p. 1



# OAR Box 1781 Prepped by Ollie Stewart



### Document

Number: 

# 98 ) IV-C-1 2 Docket Number: 

# A-90-3 7

Printed 10/29/2008 10:46:22 AM Sheet 98 of 142P. 2

•rft O ^ 4 / ' * % UNITE D STATE S ENVIRONMENTA L PROTECTIO N AGENC Y £ M^ B 'd

5 WASHINGTON , D.C

. 2046 0 

# A-lo-3 7 EaT^-l l

OFFIC E O F AI R AN D RADiADQ N


### ' 4 

### 1999 Honorabl e Ric

k Bouche r Hous e of Representative s Washington , DC 20515-480 9 Dea r Congressma

n Boucher : Thi s i s i n respons e t o you

r letter o f Ma y 12,1999 , tha

t encouragedth e Environmenta l Protectio n Agency (EPA) , a s par t of th e current

effor t t o refor mth e ne w sourc e review (NSR) program , to reexamine the criteri atha t determin e when majo

r stationar y source s ar

e subject t o th e ful l progra mrequirements
. Yo

u state dthat

you r understandin g i s tha

t th e basi s fo

r evaluatio n o f

source s i s actua

l productio n andurge dEP

A t o chang e thi s to potential , rathe r tha n actual.'level s fo

r evaluation purposes . Yo u expresse dconcer n tha t th e curren t methodlimit s th e domesti c productio n ofacok e tha t i s mor e environmentall y friendly tha n acheaper , bu

t mor e pollutin g coke , which i s bough t offshore
. You sugges t

that th e existin g progra

mha s the impac t o f degradin g air

qualit y while a t the sam e tim e creatin g economi c hardship fo r workers i n th e coa l an dcok e industries
. The curren

t NS Rregulation s i n n o wa

y limi t th e productio n of

cok e b y an y source . However , in accordanc e wit h the Clea n Air Act , an y ne w majo

r sourc e o f air pollution emission s o

r asourc e tha

t make s aphysica

l chang e a t aplan t or achang e in th

e methodo f operatio n tha

t result s in asignifican

t increas e i n emissions , mus t obtain apreconstructio n permit
. A fundamenta

l tenet o f the Clea n Ai r Ac t i s that a s ne w industria

l productio n capacit

y i s built , o r ol dcapacit

y i s replace do

r substantially modified , th e bes t air pollutio n control s shouldb e installe dan

dth e air qualit y consequence s o f

th e emission s shoul db e evaluated
. In area s designatedattainmen t o r unclassifiable , th e Preventio n o f Significan t Deterioratio n (PSD ) requirement s apply t o ne w major source s an

dsignifican

t ne t emission increase s of

eac h pollutan

t resultin g from apropose dmodificatio n a t amajo r source . Th

e PS D requirement s include application of th e bes t availabl e contro l technology to the ne w o r modified emission s unit s a

t whic h a n increas e occurs . Further , th e sourc e mus t analyze th e impact o f post-controlle demission s o n the ambien

t concentration s a s well a s effect s on soils , water , vegetation , visibility , an

dClas s I area s (larg e National Park s andWildernes s Areas)
. Unacceptabl e impact s suc

h a s violation s o f

national ambient

ai r qualit y standard s (NAAQS ) or allowabl e change s i

n ambien t concentration s o f

pollutant s (increments) , advers e impacts on Clas s I areas , o r

localize dimpacts on soils , water , vegetation , an dvisibilit y must be mitigate d befor e th e sourc e ca

n begi n constructio n on th e propose dproject
. I n thos e instance s wher

e a

Interne t Addres s (URL ) •http:/A«ww.epago v Recycled/Recyclabl e •Printe d wit h Vegetabl e Oi l Base d Ink s o n Recyde d Pape r (Minimu m 25 % Postconsumer )P. 3

ne w sourc e o r

modification i s minor

an ddoe s no t

trigge r th e majo r sourc e NS Rapplicabilit

y thresholds , th e mino

r ne w sourc e or

modificatio n permittin g proces s i s to includ e a n air qualit y impac t assessmen

t t o insur e tha t ambien t ai r qualit y standard s ar

e protected
. Se

e 4 0 C.F.R
. § 51.160
. A sourc e tha

t use s state-of-the-ar

t emission s control s fo

r eac h pollutan

t ca n ofte n expedit e th e permitting proces s an doptimiz e opportunitie s fo r expansio n or

growth
. Your comments appea

r t o refe r t o ho w th e NS Rrule s calculate a n emission s increas e a t source s undertakin g aphysica l o r operationa

l change , thereb y subjecting the sourc e t o all th e major ne w sourc e provisions
. I

n general , th e rule s calculate th e emission s increas e froma chang e b y comparing the actua l emission s fromal l emission s unit s affecte db y the chang e t o thos e units ' post-chang e potentia l emissions
. A sourc e ma

y tak e enforceable restriction s o n operatin g parameter s o

r direct emission s that

preven t th e calculate dincreas e fromexceeding th e significant emission s threshold
. Or , i t ma y take credi t

fo r actua l emissio n reduction s o f

th e same pollutan t tha t have occurre

di n th e severa

l year s (typicall y th e las t

5 ) preceding the chang e t o yiel dane t

emission s increas e (or

decrease ) tha

t i s lowe r tha n th e significan

t emission s threshold
. I t i s crucia l t o not e tha t th e emission s increas e calculatio n i s necessar y onl y whe n a facilit y make s aphysica

l chang e o r chang e i n th e metho do f

operatio n tha

t increase s emissions
. Change s tha

t d o no t resul t in asignifican

t ne t emission s increas e do no t trigge r majo r NSR
. Further , source s tha

t simpl y increas e operation s withou t aphysica l o r operationa

l change—fo

r instance , t o tak

e advantage of

norma l marke t fluctuations—are exemp t

frommajo r NSR
. [See 4 0 C.F.R
. § 52.21(b)(2)(iii)(f). ] Th e EP A has , i n a199 6 propose drulemaking , sough t publi c commen

t o n changing thi s calculatio n t o us e potentia

l emission s a s th e pre-chang e baseline
. [See 6 1 F R38250,38268-7 0 (Jul y 23 , 1996). ] Th

e EP A presently i s considerin g publi c comment s on thi s proposa l an dhope s t o complete final rulemakin g b y Januar y 2000
. W e appreciate your comments an

dwil l include you r lette r i n the publi c docke

t fo r thi s rulemaking
. Wit h respect t o th e environmenta

l impac t o f coke bought

offshore , w e agree wit

h your commen t tha t the processe s by which some foreig n coke i s produce dma y be mor e pollutin g than comparabl e U S technology
. However , i t i s our understandin g tha

t th e foreig n cok e use din th e U.S
. i s comparabl e in qualit y t o tha t produce ddomestically , sinc e U.S
. iro n an dsteel industrie s ca n onl y us e cok

e tha t fall s i n afairl y narro w rang e o f

qualit y specifications
. W

e woul dno t expect , therefore , t

o se e an y appreciabl e impac t

o n U.S
. ai

r qualit y fromthe us e o

f foreign coke
. It i s not the inten t o f the ne w sourc e revie w progra

mt o adversely affec

t the competitivenes s o

f an y industry
. Th

e progra mi s designe dt o tak

e advantag e of

the opportunit

y presente db y majo

r ne w constructio n o r

reconstructio n t o evaluat

e th e effectivenes s o f

availabl e air pollutio n controls
. I

n the cas e of

th e domesti c cok e industry , w e believ e tha t anumbe r o f factor s ma

y b e responsible fo

r th e declin e in production , includin g reduceddemand , aging facilities , andincreasedforeig n competition
. We applau dth e efforts b y companie s such a s Jewel l Coa

l andCok e to develo

p cleane r coke productio n technology
. 

# l aP. 4

k *

I appreciat e thi s opportunit

y t o b e o f servic e an dtrus t

tha t thi s infonnatio n wil l b e helpful t o you . Sincerely ,

Rober t Perciasep e Assistan t Administrator



# 3P. 5 -r'»>-- , "a" , f i UQ>

f W1 "

I appreciat e thi s opportunit

y t o b e o f servic e an dtrus t

tha t thi s information will b e helpfu l t o you . Sincerely ,

Rober t Perciasep e Assistan t Administrato r USEPA:OAQPS:ITMD:nG:DCrumpler:y|horpe:919-541-0871:NCMU:MD-12:5/27/9 9 Revise d5/28/99.DCrumpler:pfinch:919-541-528 1 Contro l #AL-990121 3 Due : 5/27/9 9 FILENAME : F:\boueher3.wp d FILE : RE G 149 E



# LP. 6

05/19/9 9 . 10:3 1 ©7036282.0 3
RIC K BOUCHE R BT H DISTRICT . VIRGINI A

COMMERC E SUBCOMMITTEES : TELECOMMUNICATIONS . TRADE A CONSUME R PROTECTION ENERG Y AN D POWEI

a
JUDICIAR Y SUBCOMMITTEE : COURT S AN D INTELLECTUAL PROPERT Y ASSISTAN T vm w BOUCHE RABN . 12)00 2



## Coftgpe ^ o

f tfj e Umte b State s tlotuef e o tftepreftntattoe* Ma y 12,199 9
Th e Honorabl e Caro l M
. Browner Administrato r Environmental Protection
. 40 1 M Street , N W Washington , D.C
. 2046*0 WASHINGTO N OFFICE : m» RAYDUR

N HOUS E OFFIC E BUIUSNO WA6HmG70N,OCJ0616-4«« > W2)2Ka38B 1 •-null : NINTHNET@MAILHOU8E.GO V WWW : hnpV/www.house.gov/t)oucher / CONSTITUEN T SERVIC E OFFICES : ta a EAS T MAI N STREE T ABINGDON . VIRGINI A 2431 0 16*10)638-11« 5 11 1 SHAWNE E AVENU E EAST B O STON E GAP , VIRGINI A I4IT S

C40IU1-64S 0 10 B NORT H WASHINGTO N AVENU E

P.O . BO X 1M B PULASKI , VIRGINI A MM 1 rMoieeo-oi o

agenc y

Dea r Administrato r

Braw n r : I understan dtha t

ef l nt s are currentl y underwa

y a t th e Environmental Protectio n Agenc y t o updat e th e "Ne w S o ire e Revie w Program. " I t i s m y understandin g tha t

th e basi s for evaluatio n o f

source s uldedbot h th e 197 7 rale andth e 199 0 draf t rul e i s actua l production
. I a

mwritin g t duri e th e EP

A t o chang e thi s basi s fromactual productio n to potentia l productio n fo r

evlluxio n purposes . Companie s hav e been penalize db y los s o f productio n durin g previou s yes rs du e t o EPA' s us e o f actual productio n t o establis h permi t limits
. I a mrequestingkha : tht : EP

A incorporate int o th e "Ne w Sourc e Revie w Refor m Regulations " change s tyat vil l allo w acompan

y t o recoup potentia l productio n los t durin g th e previou s fiftee

n (15 ) y < a r j eriod
. I n Southwes t

Virgi i ia, l e are atha

t I represent , coa

l an dcok e productio n i s apilla r o f th e regional economy . Th

e 19 ! 0 Ne w Sourc e Review Draf t Rul e currentl y i n effec t

ha s very seriou s implication s fo i t h s sc . -.tor , particularl y fo

r th e cok e industry
. Th e curren t

rul e penalize s companie s w li e , d i rin g th e previou s fifteen-yea r period , experience ddecrease d deman ddu e t o avariet r

o m ake f an dbusiness , factors
. Becaus e Preventio n o f Significant Deterioratio n (PSD ) thres l sldfo r permittin g purpose s are presentl y base dupo n actua l productio n levels , companie s - •'hose productio n level s were abnormall y depresse ddurin g thi s tim e wer e unabl e t o i

n Jre , s e thei r

productio n t o norma

l level s withou t

bein g re subjecte dt o th e PS D pern ] t n vie w process . Therefore , when tiie cok e marke t improve di n th e year s followin g 1983 , iro < ucer s i n m

y distric t were unabl e t o regai n productio n los t throug h applicatio n o f

th e ;xi j Lin g Ne w Sourc e Revie w program . A s aresult , th e co n pa

t ie s that were force dt o reduc e productio n i n 198 3 an dforward t o stay i n busines s durin g im < > o f economi c hardshi p hav e permanentl y los t productio n tonnag e unde r

th e progp i
. T i

e establishment

o f arecoupment

windo w for

th e previou s fifteen year s o f

potential f

odactio n woul db e fai

r an dwoul dserv e a s amore accurat e representatio n of aplant' s s mssion s over

th e cours e o f

a n economi c cycl e lan t 

# bP. 7

05/19/9 9 10:3 2 ©703628220 3 BOUCHE RABN . ©00 3

Ma y 12,199 9 -pag e two
A s yo u ma y b e aware , th e Jewel l Thompso n Non-Recovery Cok e Ove n technology ^ whic h wa s develope di n Southwes t Virgini aan di s i n us e a t

th e Jewel l Coa l an dCok e Company locate di n m y congressional district , i s th e world' s cleanes t cok e productio n facilit y an dremain s th e industr

y standardfor

MaximumAchievabl e Contro l Technolog y (MACT)
. However , applicatio n o f

th e 197 7 Ne w Sourc e Revie w Progra man dth e 199 0 Ne w Sourc e Revie w Draf

t Rul e ha s miniinize dth e potential economi c andenvironmental benefi t t o b e realize dthroug h us e o f thi s technology
. Th e limit s o n cok e productio n hav e resulte d no t onl y i n advers e economi c impact s for th e companie s i n m y Congressional Distric t an d thei r workers , bu t

als o i n an inadequate domesti c suppl y o f coke
. Consumer s o f

cok e ar e thu s force dt o rel y more|heavily | o n importe dcoke , muc h o f whic h i s produce doversea s witi i significantl y fewer

environmenta

l controls
. So , whil e tiie inten t o f th e EP A i s t o improv e ai r J quality , tiie effec t

o f th e implementatio n o f

th e existin g programi s t o degrad e air-quality b y ( increasin g th e us e o f

"dirty " foreig n coke , whil e a t th e sam e time creatin g economi c I hardshi p fo r

worker s i n th e coal lan

dcok e industrie s i n th e Unite dStates
. I t i s m y hop e that ! a s th e EP A develop s th e Ne w Sourc e Revie w Refor mRegulations , i t wil l draf t th e regulation s i n suc h away a s t o allo w for apreviou s fifteen-year

recoupmen t windo w wher e companie s can b e re-awarde dpotential productio n los t a s aresul t

o f th e Ne w Sourc e Revie w Program
. Th e unintende dconsequence s o f tiie Ne w Sourc e Revie w program shoul dno t b e t o punis h America

n cok e producer s wh o ar e producin g th e cleanes t cok e i n tiie world
. I appreciat e you r

attentio n t o m

y concern s an dI loo k

forwar dt o you r reply
. I f I ca n provid e yo u o r

you r staf f wit h an y additional informatio n pleas e giv e m e acall
. Wit h kin d regard s an dbes t

wishes , I remai n
% Sinperely ,

RB/ae h i ' Ric k Boucher Membe r o f Congres s 

# 0 ?05/19/9 9 10:3 0 ©703628220 3 BOUCHE RABN .



# Congres s a f tfje UnftEf rState ! JBflttg E a f agnTTtfPTTtrrtflTg

g P. 8 Bioo i



### Fa x Niimhe r (540 ) 62B--2Z03i .

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### FA X NUMBER : FROM : DATE : COMMENTS : 

# Ric

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# iP. 9

* £% \ UNITE D STATE S ENVIRONMENTA L PROTECTIO N AGENC Y | ^f e I RESEARC H TRIANGL E PARK

. N C 2771 1 %«o« ^ Apri l 5 , 199 9

OFFIC E O F AI R QUALIT Y PLANNIN G MEMORANDU M AN D STANDARD

S SUBJECT : Reques t

t o Clarif y Preventio n o f

Significan t

Deterioratio n (PSD ) Baselin e Are aan dCorrespondin g Baselin e Dat e for Breto n Nationa l Wildlif e Refug e an dWildemes s Are a FROM : Bil l Harnett , Actin g Directo r {j^ ^IV A / ^ Informatio n Transfe r

& Progra mIntegratio n Divisio n (MD-12 ) TO : Robert

E
. Hannesschlager , P.E. , Actin g Directo r Multimedi aPlannin g an dPermittin g Division (6PD ) Winsto n E
. Smith , Directo r Ai r Pesticide s & Toxic s Managemen t Division (4-APTMD ) Thi s responds t o you r

memorandu mt o Joh n Seitz , date dMa y 4,1998
. Yo u requeste d guidanc e for

establishing a

n inventor y o f

source s t o asses s th e ai r

qualit y impact s a

t Breto n Nationa l Wildlif

e Refug e an dWildemes s Are a(Breton)-- aClas s I are aunde r th e Preventio n o f Significan t

Deterioratio n (PSD ) program . I n particular , yo u presente dthre e question s establishin g th e neede dinventor y an dthe n offere dtw o possibl e approache s for respondin g t o th e questions
. You r

staf f an dmin e hav e discusse dthes e questions , an dw e gav e preliminar y response s t o participant s o f th e Breto n ai r

qualit y stud y at

th e meetin g i n Biloxi , Mississipp i o n Januar y 21,1999
. Participant s o f th e meetin g include drepresentative s fromEP A Region s I V an dVI ; th e Minerals Managemen t Service ; Fis h an dWildlif e Service ; th e State s o f

Alabama , Louisian aan dMississippi ; an dsevera l onshor e an doffshore industries
. Som e participant s recentl y requeste da n official writte n respons e fromEP A t o clarif y th e PS D polic y for

carryin g out

th e Breto n ai r

qualit y study
. Thi s memorandu mprovide s EPA' s positio n concernin g th e appropriat e polic y for determinin g th e amoun t

o f PS D incremen t currentl y bein g consume da t Breto n b y source s i n th e adjoinin g State s an db y source s offshore
. Ou r polic y i s mos t

lik e th e approac h whic h yo u provide da s Alternativ e 2 i n you r Ma y 4,199 8 memorandum
. Questio n 1 : Ho w d o w e develo p aPS D emissio n sourc e inventor y (o r conversely , abaselin e sourc e inventory ) develope dfo r Clas s I area s wit h a n impac t regio n encompassin g man y States ? Response : In abaselin e sourc e inventory , yo u (th e stud y group ) shoul dinclud e informatio n abou t an y sourc e whos e emission s ar e determine dt o affec t th e incremen t

i n th e are ao f

concern . 

# ? Recycled/Recyclabl e •Printe d wit h Vegetabl e O H Base d Ink

s o n 100 % Recycle d Pape r (40 % Postconsumer )P.1 0

Source s whos e emission s affec t th e incremen

t fal l int o on e o f tw o categories :

• Majo

r stationar y source s whos e emission s increase do r decrease da s aresul t

o f constructio n occurrin g afte

r th e majo r sourc e baselin e date ; and *• An y sourc e (stationar

y source , are asource , mobil e source ) whos e emission s increase do r decreasedon or

afte r th e minor sourc e baselin e date
. For Breton , th e majo

r an dminor sourc e baselin e date s are these :

• Th e majo r sourc e baselin e date i s fixe db y regulatio n fo

r each applicabl e pollutant (Januar y 6,197 5 fo

r particulate matte

r an dS0 2 andFebruar

y 8,198 8 fo

r NOJ
.

- Th e minor sourc e baselin e dat

e ma y var y fromon e are ato another
. S o d o tw o things :

—Firs t identif y th e applicabl e baselin e area . Fro mth e informatio n i n your earlie r communications , Breto n i s i n th e Souther n Lousiana-Southeas t

Texa s Interstate Air

Qualit y Contro l Regio n (AQCR)
.

—The n determin e whethe

r such a n are aalread

y ha s aminor

sourc e baselin e date
. Again , fromthe information in you r earlie r communications , th e mino r sourc e baselin e date s fo

r th e Louisian aportio n o f

th e AQCRare Augus t

197 7 fo r particulate matte

r andS0 2 , andFebruar

y 198 8 fo r NO x . A s explaine di n our

respons e to questio n 2 , th e mino r sourc e baselin e date s associatedwit

h other nearb y State s are irrelevant t o th e incremen

t analysi s a t Breton
. For atypica l incremen t analysis , mos t

o f th e source s affecting the increment normall y wouldb e locatedin th e baselin e are aassociate dwit h th e applicabl e mino r

sourc e baselin e date , an

donly a fe w wouldb e locate doutsid e tha t baselin e area . However , becaus e o f Breton' s uniqu e location , man y source s whos e emission s coul dconsume it s increment migh t b e outsid e Breton' s baselin e area . You'v e chosen a

n acceptabl e wa

y to identif

y thos e emission s b y includin g source s located , a t aminimum , withi n aradiu s o f 10 0 kilometer s o f

Breton
. Adjus t

thi s approac h a s necessary . For example :

• Inside th e 100-kilomete r radius , you needn' t

includ e small source s wit

h onl y trivia

l impacts
. *• Outside th e 100-kilomete r radius , yo u shouldscreen ver

y larg e source s fo

r th e potentia

l impact s o f their emission s andfo

r possibl e inclusio n i

n th e inventory
. Questio n 2 : Becaus e baselin e area s ar e limite dt o intrastat e regions , ho w d o emission s fro m source s i n on e Stat e affect

th e increment s in anothe r Stat e when th e State s hav e differen t mino r sourc e baselin e dates ? Response : Whe

n yo u calculat e th e amoun

t o f incremen t consume din aparticula

r baselin e area , onl y the mino r sourc e baselin e date applicabl e t o tha t baselin e are ai s relevant
. Baselin e area s 

# 1P.1 1

ar e limite dt o intrastate region s becaus e o f a n EP A polic y tha

t prevent s emission s from asourc e i n one Stat e fromtriggerin g th e minor sourc e baselin e dat

e (andestablis h th e baselin e area) i n anothe r State
. Se e 4 5 F

Ra t 52716 , Augus t

7,1980
. However , onc e th e mino r sourc e baselin e dat e an dcorrespondin g baselin e are aar e establishe din an

y portio n of aState , EP

A believe s tha

t an y chang e in air

qualit y occurrin g in suc

h are ashoul daffec

t th e PS D increment s fo

r th e area , regardles s o f

th e locatio n o f

an y sourc e contributin g to th e change
. Thi s i s consistent wit h Congress ' intent

tha t th e maximu

mallowable increas e i

n pollutant concentratio n (increment

) in a baselin e are agenerally b e measure dagains t th e area' s chang e i n air

qualit y whic h occur s followin g th e establishmen

t o f it s minor sourc e baselin e date
. Se e statutor y definitio n o f "baselin e concentration " a

t sectio n 169(4 ) o f

titl e I o f th e Clea n Ai r Act
. Clearly , source s locate doutsid e th e affecte dbaselin e are ama

y contribute t o achang e i n air qualit y withi n th e affecte

dbaselin e area . For

emission s change s fromsuc h source s to affec t th e incremen t in th e sam

e wa y a s emission s generatedinside th e affecte dbaselin e area , it

i s necessar y to relate thos e change s to the area' s minor sourc e baselin e date
. Thus , a s explaine di n ou r respons e to questio n 1 , th e only mino r sourc e baselin e dat

e relevant t o incremen

t consumption a

t Breto n i s th e mino r

sourc e baselin e date establishe dfo r th e baselin e are a associatedwit

h Breton
. Questio n #3 : Shoul d th e PSD inventor y includ e OuterContinenta l Shel f (OCS ) sources ? Response : Yes , EPA' s positio n i s tha t th e PS D inventor

y shouldinclud e OC S sources , wher e appropriate
. Congress , i n declarin g it s purpos e fo r th e PS D provision s i n sectio n 16 0 o f th e Act , addressedth e potentia

l fo r increase dai

r pollutio n without

distinguishin g between the type s o f ai r pollutio n sources . EPA' s longstandin g polic y ha s bee n tha t baselin e concentration s reflect actua l ai r qualit y i n a n are aandtha

t an y emission s no t

include di n th e baselin e count agains t th e increment
. Congres s di didentif

y certai n circumstance s (som e permanent , other s temporary ) fo r which State s coulddecide to exclude certai n emission s fromth e increment-consumptio n process , bu t emission s fromoffshor

e source s wa s not

amon g thos e exclusions
. In 1990 , Congres s explicitly addressedth e potentia

l fo r air qualit y problem s resultin g fromoffshor e source s b y addin g sectio n 32 8 o f the Clea n Ai r Act
. Ne w sectio n 32 8 sough

t to protec t Federa l andStat e ambien t air qualit y standards , ensur

e complianc e wit

h the PS D requirements , an dspreadth e burden o f achieving thes e goal s mor

e equitably betwee

n onshor e an dOC S sources . I n 1992 , EP

A issue dregulation s a

t 4 0 CF Rpar t 5 5 to implemen

t th e sectio n 32 8 requirements
. Th e EP

A believe s tha

t emission s fromOC S source s ma y affec t increment s whethe r or no t a n OC S sourc e itsel f

i s subject to 4 0 CF Rpar t 55
. However , th e onl

y emissio n increase s a t OC S source s tha

t count agains t th e increment s a

t Breton are thos e increase s which occu r afte r Breton' s minor

sourc e baselin e date
. Also , emission reduction s a t OC S source s wil l expan dth e amoun

t o f availabl e incremen

t a t Breto n whe

n th e reduction s improv e the air qualit y a t Breton afte

r it s minor sourc e baselin e date
. 

# I DP.1 2

I hope tha t thi s informatio n help s th e Breto n air qualit y study grou

p t o determin e the ai

r qualit y impact s causin g Breton' s PS D incremen t t o b e consumed
. I f

mor e question s com

e up , pleas e contact

Da n deRoec k

a t 919/541-5593 , o

r E-mail a t deroeck.dan@epamail.epa.gov
.P.1 3

j " ?

£% * UNITE D STATE S ENVIRONMENTAL PROTECTIO N AGENC Y K . &\«^tW^ f 

## # G % )l€^ > I t^ 1 ^ § HEGION 6 . / X^U^J 144 5 ROS S AVENUE . SUIT E 120

0 A. Jj

• X«o ^ DALLAS , T X 75202-273

3 ^ » 7 ->iv ^ 

### •MA Y * ; « TOO ? 

### ^ "/ ^

MEMORANDU M ^ SUBJECT : Reques t fo r Clarificatio n o f Preventio n o f Significan t

Deterioratio n (PSD ) Baselin e Are a an d Correspondin g Baselin e Dat e FRO M : A ARober t E . Hannesschlager , P.E. , Actin g Directo r 'fflJS***^ Ir Multimedi a Plannin g an d Permittin g Divisio n (6PD ) r^i

& 

### Winsto n A , Smith , Directo r

A i r Pesticide s & Toxic s Managemen t division ) fc'4-ABTMD) TO : Joh n Seitz , Directo r fj• ' » '

Offic e o f Ai r Qualit yPlannin g an d Standard s (MD-10 ) Thi s memorandu mi s t o reques t guidanc e o n establishin g a n inventor yo f PS D source s (o r inventor yo f baselin e sources ) fo r th e assessmen t o f PS D impacfe s a t Clas s 1 areas . Th e issue s addres s appropriat e baselin e date(s ) an d baselin e area s a s the y appl yt o source s impactin g a Clas s 1 area . Environmenta l Protectio n Agenc yRegion s 4 an d 6 ar e workin g wit h th e Mineral s Managemen t Servic e (MMS) 7 Fis h an d Wildlif e Servic e (FWS) ; th e State s o f Alabama , Louisiana , an d Mississippi ; an d onshor e an d offshor e industr yo n a cumulativ e ai r qualit ystud yo f Breto n Nationa l Wildlif e Refug e an d Wildernes s Are a (BNWA) . Breto n i s a Preventio n o f Significan t Deterioratio n (PSD ) Clas s I ai r qualit yarea , whic h i s potentiall yimpacte d b yai r emission s fro m bot h onshor e an d offshor e sources . Th e FWS , th e lan d manage r fo r BNWA , contend s tha t th e PS D incremen t i s o r wil l soo n b e exceede d fo r sulfu r dioxid e (S0 2 

### ) an d perhap s nitrogen-oxid e (NO J . Th e specifi c issue s an d eac h alternat e vie w ar e describe d belo w alon g wit h additiona l backgroun d information
. Th e Breto n Ai r Qualit yStud y(BAQS ) wil l includ e source s located , a t a minimum , withi n a radiu s 10 0 kilometer s o f BNWA . Thi s include s source s i n thre e States . Sinc e ther e ar e multipl e State s involve d wit h differen t mino r sourc e baselin e dates , thre e question s hav e arisen : Ho w i s a PS D emissio n sourc e inventor y(or , conversely , a Baselin e Sourc e Inventory ) develope d fo r Clas s I area s wit h a n impac t regio n encompassin g man yStates ?



# IX -P.1 4

Becaus e baselin e area s ar e limite d t o intrastat e regions , ho w d o emission s fro msource s i n on e Stat e affec t th e PS D increment s i n anothe r Stat e whe n th e State s hav e differen t mino r sourc e baselin e dates ? Shoul d Oute r Continenta l Shel f (OCS ) source s b e include d i n th e PS D inventory ? Th e partie s involve d ar e no t i n complet e agreemen t o n th e answer s t o thes e questions
. On e positio n i s tha t emissio n source s ar e include d i n th e BNWAPS D emissio n inventor ybase d o n th e baselin e date s associate d wit h th e source' s location
. Anothe r vie w i s tha t th e baselin e date s associate d wit h BNW A shoul d b e use d t o identif yemissio n source s t o b e include d i n th e BNW APS D emissio n inventor yindependen t o f thei r location
. Th e purpos e o f thi s memorandumi s t o obtai n you r guidanc e o n th e prope r procedur e t o us e i n assessin g th e PS D incremen t a t a recepto r whe n th e source s ar e locate d i n region s wit h differen t Mino r Sourc e Baselin e Dates . Alternativ e 1 : Ther e ar e thre e date s o f significanc e t o PS D incremen t assessments : 1 . Majo r sourc e baselin e dat e 2. . Trigge r dat e 3 . Mino r sourc e baselin e dat e Bot h th e majo r sourc e baselin e and trigge r date s ar e th e sam e fixe d date s fo r al l States . Th e mino r sourc e baselin e dat e varie s b ysourc e locatio n base d upo n th e dat e th e firs t complet e PS D applicatio n wa s receive d b yth e permittin g authorit yafte r th e trigge r date . Th e regio n aroun d th e BNWAinclude s severa l States , al l o f whic h hav e th e sam e majo r sourc e baselin e date s bu t coul d hav e differen t mino r sourc e baselin e dates . Th e difficult ylie s i n identifyin g th e emissio n source s t o b e include d i n th e PS D incremen t assessmen t modelin g fo r BNWA . Th e followin g PS D characteristic s mus t b e considere d i n addressin g thi s issue :

• PS D incremen t an d baselin e concentration s ar e fictitiou s concentration s tha t ar e define d b ycompute r modelin g studies
. Thes e concentration s canno t b e measure d i n th e atmosphere . Th e concentration s ar e determine d fro m emission s o f particula r subse t o f source s tha t ar e selecte d



# 1 3P.1 5

base d o n th e relationshi p o f thei r construction/modificatio n dat e t o th e baselin e dates . Baselin e area s fo r whic h baselin e date s ar e establishe d ar e limite d t o intrastat e areas . Tha t is , on e Stat e canno t se t baselin e date s i n anothe r State . Th e baselin e date s associate d wit h th e locatio n o f a sourc e determin e whethe r th e sourc e i s define d a s a baselin e o r PS D sourc e fo r impac t modelin g purposes . PS D source s ca n consum e PS D incremen t beyon d th e baselin e are a associate d wit h th e source' s location
. PS D incremen t assessment s a t a locatio n ar e onl yperforme d afte r th e mino r sourc e baselin e dat e i s establishe d fo r th e location
. Base d o n th e abov e characteristic s o f th e PS D program , th e PS D incremen t analysi s a t BNW Ashoul d b e performe d wit h a modelin g emissio n inventor yo f PS D source s fro mal l State s affectin g BNWA . Th e source s selecte d fo r BNWA' s PS D modelin g inventor yshoul d b e base d o n eac h source' s construction / modificatio n dat e relativ e t o th e baselin e date s associate d wit h th e lodatio n o f th e sourc e (i.e. , sourc e locatio n dependen t no t recepto r dependent) . Therefore , th e emissio n source s fro meac h | Stat e containe d i n th e BNW APS D modelin g inventor ywil l b e thos e source s eac h Stat e ha s identifie d fo r us e i n thei r intrastat e PS D assessments . e 

# SD J
Th e followin g ar e som e o f th e mino r sourc e baselin e date s o f concer n fo r BNWA : Pollutant s PM1 0 

### S0 2 

### NO x Alabam a

Augus t 197 7 Augus t 197 7 Februar y 198 8 Mississippi 1

iy..yxx , xi.:^£'.Xx.' HI >i':xi.'xxi**;x*'jxj. Augus t 197 8
Januar y198 9 Louisian a

Augus t 197 7 Augus t 197 7 Februar y 198 8 Florid a

Decembe r 197 7 Decembe r 197 7 Marc h 198 8 Note : 1 . Th e S0 2 an d NO z baselin e date s ar e base d o n Hancoc k an d Harriso n counties , respectively , whic h wer e th e firs t complet e PS D application s i n th e State .

I A s a n example , Louisiana' s mino r sourc e baselin e dat e i s th e earlies t o f an yo f th e State s o f concern . Actua l emissio n 

# 14 -P.1 6



### •fi * change s fro mal l source s locate d i n Louisian a afte r thi s dat e

shoul d b e include d i n th e BNW APS D modelin g sourc e inventory
. However , fo r source s locate d i n Mississippi , th e BNW APS D modelin g sourc e inventor yfo r S0 2 shoul d onl yinclud e actua l emissio n change s fro mal l source s afte r Augus t 1978 . Thi s sam e sourc e selectio n rational e shoul d b e use d fo r PS D source s i n othe r State s t o ensur e prope r PS D incremen t analysi s a t th e BNWA . 

# [ Regulatio n o f OC S sources , i n th e Centra l an d Wester n Gul f o f Mexico , i s unde r th e jurisdictio n o f th e U.S . Departmen t o f th e Interio r (DOI ) an d emission s fro mthes e source s ar e controlle d t o th e exten t tha t the yma ysignificantl yimpac t any nearb yonshor e areas . Th e OC S i s no t classifie d wit h respec t t o Nationa l .Ambient Ai r Qualit yStandard s (NAAQS ) complianc e statu s o r PS D classes . Thes e source s ar e no t directl ysubjec t t o a PS D program . Therefore , ther e i s n o applicabl e trigge r date , baselin e date , baselin e concentration , o r baselin e area . Unde r thi s alternative , OC S source s woul d no t b e include d i n th e PS D modelin g inventor yfo r th e BNW Acumu' i a^y f inr--r.aT-n.aT.- h consumptio n study . ^TThi s paragrap h wa s provide d b yMMS. ) ^ Alternativ e 2 : Th e baselin e dat e shoul d b e associate d wit h Louisian a (i.e. , th e locatio n o f th e receptor) . M l sources , includin g thos e i n othe r State s and th e OCS , withi n a give n radiu s o f th e receptors , affec t increment
. Th e followin g i s justificatio n fo r thi s opinion
. Th e definitio n o f baselin e are a i s an yintrastat e are a (ever ypar t thereof ) designate d a s attainmen t o r unclassifiabl e unde r sectio n 107(d)(1 ) o f th e ac t i n whic h a majo r sourc e o r majo r modificatio n establishin g th e mino r sourc e baselin e woul d construc t o r woul d havfe^a n ai r qualit yimpac t equa l t o o r greate r tha n 1 ug/m 3 o f th e pollutan t fo r whic h th e mino r sourc e baselin e i s established
. Sinc e BNWAi s i n th e water s o f Louisiana , an d thu s i n th e sam e intrastat e area , th e mino r sourc e baselin e dat e fo r Louisian a applie s t o th e selectio n o f source s fo r inclusio n i n th e BNWAPS D modelin g inventory
. Th e definitio n o f baselin e concentratio n i s th e ambien t concentratio n leve l whic h exist s i n th e baselin e are a a t th e tim e o f th e applicabl e mino r sourc e baselin e date . Abaselin e concentratio n i s determine d fo r eac h pollutan t fo r whic h a baselin e dat e i s establishe d an d shal l include : actua l emission s fro msource s i n existenc e o n th e mino r sourc e baselin e dat e an d .emission s fro mmajo r stationar ysource s whic h commence d constructio n befor e th e majo r sourc e baselin e dat e bu t wer e no t



# \0P.1 7

i n operation b

y the mino r sourc e baselin e date . [52.21(b ) (13) ] I t woul d see

m tha t th e ambien t concentrat i on whic hexist s i n the baselin e area , whic hinclude s Breton , a t th e tim e o f th e mino r sourc e baselin e dat e woul d b e compose d o f actua l emission s fro m source s i n existenc e o n th e mino r sourc e baselin e dat e an d woul d includ e al l sources , including are a an d mobile , regardles s o f wha t Stat e they ar e in . Conversely , i t woul d see m tha t change s i n emission s afte r the mino r sourc e baselin e date , fro m al l sources , regardles s o f >jfc ' jurisdiction , affec t the incremen t i n the area , includin g BNWA .

Therefore , source s i n th e othe r State s bega n affecting th e incremen t a t BNW

A onc e the baselin e dat e fo r Breto n wa s triggere d an d thu s shoul d b e include d i n the PS D modelin g inventory . Th e objective o f the PS D progra m i s t o preven t significan t deterioration o f ai r qualit y i n a particula r geographi c area , regardles s o f whic hsource s ma y b e contributing t o pollutan t concentration s there . I f the baselin e dat e i s se t fo r a particula r protecte d resourc e b y geographi c are a rathe r tha n for a source , the n the Louisian a mino r sourc e baselin e dat e i s applie d t o the whol e area , including th e OCS . Th e regulatory statu s o f individua l source s become s insignificant . Instea d onl y thei r impact s ar e significant ; they eithe r consum

e o r expan

d the availabl e increment . (Thi s paragrap hwa s provide d by

MMS. ) Ther e i s anothe r aspec t fro m th e modelin g analysi s tha t i s germane t o the baselin e dat e issue . Thi s analysi s wil l involve ^longe r transpor t o f emissions^fo r whic hchemistry an d depositio n nee d t o b e considered . I n a traditiona l PS D modelin g analysis , th e calculation s o f chemistr y an d deposition wer e simplified , sinc e they

wer e assume d t o hav e negligibl e effect s ove r rathe r shor t distance s - i.e . <5 0 kilometer s (km) . I n a traditiona l PS D modeling analysis , onl y the change s i n emission s fro m th e baselin e dat e woul d b e inpu t int o th e Industria l Sourc e Complex (ISC ) models . Thes e change s o f emission s coul d b e positiv e o r negativ e depending o

n whethe r the actua l emission s ha d increase d o r decreased . Th e simplification s t o the chemistry an d deposition i n the IS C mode l result s i n a linea r relationshi p betwee n emission s an d concentrations . I n mos t cases , thi s i s acceptabl e becaus e result s can b e presume d t o b e essentiall y th e sam e a s taking th

e differenc e betwee n tw o separat e modelin g analyses : on e modelin g performe d wit hcurren t source s an d one modeling performe d wit honl y emission s fro

m baselin e sources . Thi s ca n b e done unde r th e assumption tha t the emissio n change s an d th e ambien t concentration have a linea r relationship . However , the IS C model s becom e overl y

conservative beyond 

# lipP.1 8

5 0 kilometers , canno t accep t inpu t fro mOC S source s an d canno t accep t inpu t fro mnon-steadyo r intermitten t sources . Therefore , th e mode l o r model s identifie d a s suitabl e ma yno t b e designe d t o accep t "emissio n differences " a s input
. Modelin g usin g baselin e emission s t o estimat e th e baselin e concentration s wil l probabl y b e neede d i n orde r t o conduc t th e PS D incremen t modelin g analysis
. Therefore , t o mode l th e baselin e concentration s a t BNWA , i t appear s necessar yt o requir e tha t th e sam e dat e b e use d i n al l State s fo r th e baselin e emissions
. I f i t i s necessar yt o includ e source s fro mothe r State s i n th e baselin e concentratio n analysi s beginnin g a t th e sam e baselin e date , i t woul d als o b e necessar yt o includ e incremen t consumin g source s fro mothe r State s i n th e curren t concentration s analysis
. Carefu l examinatio n o f th e othe r definition s als o suppor t thi s position : Majo r sourc e baselin e dat e - dat e afte r whic h actua l emission s associate d wit h constructio n a t a majo r stationar y source ' affec t th e availabl e PS D increment : Januar y6 , 1975 , fo r Particulat e Matte r and S0 2 , an d Februar y8 , 1988 , fo r NO x [52.21(b)(14 ) (i)l
. Thi s definitio n doe s no t limi t th e affec t o f emission s t o a give n baselin e are a o r eve n a specifi c State . Considerin g mino r change s t o majo r source s du e t o constructio n an d eve n majo r change s acros s Stat e boundaries , i t is , i n theory , possible , althoug h highl yunlikely , fo r a n area' s incremen t t o b e consume d withou t eve r triggerin g th e mino r sourc e baselin e date . Mino r sourc e baselin e dat e - earlies t dat e afte r th e trigge r dat e whic h a complet e PS D applicatio n i s receive d b yth e permi t reviewin g agency . Thi s mark s th e poin t i n tim e whic h actua l emission s change s fro mal l source s affec t th e availabl e incremen t regardles s o f whethe r th e emission s change s ar e a resul t o f constructio n [52.21(b)(14)(ii)]
. Onc e again , thi s definitio n doe s no t limi t th e effec t o f emission s t o a give n baselin e are a o r eve n a specifi c State . Th e PS D Worksho p Manua l summarize s emission s increase s tha t consum e incremen t as : i n genera l - ar e al l thos e no t accounte d fo r i n th e baselin e concentratio n an d specificall yinclude :

• actua l emission s increase s afte r th e majo r sourc e baselin e date , whic h ar e associate d wit h physica l change s o r change s i n th e metho d o f operatio n a t a majo r source ; and

• Actua l emission s increase s a t an ystationary , are a source , o r mobil e sourc e occurrin g afte r th e mino r



# 1 7P.1 9

.1

sourc e baselin e dat e (PS D Worksho p Manua l - draf t 1990 ,

pag e CIO ) Thi s summar

y doe s no t limi t the affec t o f emission s t o a given baselin e are a o r even a specifi c State . Th e DO I ai r qualit y regulation s recogniz e tha t OC S facilitie s can rnpt-r-thn-ft f ra -i-nr-roTnont

- rnriT..TiTrrt

i n n i n adjacen t onshor e areas * ^ar t 3 0 section 250.4 5 (g ) (2 ) (instate s tha t emission s fro

m o£ bfacilitie s canno t caus e an exceedanc e o f th e maximu m allowabl e increase s ove r the baselin e concentration s establishe d i n 4 0 Cod e o f Federa l Regulation s 52.2 1 i n an attainmen t o r unclassifiabl e area . Tha t mean s tha t OC S source s shoul d b e counted i n the PS D incremen t consumption for an y are a tha t ma y

b e impacted b

v OC S -sources . Likewise , the Clea n Ai r Act , infSection 328(a)(4)(B)> ^ recognize s tha t pollutio n fro m OC S activitie s coul d potentially " impac t complianc e wit hth e PS D program . (Thi s paragrap hwa> s provide d b

y MMS. ) Unde r thi s alternative , an y change s i n emission s i n an y Stat e o r o n th

e OCS , afte r Louisiana' s mino r sourc e baselin e date , woul d b e counte d toward incremen t consumption o r incremen t expansion a t BNWA . (Thi s paragrap hwa s provide d b

y MMS. ) Summary/Decision Request : Guidanc e i s requeste d on the prope r procedur e t o b e use d i n developing a multi-Stat e PS D emissio n sourc e inventor y o r a Baselin e emission sourc e inventor y fo r th

e assessmen t o f th e impact s a t Clas s 1 areas . Clarificatio n o f thi s issu e wil l enabl e the Breton Ai r Qualit y Stud y t o continu e t o mee t it s goa l o f determinin g the incremen t consumptio n o f th e BNWA , PS D Clas s I area . I f you have an y questions , pleas e cal l Reverdi e Daro n Pag e o f Regio n 6 a t (214 ) 665-722 2 o r Mr . Stanley Krivo o f Regio n 4 a t (404 ) 562-9123 .

%P.2 0

March 30,199 9 NOTF
. TO RT

T J
. HARNET

T SUBJECT : Guidanc e fo r Completin g aPS D Incremen t Analysi s a

t Breto n Nationa

l Wildlif e Refug e an dWildernes s Are a FROM : Da

n deRoeck , E G Summary : Th

e attache dmem

o fo r your signatur e contain s guidanc e explainin g EPA' s PS D polic y fo r carryin g out

aClas s I are aincremen

t analysi s involvin g sourc e contribution s from multipl e State s a s wel l a s fromoffshor e sources . Th

e situatio n i s somewha

t uniqu e i n tha

t Breto n i s a

n islandof f th e coas t o f Louisiana , whos e air

qualit y i s affecte db y onshor

e source s locate di n the State s o f

Louisian aandAlabama , a s well a s b y offshor e source s locate di

n th e Gulf o f Mexico
. A s explaine di n th e memo , whil e such factors ad dsome complexit

y t o th e require d analyis , they do no t

chang e th e fundamenta

l approach fo

r carryin g ou t

a n incremen

t analysis
. Tha t is , whereve

r th e source s o f

emission s ar

e located , emission s change s whic h affec t incremen t ar e considere dbase do n th e majo r andminor

sourc e baselin e date fo

r th e are awhere th e incremen t i s bein g measured
. Background : O

n Ma y 4,1998 , Region s I

V andVI requeste dguidanc e to help astud y grou p (comprise do f

Governmen

t an dindustr y stakeholders ) calculat

e th e amoun

t o f PS D incremen

t bein g consumeda

t Breton
. Se e attache dmemo t o Joh n Seitz
. I n response , severa l telephon e conversation s wer

e hel din which I explaine dou r polic y to person s fromRegion s I V an dVI
. Also , th e issue s were discusse di n on e o f our monthly NS Rconferenc e call s involvin g Regiona l an dHeadquarter s NS Rcontacts . On Januar y 21,1999 , th e Breto n Air

Qualit y Stud y Grou p (Region s I

V an dVI , Alabama , Louisiana , Mineral s Managemen t Services , Fis h an

dWildlif e Service , an

dsevera l representative s fromindustry ) met to attemp t t o resolv e issue s relate dto th e developmen t o f a n emission s inventor

y an dmodelin g protoco l t o carr y ou t th e PS D incremen

t analysi s fo

r Breton
. The industr

y representative s indicate dthat , unles s EP A provide dsome specifi c writte n guidanc e to direc t the Group' s effort, they woul dn o longer supppor t th e study
. The attache drespons e provide s the guidanc e bein g requeste db y th e stud y group . Drafts o f

thi s respons e were reviewe d b y all Region s an

dth e Office o f

Genera l Counsel , an

dtheir comment s wer

e considered
. I

n addition , the respons e wa s recently given t o TomMurawsk i fo r aplai n englis h review
. Hi s comment s wer

e als o incorporate dinto th e attache dmemo .



# 1 1