

fina l actio n under

th e section , bu t

rathe r a s allowin g EP

A no t to prepar e one
. Unde

r normal circumstances , EP A woul dhav e prepare dsucha n analysi s under E.0.1229 1 fo

r th e stri p mine s proposal here

. EP A i s constraine db y th e cour

t ordere ddeadlin e o

f Octobe r 22,1984 , t o propos e actio n o n stri p mine s withou t havin g complete dsuchan analysis

. Nevertheless , that

analysi s will b e complete dprior to fina l action

. Moreover , fo

r futur e proposal s a s to othe r sourc e categories , i

f any , EP A intend s to adher e t o th e applicabl e requirement s fo r cos t benefit analysi s under

th e Executiv e Order

. 

### cos t o f preparin g apermi t

applicatio n an do f applyin g bes t

availabl e contro l technolog y to min e operations

. Mos t significantly , th e stud y i s addressin g th e cost s tha t woul daccru e t o th e minin g industry a s aresul t

o f th e constraint s fro mth e PS D increments

. Analysi s i s als o bein g prepare do n th e degre e o f emission s reduction s tha t th e increment s an dNAAQ S might requir e an dth e estimate dbenefit s t o publi c healthan dwelfare tha t

woul daris e fro mit

. Thi s stud y wil l als o addres s potentia l impac t o n Clas s I areas
. Protectio n o f Clas s I areas , suc ha s nationa l parks , ha s lon g bee n aspecia l concern an d may presen t

arational e fo

r regulatio n o

f mine s whic hwoul daffect the mtha t

i s considerabl y stronge r

tha n it i s fo r mine s locatin g i n orde r

areas
. EP A therefore solicit s comment s o n th e possibility o

f restrictin g th e applicability o f th e relevan t

regulation s t o thos e surfac e coal mine s tha t

woul daffect Clas s I area s an dpossibl y th e mandator y Clas s I

I area s 7 

### a s well

. On e issu e i s whethe r

sectio n 302(j ) provide s authority t o lis t

onl y asubclas s o

f surfac e coa l mines

. EP

A i s incline dt o conclud e tha t

i t does

. Anothe r

issu e i s whethe r th e balanc e o

f benefit s an d cost s t o society justif

y adistinctio n alon g thos e lines

. In addition , EP

A als o solicit s comment o n whethe r

th e existin g stri p mine s tha t th e propose dlistin g woul drende r "major " shoul dconsum e PS D increment

. Sectio n 169(4

) o f th e Ac t provide s tha t al l major emittin g facilitie s o n whic h constructio n commence dafter January 6,1975 , ar e no t

t o b e include di n th e baselin e concentratio n an dinstea d consum e th e availabl e PS D increment

. A listin g o f surfac e coal mine s pursuan t t o sectio n 302(j ) woul dcaus e man y o f the m t o b e classifie da s major

sources
. Thi s raise s th e issu e whethe r

sectio n 169(4

) woul drequir e al l larg e mine s tha t commence dconstructio n (eve n thoug h no t the n a s "major " stationar y sources ) sinc e January 6,1975 , bu t

prio r t o today , t o retroactivel y consum e incremen t instea do f continuin g t o contribut e t o baselin e concentration

. EP A doe s no t believ e tha t

th e Congres s intende dsuc h adisruptio n t o occur
. Instead , th e Agenc y believe s tha t

i t shoul d "grandfather " existin g mine s fro m retroactiv e consumptio n o f incremen t bu t seek s publi c comment

o n thi s matter

. Th e effect s of

no t doin g s o wil l b e addresse dto alimite ddegre e i n EPA' s study

. 'Suc harea s ar e describe di n sectio n 164(a ) o f th e Act , 4 2 U.S.C

. 7474(a)

.P. 5

' ' y Federa l Registe r/ Vol

. 49 , No , 20 9 /

Friday , Octobe r

26 , 198 4 /

Propose dRule s 4321 3

An y grandfatherin g fro mincremen t consumptio n grante dmus t b e 

### reasonabl y bounded

. Th e Agenc y propose s tha t

thi s exemptio n b e grante d t o al l mine s whic hhav e commence d constructio n prio r

t o th e dat e of

fina l actio n o n thi s notice

. "Commencemen t of construction " i s th e ke y term

. Fo r th e prupose s o f

thi s action , EP A suggest s tha t th e ter minclude s th e receip t of al l necessar y permit s plu s certai n othe r activitie s evidencin g acommitmen t t o th e project

. Thes e ma y includ e on-sit e activit y o r

sit e specifi c contracts

. Becaus e of

th e locatio n specifi c natur e o f minin g permit s an dpossibilit y tha t factor s othe r

tha n thos e applicabl e t o a conventiona l industria l sourc e ma y b e germaine , EP A solicit s commen t o n a n appropriat e polic y fo r

addressin g th e potentia l grandfatherin g of mine s withi n th e presentl y applicabl e definition s o f commencemen t

of construction

. EP A als o propose s t o exten da n exemptio n fro mPS D permittin g requirement s t o thes e sam e sources
. Today' s notic e contain s propose dregulation s t o accomplis hbot hof

thes e grandfatherin g actions

. Publi c commen t i s als o solicite d o n thes e propose dregulations

. III . Reopenin g o f

Commen tPerio d o n th e Lis to f

Thirty Categorie s A s explaine di n detai l i n th e companio n notice , althoug hEP A ha s reaffirme dth e lis t

of 3 0 sourc e categorie s an dth e underlyin g statutor y interpretation , i t

recognize s i t

coul d hav e provide dafulle r

opportunit y t o
' commen t

o n th e origina l listing

. Therefore , a s apolic y matter , EP A i s reopenin g th e commen t perio dfor

th e curren t lis t of 3 0 categories , an dsolicit s comment s o n tha t

list

. Consisten t

wit hit s "safet y valve " interpretatio n of

Sectio n 302(j) , however , EP A i s incline dno t

t o remov e acategor y fro mth e lis t

unles s acommente r

show s advers e consequence s t o th e boar d nationa l interes t

i n continuin g th e listing

. IV . Nonapplicabilit y o f Sectio n 302(j ) t o Modification s I n overhaulin g it s ne w sourc e revie w regulation s i n 198 0 an di n proposin g furthe r amendment s i n 1983 , EP A assume dtha t

th e rulemakin g requiremen t

i n sectio n 302(j ) applie s t o modification s a s wel l a s t o sources
. Th e litigant s an dcommenter s hav e al l carrie dtha t

assumptio n int o thei r communications , withou t evidencin g an y examinatio n o f

it

. Draw n b y th e lates t roun dof

proposa l an dcommen t int o examinin g th e assumption , EP A ha s
' conclude dtha t

i t appear s t o b e incorrect

. Thi s sectio n of thi s notic e outline s th e reason s fo r tha t conclusio n an dsolicit s commen t o n it

. Afte r evaluatin g an y comments , EP A ma y translat e th e conclusio n directl y withou t furthe r commen t

int o regulator y amendments. 8 Th e litera l languag e of

th e Ac t strongl y suggest s tha t

Congres s di dno t inten dth e rulemakin g requiremen t i n sectio n 302(j ) t o appl y t o modifications

. First , sectio n 302(j ) o n it s fac e applie s onl y t o ne w an dexistin g emission s unit s and , hence , no t

t o modifications

. It provide s that : the term s "major

stationary source " an d "major emittin g facility " mea

n any stationary facility or

source [that

ha s acertai n pollutio n potential ] (includin g any major emittin g facilit y or sourc e o f fugitive emissio n * * * , a s determine db y rul e b y th e Administrator)

. [4 2 U.S.C

. 7602(j ) (emphasi s added)]

. Plainly , thi s languag e explicitl y attache d th e rulemakin g requiremen t onl y t o propose do r

actua l units ; i t

say s nothin g abou t modification s t o suc hunits

. I n contrast , Part s C an dD

. th e provision s tha t

detai l th e applicabilit y an dconten t

of th e PS D an d nonattainmen t

ne w sourc e revie w program , expressl y defin e th e ter m "modification " b y referenc e t o aparalle l definitio n whic happear s t o requir e th e inclusio n of

fugitiv e emission s i n threshol dapplicabilit y determination s fo r modifications

. Sectio n 169(2)(C) , 4 2 U.S.C

. 7479(2)(C) ; states , fo r purpose s of Par i C , that : [tjh e ter m"construction " when use di n connectio n wit

hany sourc e or

facility , include s th e modificatio n (as defined in section 111(a) of

this title) o

f an y sourc e or facility

. [Emphasi s added. ] Similarly , sectio n 171(4) , 4 2 U.S.C

. 7501(4) , provides , fo r

purpose s o

f bot h Par t D an dth e constructio n ba n i n sectio n 100(a)(2)(I) , that : [tjh e term s "modification " an d"modified " mea n the sam e a s th e ter

m"modification " as used in section 111(a)(4) of

this title. [Emphasi s added. ] Sectio n 111(a)(4) , 4 2 U.S.C

. 7411(a)(4) , i n tur n provide s that : [tjhe ter m"modification " mean s any physical chang e in , or

chang e in th e metho do

f operatio n of

, astationary sourc e which increases the amount

of any air pollutant emitted by such source or

which results in the emissions of

any air pollutant not previously emitted. [Emphasi s added. ] "Specifically

. EP

A woul dno t promulgat e th e amendmen t t o th e definitio n o f "majo r modification " tha

t wa s propose do n Augus t 25.1983

. namel y those propose

das § § 51.24(b)(2)(iv)

. 52.21(b)(2)(iv)

. 51.18(j)(l)(v)(d) , II.A.5(iv ) o f Appendi x S t o Par t 51 , an d52.24(f)(5)(iv)

. EP

A woul dals o ad daprovisio

n t o th e relevan t regulations tha

t woul d"grandfather " an

y modification

s tha t (1 ) woul dno t hav e bee n subjec t t o revie w bu t fo r th e deletio n o f those amendment

s an d(2 ) commence

dconstructio

n befor e th e fina l deletion

. I n definin g "modification " solel y i n term s of th e tota l amoun t

of pollutio n tha t asourc e chang e woul dproduce , sectio n 111(a)(4 ) suggest s tha t Congres s intende dt o establis hher e n o qualitativ e distinctio n betwee n emissions , and , hence , t o requir e th e inclusio n of fugitiv e emission s fo r

modifications , withou t an y intermediat e rulemakin g step

. Th e legislativ e histor y strongl y support s thi s vie w tha t

Congres s intende dth e sectio n 302(j ) rulemakin g requiremen t

no t t o appl y t o modifications

. First , th e passage s i n th e relevan t Hous e an dconferenc e report s tha t focu s o n sectio n 302(j ) refer , a s doe s sectio n 302(j) , onl y t o propose dan d

. existin g emission s units , an dno t a t al l t o modification s [see H.R

. Repor t No

. 95-294 , 95thCong. , 1s t

Sess

. 4 , 9,14 4 (1977) ; H.S

. Rep

. No

. 95-564 , 95thCong.

. 1s t Sess

. 17 2 (1977)]

. I n addition , th e explanatio n b y th e conferenc e committe e o f

sectio n 169(2)(C ) state s tha t it : (i]mplement s conferenc e agreemen t to cover "modification " a s wel l a s "construction " b y defining "construction " in Par t C to conform to usage in other

parts of the Act. [12

3 Cong

. Rec

. H 11957 , col

. 3 (daily ed. ) (Novembe r 1

. 1977) (emphasi s added). ] Th e phras e "usag e i n othe r part s o f th e Act " mos t

probabl y refers , no t

onl y t o sectio n 111(a)(4) , bu t

als o t o th e EP A regulation s implementin g sectio n 11 1 tha t wer e i n effec t

a t th e time

. Lik e sectio n 111(a)(4) , thos e regulation s o n thei r fac e requir e th e inclusio n of fugitiv e emission s i n sectio n 11 1 applicabilit y determination , inasmuc ha s the y concer n themselve s onl y wit hth e quantit y o f

th e emission s i n questio n [see 4 0 CFR60.14(a ) (1977)]

. Finally , EP A an dth e State s prio r

t o enactmen t

of sectio n 302(j ) i n 197 7 mad e n o .distinctio n betwee n fugitiv e an d nonfugitiv e emission s i n threshol d applicabilit y determination s [see, e.g, 4 0 CF R51.1 8 (1977) ; 4 1 F

R5552 8 (Decembe r 21,1976 ) (th e origina l Offse t Ruling) , 4 0 CF R51.21(d)(1 ) (1977 ) (origina l PS D regulations)]

. Sectio n 302(j) , therefore , ra n agains t

th e grai n o f

longstandin g practice

. I

f Congres s ha dintende da chang e a s t o modifications , i t probabl y woul dhav e sai ds o explicitly , ye t i t sai d nothing

. EPA' s ne w interpretatio n a s t o th e applicability , of

th e sectio n 302(j ) rulemakin g requiremen t i s consisten t wit hCongress ' purposes
. Requirin g fugitiv e emission s t o b e include di n threshol dapplicabilit y determination s for modification s woul dno t frustrat e th e protection s fro mth e burden s of ne w sourc e revie w tha t

th e rulemakin g requiremen t

affords

. Unde r

th e Ac t an d EP A regulations , amodificatio n i sP. 4



### 4321 4 Federa l Registei r / Vol

. 49 , No.

. 20 9 /

Friday , October-26 , 198 4 / Propose dRule s "major " an dsubjec t

t o revie w only if

. th e sourc e at

whic hi t woul doccur

i s als o "major " [see, e.g., 40 CF R 52.21(b)(2)(i) (1984)]

. Hence , a modificatio n t o asourc e o f predominantl y fugitive emission s tha t doe s no t belon g to acurrentl y liste d category , fo

r instanc e asurface , coal mine , coul dno t

b e subjec t

to.review , eve n i f its.fugitiv e emission s were.take n int o account, , becaus e th e sourc e woul d no t b e "major"

. In addition.Jequirin g fugitiv e emission s to b e include di n threshol dapplicability determination s woul dpromote th e Congressional goa l o f minimizin g unnecessar y burdens

. A s discusse da t

lengt hi n the.preambl e t o th e 198 3 proposa l andi n th e comment s (see, e.g., 4 8 F

R38746) , th e exclusio n o

f fugitiv e emission s decreases , a s wel l a s increases , i n threshol dapplicability determination s fo

r modification s ca n • resul t i n acompany havin g t o obtain , a permit , bu t

no t havin g t o mee t

an y substantiv e requirement s t o obtai n it

. Th e universa l inclusio n o

f fugitive emission s increase s an ddecrease s woul dcure this , proble mo f an empt y proceeding

. Finally , universa l inclusio n remove s an y incentive , acompany woul dotherwis e hav e t o artificall y sequenc e th e constructio n o f agroup o f modification s s o tha t

th e modifications , tha t produc e onl y fugitive emission s migh t escap e revie w o n th e theory tha t the y ar e separat e an dno t "major. "
V

. Miscellaneou s A. Docket EPAha s establishe dadocke t fo r thi s rulemaking , Docket

No

. A-84-33

. The

. docke t i s a n organize dan dcomplete file o f al l significant

informatio n submitte d t o o r otherwis e considere db y EPA

. durin g thi s proceeding

. Th e content s o f th e docke t

wil l serv e a s th e recor di n th e cas e o f judicia l revie w unde r

sectio n 307(b ) o f th e Act , 42 U.S.C

. 7607(b) , Th e docke t i s availabl e fo

r publi c inspectio n an dcopyin g betwee n 8:0

0 a.m
. an d4:0

0 p.m. , Monda

y throug hFriday , a t

EPA's : Centra l Docket

Section , Wes t

Towe r Lobby , Galler

y I , 401 M Street , S.W. , Washington,,D.C

. A reasonabl e fe e ma y b e charge dfo

r copying

. B. Public Hearing EP A wil l hold apublic.hearin g o n December 4,1984 , at

10:0 0 a.m. , i n Room 2126/2409 , Watersid e Mall , 40 1 M Street , S.W. , Washington , D.C , an do n December 6,1984 , a t

10:0 0 a.m. , i n EP

A Regional Administrator' s Conferenc e Room , 9t hFloor , 186

0 Lincoln Street , Denver , Colorado

. Th e hearing s wil l b e informal

. A pane l o

f EP A staf f wil l hear th e ora l presentations

. There , wil l b e n o cross-examinatio n an dn o requiremen t tha t an y perso n b e unde r

oath

. Eac h member o f th e pane l ma

y see k clarificatio n o r

amplificatio n o

f an y presentation

. Th e presiding-office r o f th e pane l may se t

atime limit

fo r eac h presentatio n an dma

y restric t an y presentatio n tha t

would.b e irrelevan t

o r repetitious

. A transcrip t

o f eac hhearin g will b e made.an dplace di n th e rulemakin g docket

. Any perso n wh o wishe s to speak a t a hearin g should.a s soo n a s possibl e sen d writte n notic e o

f thi s t o EPA , giv e name,
- address , telephon e number , an dth e lengt ho f th e presentation

. Anyon e statin g tha t

his.o r he r presentation , woul db e longer

tha n 2 0 minutes , shoul d als o stat e wh y i t

nee db e longer

. Each , notic e shoul db e sen t

t o Kir t Q

. Cox,.a t th e addres s give n at

th e beginnin g o

f thi s notice

. EP

A will develo p aschedul e fo r presentation s base do n th e notices.i t receives

. Anyon e wh o fails , t o submit.a

. notice , bu t

wishes.nevertheles s t o speak , at th e hearing.shoul ds o notif y th e presidin g office

r immediatel y before th e hearing

. Th e presidin g office r wil l decid e whether , when , an dfo r ho w lon g th e perso n may speak

. Eac hspeake r shoul dbrin g extra.copie s o f his.o r he r presentatio n fo

r th e convenienc e .o

f th e hearin g panel , th e hearing-reporter , the

. press , an dothe r

participants

. The

. hearing s wil l b e ope n t o th e public

.

~ C. Executive Order

12291 Under Executiv e Orde r

12291' , EP

A mus t prepar e aregulatory impac t analysi s fo

r an y regulatio n tha t

qualifie s a s a"major

rule. " A major

rul e i s defined'a s an y regulatio n thatis:likel y to resul t i n a n annua l effect

o n th e econom y o f $10 0 millio n or

more
. EP A ha s determine dtha t

th e proposa l to*lis t stri p mine s migh

t hav e a n annua l effect o n th e econom

y o f $10 0 millio n or

more , an dEP A i s therefore preparin g th e economic , analysi s describe dabov e i n sectio n II

. EP

A ha s determined , o n th e othe r hand , tha t

th e propose dne w interpretatio n o

f sectio n 302(j ) a s i t relate s to modification s wil l no t hav e sufficient economi c effect

t o be

. considere damajor

rule

. Th e ne w interpretatio n wil l no t

requir e larg e number s o

f additiona l modification s t o obtai n permit s becaus e ther e ar e relatively , few modification s involvin g fugitive emission s at

major source s othe r tha n thos e source s alread y o n th e curren t lis t o f 3 0 sourc e categories

. Thos e modification s mus t presentl y obtai n permits.unde r

the

. existin g regulations ; therefore , EP

A i s no t preparing: aregulatory impac t analysi s fo r thi s portio n o

f th e rulemaking

. Thes e regulation s hav e bee n submitte dt o th e Office o

f Managemen t an dBudge

t forrevie w unde r

Executiv e Orde r

12291

. Any comment s fro mth e office , an dEPA' s response s t o an y suc h comments , wil l b e place di n th e docke t fo r thi s proceedingan dar e availabl e fo r publi c inspectio n at

th e time s an dplac e describe dearlie r

i n thi s preamble

. D. Economic Impact

Assessment Sectio n 31 7 o

f th e Clean Air-Act , 4

2 U.S.C

. 7617 , require s EP

A t o prepar e a n economi c impac t

assessmen t

i n connectio n withproposa l o f an y substantia l revision s t o existin g regulations

. Th e economi c analysi s concernin g stri p mine s tha t EP A i s preparin g i n ordert o comply,wit h Executiv e Orde r

1229 1 wil l als o satisf

y th e requiremen t

fo r preparatio n o

f a n economi c impac t

assessmen t

o n th e proposa l to lis t

stri p mines

. Thi s analysi s wil l b e availabl e t o th e publi c withi n th e nex t

few months

. Th e comment perio do n thes e propose d regulation s wil l b e provide dt o allo w th e publi c sufficient

time t o comment

o n th e analysis

. EP

A wil l no t b e preparin g a n economi c analysi s o n th e ne w interpretatio n o

f sectio n 302(j ) a s i t relate s t o modification s becaus e thi s is

. no t asubstantia l revision

. A s discusse d above , thi s interpretatio n wil l ho t brin g man y additiona l modification s unde r review

. E. Regulatory Flexibility Act Certification A s require db y sectio n 3(a ) o f th e Regulator y Flexibility Act , 5 U.S.C

. 605(b) , I certif

y tha t thi s regulatio n wil l no t hav e asignificant

adverse-impacto n asubstantia l numbe r

o f smal l entities

. Th e proposa l t o lis t

stri p mine s wil l primaril y effect

larg e minin g operations

. Th e propose dne w interpretatio n o f sectio n 302(j ) a s i t

relate s t o modification s wil l no t

brin g alarg e number o f additiona l modifications-int o th e permitting-system ; F. Paperwork

Reduction Act Th e Office o

f Managemen t

andBudge t (OMB ) ha s approve dsome o f th e informatio n collectio n requirement s containe di n thi s propose drul e unde r th e provision s o

f th e Paperwork Reductio n Ac t

o f 1980 , 4 4 U.S.C

. 350 1 et

, seq. an dha s assigne dOM B contro l numbe r 2060-0003

. Thi s propose drul e als o introduce s additiona l requirements,

. an dthes e hav e bee n transmitte dt o OMB

. Comment s o n thes e requirement s shoul db e submitte dt o th e office o f Informatio n an dRegulatory Affair s o f OMB , marke d"Attention : Des k Office r fo r EPA. " Th e fina

l rul e wil l respon dt o an y OM B or publi c comment s o n th e informatio n collectio n requirements

.1

. P. 2

Federa l Registe r

/ Vol

. 49 , No

. 20 9 /

Friday , Octobe r

26 , 198 4 /

Propose dRule s 4321 5

Lis t o f Subject s 40CFR Part

51 Administrativ e practic e an d procedures , Ai r

pollutio n control , Intergovernmenta l relations , Reportin g an drecordkeepin g requirements , Ozone , Sulfu r Oxides , Nitroge n dioxide , Lead , particulat e matter , Hydrocarbon , Carbo n monoxide

. 40CFR Part

52 Ai r pollutio n control , Ozone , Sulfu r oxides , Nitroge n dioxide , Lead , Particulat e matter , Carbo n monoxide

. Hydrocarbons

. Authority : Section s 101(b)(1) , 160-169,171

- 178 , an d301(a

) o f the Clea n Ai r Act a s amende d[4

2 U.S.C

. 7401(b)(1) , 7410 , 7470-79

. 7501-0 8 an d7601(a)) ; Sectio n 129(a ) o f th e Clean Ai r Act Amendment s o

f 197 7 [Pub

. L

. No

. 95-95 , 9 1 Stat

. 685 (August 7,1977))

. Dated : October

19,1984

. Alvin L

. Aim , Deputy Administrator. Titl e 4 0 o f

th e Cod e o f

Federa l Regulations , a s amended , i s propose dt o b e amended , a s follows : PART S 5 1 AN D 52—[AMENDED ] A

. Requirement s fo r

Stat e PS D Plan s §51.2 4 [Amended ] Sectio n 51.2 4 o f

Titl e 4 0 of

th e Cod e of Federa l Regulation s i s propose dt o b e amende da s follows : 1

. B y redesignatin g paragrap h(aa ) of

. § 51.24(b)(l](iii) , a s (bb ) t o an daddin g a ne w paragrap h(aa ) t o rea da s follows : "(aa ) Surfac e coa l mines," ; 2

. B y addin g ane w paragrap h(b)(13 ) (iii ) t o rea da s follows : "(iii ) Th e actua l emission s o f

coa l surfac e mine s o n whic hconstructio n commence dprio r t o [th e dat e tha t

fina l actio n fo r

th e listin g o f surfac e coa l mine s i s publishe di n th e Federa l Register ] wil l no t affec t th e applicabl e maximu mallowabl e increase , unles s suc hemission s occurre dafte r

a n applicabl e baselin e dat e ha s bee n establishe dfo r th e affecte darea." ; an d 3

. B y addin g ane w paragrap h(i)(4 ) (iv ) t o rea da s follows : "(iv ) Th e sourc e o r modificatio n i s asurfac e coa l min e otherwis e qualifyin g a s ane w o r modifie dmajo r

stationar y sourc e unde r thi s sectio n i

f th e owne r

o r operator : (a) Obtaine dal l fina l federal , state , an dloca l preconstructio n approval s o r permit s necessar y unde r th e applicabl e Stat e implementatio n pla n befor e [th e dat e tha t fina l actio n fo r

th e listin g o f surfac e coa l mine s i s publishe di n th e Federa l Register] ; (b) Commence dconstructio n withi n 1 8 month s fro m[th e dat e tha t fina l actio n fo r th e listin g o f

surfac e coa l mine s i s publishe di n th e Federa l Register] , or « an y earlie r

tim e require dunde r

th e Stat e implementatio n plan ; an d (c ) Di dno t

discontinu e constructio n fo r aperio do f

1 8 month s o r

mor e an d complete dconstructio n withi n a reasonabl e time, " B

. Ne w Sourc e Revie w fo r PS D Purpose s § 52.2 1 [Amended ] Sectio n 52.2 1 o f

Titl e 4 0 o f

th e Cod e o f Federa l Regulation s i s propose dt o b e amende da s follows : 1

. B y redesignatin g paragrap h(aa ) o f § 52.21(b)(l)(iii) , a s (bb ) an daddin g a ne w paragrap h(aa ) t o rea da s follows : "(aa ) Surfac e coa l mines," ; 2

. B y addin g ane w paragrap h (b)(13)(iii ) t o rea da s follows : "(iii ) Th e actua l emission s of

coa l surfac e mine s o n whic hconstructio n commence dprio r t o [th e dat e tha t

fina l actio n fo r

th e listin g of surfac e coa l mine s i s publishe d i n th e Federa l Register ] wil l no t affec t th e applicabl e maximu mallowabl e increase , unles s suc hemission s occurre dafte r

a n applicabl e baselin e dat e ha s bee n establishe dfo r th e affecte darea." ; an d 3

. B y addin g ane w paragrap h(i)(4 ) (ix ) t o rea da s follows : "(ix ) Th e sourc e o r modificatio n i s asurfac e coa l min e otherwis e qualifyin g a s ane w o r modifie dmajo r

stationar y sourc e unde r thi s sectio n i

f th e owne r

o r operator : (a) Obtaine dal l final federal , state , an dloca l preconstructio n approval s o r permit s necessar y unde r th e applicabl e Stat e implementatio n pla n befor e [th e dat e tha t fina l actio n fo r

th e listin g of surfac e coa l mine s i s publishe di n th e Federa l Register] ; (b) Commence dconstructio n withi n 1 8 month s fro m[th e dat e tha t fina l actio n fo r th e listin g o f

surfac e coa l mine s i s publishe di n th e Federa l Register] , o r an y earlie r

tim e require dunde r

th e Stat e implementatio n plan ; an d (c) Di dno t

discontinu e constructio n fo r aperio dof

1 8 month s o r

mor e an d complete dconstructio n withi n a reasonabl e time

. C

. Stat e Plan s fo r

Ne w Sourc e Revie w fo r Nonattainmen t

Purpose s §51.1 8 [Amended ] Sectio n 51.1 8 of

Titl e 4 0 o f

th e Cod e o f Federa l Regulation s i s propose dt o b e amende da s follows : 1

. B y redesignatin g paragrap h"(27 ) o f § 51.18(j)( l )(iv)(c ) a s (28 ) an daddin g a ne w paragrap h(27 ) t o rea da s follows : "(27 ) Surfac e Coa l Mines" ; an d 2

. B y addin g ane w paragrap h(j)(6 ) t o rea da s follows : "(6 ) Eac hpla n ma y provid e tha t

th e requirement s of

thi s subsectio n d o no t

appl y t o th e constructio n of asurfac e coa l min e otherwis e qualifyin g a s ane w o r modifie dmajo r

stationar y sourc e unde r thi s sectio n i

f th e owne r

o r operator : (i ) Obtaine dal l fina l federal , state , an dloca l preconstructio n approval s o r permit s necessar y unde r th e applicabl e Stat e implementatio n pla n befor e [th e dat e tha t final actio n fo r

th e listin g o f surfac e coa l mine s i s publishe di n th e Federa l Register] ; (ii ) Commence dconstructio n withi n 1 8 month s fro m[th e dat e tha t fina l actio n for th e listin g o f

surfac e coa l mine s i s publishe di n th e Federa l Register] , o r an y earlie r

tim e require dunde r

th e Stat e implementatio n plan ; an d (iii ) Di dno t

discontinu e constructio n for aperio dof

1 8 month s o r

mor e an d complete dconstructio n withi n a reasonabl e time

. D

. Emissio n Offse t

Interpretativ e Rulin g Appendi x S [Amended ] Appendi x S o f

Par t 5 1 of Titl e 4 0 o f th e Cod e o f

Federa l Regulation s i s propose dt o b e amende da s follows : 1

. B y redesignatin g paragrap h(aa ) o f II.A.4(iii ) a s (bb ) an daddin g ane w paragrap h(aa ) t o rea da s follows : "(aa ) Surfac e Coa l Mines," ; an d 2

. B y addin g ane w paragrap hII.E

. t o rea da s follows : "II.E

. Sectio n IV.A

. o f thi s Rulin g shal l no t

appl y t o th e constructio n o f

acoa l surfac e min e otherwis e qualifyin g a s ane w o r modifie dmajo r

stationar y sourc e unde r thi s sectio n if

th e owne r

o r operator : (a ) Obtaine dal l fina l federal , state , an dloca l preconstructio n approval s o r permit s necessar y unde r th e applicabl e Stat e implementatio n pla n befor e [th e dat e tha t fina l actio n fo r

th e listin g of surfac e coa l mine s i s publishe di n th e Federa l Register] ; (b ) Commence dconstructio n withi n 1 8 month s fro m[th e dat e tha t fina l actio n fo r th e listin g of

surfac e coa l mine s i s publishe di n th e Federa l Register] , o r an y earlie r

tim e require dunde r

th e Stat e implementatio n plan ; an d (c ) Di dno t

discontinu e constructio n fo r aperio dof

1 8 month s o r

mor e an d complete dconstructio n withi n a reasonabl e time

. E

. Restriction s o n Constructio n fo r Nonattainmen t

Area s § 52.2 4 [Amended ] Sectio n 52.2 4 o f

Titl e 4 0 of

th e Cod e o f Federa l Regulation s i s propose dt o b e amende da s follows : 1

. B y redesignatin g paragrap h(aa ) of § 52.24(f)(4)(iii ) a s (bb ) an daddin g a ne w paragrap h(aa ) t o rea da s follows : "(aa ) Surfac e Coa l Mines," ; an dP. 3



### 4321 6 Federa l Registe r / Vol

. 49 , No , 20 9 /

Friday , Octobe r

26 , 198 4 /

Propose dRule s
2

. B y addin g ane w paragrap h(e) t o rea da s follows : "(e ) Thi s sectio n shal l no t appl y t o th e constructio n o f a surfac e coal min e otherwis e qualifyin g a s ane w or

modifie dmajor

stationary sourc e unde r

thi s sectio n i

f th e owne r

o r operator : (1 ) Obtaine dal l fina

l federal , state , an dlocal preconstructio n approval s o r permit s necessar y unde r th e applicabl e Stat e implementatio n pla n before [th e dat athat fina l actio n fo

r th e listin g o

f surfac e coal mine s i s publishe di n th e Federa l Register] ; (2 ) Commence dconstructio n withi n 1 8 month s fro

m[th e dat e that

fina l actio n fo r th e listin g o

f surfac e coal mine s i s publishe din th e Federa l Register] , or any earlie r time require dunde r

th e Stat e implementatio n plan ; an d (3 ) Didno t

discontinu e constructio n fo r aperio do

f 1 8 month s or

mor e an d complete dconstructio n withi n a reasonabl e time

. |FRDoo . 84-2820 0 File d 10-25-84 ; 8* 5 am | BILLIN G COD E 6560-50- M