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# OAR Box 1168 Prepped by Ollie Stewart



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Dea r Re g Ne g Committe e Member : Pleas e findenclose da draf t o f ou r "quickie " Federa l Registe r notic e announcin g th e result s o f th e negotiations . Accompanyin g thi s shor t notic e i n th e F R wil l b e th e draf t regulatio ntha t yo u alread y have . Th e EP A plan s t o hav e a pres s briefin g o n thi s successfu l negotiatio n (tentativel y

on Januar y

9) . I understan dsome o r al l o f th e negotiator s wil l b e aske dt o attend . W e woul dlik e t o hav e th e F R notic e ready

t o b e signe db

y then . I a

m askin g fo r a quick a s possibl e turnaroun drevie w o f thi s short , noncontroversia l documen t s o tha t w e ma y hav e th e fina l packag e prepare dby th e pres s briefing . Pleas e ge t any comment s yo u ma y

hav e t o Ja n (91 9 541 - 5254 ) o r m e (91 9 541-5262 ) by Januar y 2 . Ou r fa xnumbe r i s (919 ) 541-5661 . We canno t wai t longe r an d als o mee t ou r schedule . Thanks . Hav e a happ y

hoiiday .

Ric k Colye r Enclosur eP. 3

Draf t 12/19/9 0 [6560-50 ] ENVIRONMENTA L PROTECTIO N AGENC Y [FRL - ] NATIONA L EMISSIO N

STANDARD S FORHAZARDOU S AI RPOLLUTANT S Equipmen t Leak s

AGENCY : Environmenta l Protectio nAgenc y (EPA) . ACTION : Notic e o f result s o f rulemakin g negotiation . SUMMARY : OnApri l 25 , 198 9 (5 4 F R17944) , EPA

announce dit s inten t t o form a nadvisor y

committe e t o negotiat e issue s leadin g t o a ne w approac hfo r regulatio no f fugitiv e emission s o f volatil e organic s fro m equipmen t leak s (pumps , valves , etc. ) associate dwit hchemica l productio nproces s units . A meetin g wit hintereste dpartie s wa s hel dinWashington , D . C . o nMa y 15 , 1989 , t o discus s th e establishmen t o f suc ha committee , an donSeptembe r 12 , 1989 , EPA announce dth e formatio no f th e committe e unde r th e Federa l Advisor y Committe e Ac t (5 4 FR37725) . Th e Committe e me t periodicall y ove r a on e yea r perio dan dha s agree din principl e t o th e provision s andlanguag e o f a nequipmen t lea k regulation . Thi s announcemen t summarize s th e majo r provision s an dconcept s o f th e recommende drule . Th e EPA plan s t o propos e thi s rul e i nlat e 199 1 a s par t o f

a large r rul e tha t wil l cove r othe r emissio npoint s a s wel l a s equipmen t leak s
a t organi c chemica l plants . ADDRESSES : Docket . A docket , numbe r A-89-10 , containin g informatio n considere db

y th e Committe e indevelopmen t o f th e recommende dstandards , i s availabl e fo r publi c inspectio nbetwee n8:3 0 a.m . and3:3 0 p.m. , Monda y throug hFriday , a t Ai r Docke t Sectio n(LE-131) , Watersid e Mall , Room M1500 ,P. 4

Draf t 12/19/9 0 U.S . EPA , 40 1 M Street , SW , Washington , D.C . 20460
. Areasonabl e fe e ma yb e charge d fo r copying
. FO R FURTHE R INFORMATIO NCONTACT : Dr . Jane t Meye r o r Mr . Ric k Colyer , telephon e (919 ) 541-525 4 o r 5262 , respectively
. Th e addres s fo r bot h i s Standard s Developmen t Branc h (MD-13) , Emissio n Standard s Division , U.S . EPA , Researc h Triangl e Park , Nort h Carolin a 27711
. SUPPLEMENTAR Y INFORMATION : I . Backgroun d Fugitiv e emission s o f hazardou s organic s fro mproces s equipmen t leak s (pumps , valves , etc. ) contribut e significantl yt o ai r qualit yproblems
. Equipmen t lea k emission s hav e bee n estimate d t o accoun t fo r roughl yon e thir d

o f tota l organi c emission s fro mchemica l plants
. Moreover , becaus e the yar e release d nea r th e ground , th e impac t fro mfugitiv e emission s i s 1 0 t o 4 0 time s greate r tha n equa l release s fro mstacks
. Existin g regulation s adopte d unde r Section s 11 1 an d 11 2 o f th e Clea n Ai r Ac t and i n Stat e Implementatio n Plan s (SIP's ) hav e bee n effectiv e i n heightenin g awarenes s o f th e significanc e o f th e sourc e an d i n stimulatin g contro l efforts
. Th e existin g rule s basicall yrequir e tha t equipmen t i n plac e b e inspecte d periodicall yfo r leak s wit h a portabl e hydrocarbo n detector
. I f concentration s i n exces s o f 10,00 0 part s pe r millio n (ppm ) ar e found , th e componen t i s identifie d a s a "leaker " and maintenanc e i s required
. Thi s approac h i s know n a s "lea k detectio n and repair " (LDAR)
. Studie s conducte d b

yEP Ai n th e earl y1980 s indicate d tha t typica l uncontrolle d chemica l plant s and refinerie s hav e a lea k frequenc yo f 1 1 t o



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Draf t 12/19/9 0 1 2 percent . Maintenanc e studie s indicat e this ; ca nb e reduce db y abou t 6 0 t o 7 0 percen t wit hth e curren t LDA Rprogram . Dat a gathere dove r th e pas t coupl e o f year s o nequipmen t leak s a t variou s chemica l plant s indicat e tha t muc hlowe r lea k frequencie s ca nbe achieved . N o on e specifi c facto r ca nb e identifie dt o achiev e thes e results , bu t lea k frequencie s i ngenera l depen donorigina l desig n(e.g. , numbe r o f components) , ag e o f th e proces s unit , typ e o f equipmen t selected , qualit y o f maintenance , standar doperatin g procedure s use db y th e company , trainin g provide dt o employees , andleve l o f concer nove r healt handsafety . Attemptin g t o establis ha neffectiv e regulatio nfo r a s broa dan dvarie d

a sourc e categor y

a s chemica l productio nunit s present s severa l challenges . Som e o f thes e challenge s ar e th e inabilit y t o determin e fo r al l plant s how t o achiev e low

lea k frequenc y

wit ha simpl e se t o f rules , desir e expresse db y th e industr y t o hav e mor e flexibilit y i nachievin g low

lea k rate s tha ntha t provide db

y LDA Ralone , dat a availabilit y limite dt o onl y

a par t o f th e industry , an

dEPA' s nee dt o establis hstandard s unde r th e Clea nAi r Ac t Amendment s o f 199 0 (CAAA ) tha t woul dbe reflectiv e o f maximu m achievabl e contro l technolog y

(MACT ) fo r equipmen t leaks . Th e EP A considere dth e formatio no f a committe e t o negotiat e a ne w standar da s a

nappropriat e an

d efficien t mean s t o addres s thes e challenges . OnApri l 25 , 1989 , EP A announce dit s intentio nt o establis ha committe e t o negotiat e a ne w

approac hfo r contro l o f volatil e organi c chemica l equipmen t leak s (5 4 FR17944) , an dconducte da

ninitia l informationa l meetin g onMa y 15 , 1989 , t o determin e amon g potentiall y intereste dpartie s whethe r negotiatio n woul db e a desirabl e approach . Th e participant s a t th e initia l meetin gP. 6

Draf t 12/19/9 0 responde dfavorabl y

t o th e concep t o f negotiation , an donSeptembe r 12 , 1989 , EPA establishe da negotiatin g committe e (5 4 FR37725) . Th e Committe e me t ove r
a perio do f on e year , holdin g nin e 2-da y meeting s an

don e 1-day

meeting , t o resolv e th e variou s issue s relate dt o developin g a MAC T standar dfo r equipmen t leaks . Th e Committe e member s ar e liste dinAppendi xA . Th e negotiator s originall y wer e t o develo pstandard s fo r equipmen t leak s fo r 1 3 sourc e categorie s tha t woul db e affecte db y EPA' s forthcomin g hazardou s organi c nationa l emissio nstandar dfo r hazardou s ai r pollutant s (NESHAP) , o r HON . Thes e sourc e categorie s include dbot hsyntheti c organi c chemica l manufacturin g industr y (SOCMI ) an

dsom e non-SOCM I sourc e categories , andth e standard s unde r developmen t woul donl y hav e applie dt o 8 organi c chemicals . Ove r th e cours e o f th e negotiations , EP A saw th e nee dt o expan dthi s scop e t o includ e no t onl y

th e origina l HON

sourc e categories , bu t als o al l SOCM I processe s tha t use da s a reactan t o r produc e on e o f th e 14 9 organic s liste din th e CAA A lis t O f 18 9 hazardou s ai r pollutants . Th e EPA identifie d45 3 suc h processes . .I naddition , EP A announce dtha t petroleum refiner y

processe s woul d

no t b e covere da t thi s tim e b y thes e standards . Followin g th e fina l negotiatin g session , EP A drafte dth e regulator y languag e fo r commen t an drevie w b y th e Committe e members . Th e Committe e als o agree dt o sig na

nagreemen t inprincipl e base do nth e regulator y

language , an

d agree dt o sig nth e fina l agreemen t afte r a draf t preambl e t o th e regulatio n describin g indetai l th e scope , application , effect , an drational e ha s bee n prepare dandreviewe db y th e Committee . Al l Committe e member s hav e signe dth e agreemen t inprinciple . Appendi xB i s th e regulatio ninit s entiret y t o whic h the y hav e agreed . Upo nsignin g th e fina l agreement , th e Committe e member sP. 7

Draf t 12/19/9 0 agre e t o suppor t th e standard s a s lon g a s EP A propose s an

dpromulgate s them substantivel y

unchanged . Th e consensu s agreemen t reache db y th e Committee , a s spelle dou t inth e attache dregulator y

language , als o serve s t o initiat e voluntar y actio n previousl y

committe dt o b

y nin e chemica l companies . Thes e companie s wer e identifie dprio r t o thes e negotiation s b y EP A init s Ai r Toxic s Exposur e an d Ris k Informatio nSyste m (ATERIS ) databas e a s havin g some plant s wit h relativel y

hig hhealt hrisk . Afte r severa l meeting s betwee nrepresentative s
o f thes e companie s an dEPA , th e companie s agree dt o voluntar y timel y implementatio no f th e negotiate dstandard s a s soo na s th e regulator y • requirement s wer e available , befor e forma l proposa l an dpromulgation . II . Summar y

o f Negotiate dStandard s Th e followin g i s a genera l summar y o f th e requirement s an dconcept s o f th e negotiate dregulation . I t i s no t a detaile ddescriptio no f th e provisions , no r doe s i t contai nth e rational e o r basi s develope db y th e Committe e fo r th e variou s provisions . Th e reade r i s referre dt o th e actua l negotiate dregulator y languag e (Appendi xB ) fo r detai l o f specifi c provisions . Th e purpos e o f thi s announcemen t i s t o mak e intereste dpartie s an d

owner s o r operator s potentiall y subject t o thes e standard s awar e o f th e forthcomin g regulator y requirement s s o tha t the y wil l b e bette r prepare dwhe n th e rul e i s actuall y

issued . Th e covere dchemical s an dprocesse s ar e liste d respectivel y

inSection s XX.X8- 1 an dXX.X8- 2 o f th e negotiate drul e (Appendi x B ) . A detaile dpreambl e describin g th e rational e an dbasi s fo r th e regulator y requirement s fo r equipmen t leak s wil l accompan y th e actua l proposa l o f th e HON rule . Th e HO N

proposal , coverin g equipmen t leak s an dfou r additiona l sourc eP. 8

Draf t 12/19/9 0 categories , i s schedule dfo r proposa l i nFal l 1991 , wit hpromulgatio n schedule dfo r Fal l 1992 . Applicability . Th e standard s woul dappl y t o equipmen t involatil e hazardou s ai r pollutan t (VHAP ) servic e 30 0 o r mor e hour s pe r yea r associate d wit han y o f th e 45 3 processe s liste dinth e negotiate dregulation . The y woul d als o appl y

t o equipmen t handlin g specifi c chemical s fo r a limite dnumbe r o f liste d non-SOCM I processes . Th e equipmen t affecte dar e valves , pumps , connectors , compressors , pressur e relie f devices , open-ende dlines , samplin g connectio nsystems , instrumentatio nsystems , agitators , produc t accumulato r vessels , an

dclosed-ven t system s andcontro l devices . InVHA P servic e mean s tha t equipmen t contain s o r contact s a flui dtha t i s 5 percen t o r greate r VHAP's . Th e standard s woul dals o stagge r th e applicabilit y o f th e standard s t o th e covere dprocesse s ove r a n18-mont hperiod . Th e rul e create s 5 group s o f

covere dprocesses . Th e rul e woul dappl y t o th e firs t grou p6 month s afte r promulgation . Thereafter , th e rul e woul dbecom e applicabl e t o anothe r grou p
ever y 3 month s fo r a perio do f a year . Pump s andValves . Th e regulatio ni s structure dsimilarl y fo r pump s an

d valves . Standard s fo r bot hwoul db e implemente di nthre e phase s an dbot h standard s hav e associate dqualit y improvemen t program s (QIP's) . Th e firs t an d

secon dphase s fo r bot htype s o f equipmen t consis t o f a LDARprogram , wit h lowe r lea k definition s i nth e secon dphase. ' Th e LDA Rprogra m

involve s a periodi c chec k fo r organi c vapo r leak s wit ha portabl e instrument ; i f leak s
ar e found , the y

mus t b e repaire dwithi na certai nperio do f time . I nth e thir dphase , th e periodi c monitorin g ( a wor k practic e standard ) woul db eP. 9

Draf t 12/19/9 0 couple dwit ha targe t performanc e leve l (i.e. , allowabl e percen t leakin g components) . Proces s unit s no t meetin g th e targe t performanc e leve l woul dbe require deithe r t o monito r th e equipmen t mor e frequentl y o r t o implemen t a QIP . Pump s woul drequir e monthl y monitorin g usin g a

ninstrumen t andweekl y visua l inspection . Valves , woul dinitiall y requir e quarterl y

monitoring , bu t th e lengt ho f tim e betwee nmonitorin g coul db e increase di f th e percen t leakin g valve s demonstrat e incrementall y bette r performance , a s specifie din th e rule , ove r th e targe t performanc e level . Specia l provision s appl y t o pump s i nfood/medica l service , pump s in polymerizin g monome r service , "leakless " pumps , an dunsafe - anddifficult-to monito r valves . Owner s o r operator s ca ntak e partia l credi t i nth e calculatio no f percen t leakin g valve s fo r valve s permanentl y remove dfro

m th e i proces s units . Plant s wit hles s tha n25 0 valve s i nVHA P servic e ar e subjec t onl y t o LDA Ran dno t th e targe t performanc e level . A limite dnumbe r o f "nonrepairable " valves , i.e. , thos e tha t canno t b e repaire dwithou t a proces s uni t shutdown , ma y

b e exclude di nth e calculatio no f percen t leakin g valves . I f th e targe t performanc e level s fo r a typ e o f equipmen t ar e no t achieved , base do

na rollin g averag e o f monitorin g results , owner s o r operator s must , i nth e cas e o f pumps , ente r int o a QIP , andinth e cas e o f valve s ma y

eithe r ente r int o a QI P o r implemen t monthl y LDAR . Th e QI P i s a concep t tha t enable s plant s exceedin g th e targe t performanc e level s t o eventuall y

achiev e th e desire dlevel s withou t incurrin g penalt y o r bein g i

na noncomplianc e status . A s lon g a s th e requirement s o f th e QI P ar e met , th e plan t i s incompliance . Th e QI P basicall y consist s o f informatio ngathering , 7

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Draf t 12/19/9 0 determinin g superio r performin g technologies , an dreplacin g poore r performer s wit hth e superio r technologie s unti l th e targe t performanc e level s ar e achieved . Connectors . Th e rul e als o provide s fo r performanc e standard s fo r connector s interm s o f percen t leakin g connector s ineac hproces s unit . Th e negotiate dstandar dfo r connector s i s no t phase din , i.e. , th e performanc e leve l applie s a s soo na s th e rul e i s effectiv e fo r th e proces s unit . Consisten t achievemen t o f th e targe t performanc e leve l woul dresul t in monitorin g bein g require dles s frequently . Failur e t o achiev e th e targe t performanc e leve l woul dcaus e th e plan t t o remai nina nannua l monitorin g cycle . Specia l provision s woul dappl y t o connector s tha t ar e inaccessibl e o r unsaf e t o monito r o r repair . A limite dallowanc e fo r "nonrepairable " connector s woul db e allowe di f disturbe dconnector s ar e monitore dwithi n3 months . Credit s fo r connector s remove dfrom th e proces s uni t woul dbe allowe d inth e calculatio no f percen t leakin g connector s (or performanc e level) . Othe r equipment . Standard s fo r compressors , open-ende dlines , pressur e relie f devices , samplin g connectio nsystems , an dclose dven t system s an d contro l device s remai nessentiall y unchange dfro

m existin g regulation s (Se e 4 0 CF RPar t 61 , Subpar t V) . Agitator s mus t mee t LDA Rrequirements , bu t no t targe t performanc e levels . Pumps , valves , connectors , an dagitator s inheav

y liqui dservice ; instrumentatio nsystems ; an dpressur e relie f device s inliqui d servic e ar e subjec t t o instrumen t monitorin g onl y i f evidenc e o f a potentia l lea k i s foundthroug hsight , sound , o r smell . Instrumentatio nsystem s ar e



### ca mP.1 1

Draft . 12/19/9 0 bundle s o f smalle r pipe s an d tubin g tha t carr y

sample s o f proces s fluid s t o b e analyze dt o determin e proces s operatin g conditions . Dela y o f repair . Unde r certai ncondition s dela y o f repai r beyon dth e require d1 5 day s ma y

b e acceptable . Example s o f thes e situation s includ e wher e 1 ) a piec e o f equipmen t canno t b e repaire dwithou t a proces s uni t shutdown , 2 ) equipmen t i s take nou t o f VHA P service , 3 ) emission s from repai r wil l excee demission s from dela y o f repai r unti l th e nex t shutdown , 4 ) pump s wit hsingl e mechanica l seal s ar e replace dwit hdua l mechanica l seals , an d5 ) valve s assembl y

supplie s hav e bee ndeplete dfrom stocks . Alternativ e standards . Generally , a nalternativ e mean s o f emissio n limitatio nma y

b e use di f anowne r o r operato r ca ndemonstrat e emissio n reduction s equa l t o o r bette r tha ntha t require db y th e standards . Specifi c alternativ e standard s hav e bee nwritte nfo r batc hprocesse s an denclose d buildings . Batc hprocesse s ca nchoos e eithe r t o mee t simila r standard s t o thos e fo r continuou s processes , wit hmonitorin g frequenc y prorate dt o time in
use , o r t o periodicall y pressur e tes t th e entir e system . Enclose dbuilding s
ma y foreg o monitorin g i f th e buildin g i s kep t unde r a negativ e pressur e an d al l emission s ar e route dthroug ha close dven t syste m t o anapprove dcontro l device . Tes t method s an

dprocedures . Th e standard s woul dretai nth e us e o f Metho d2 1 t o detec t leaks . Metho d2 1 require s a portabl e organi c vapo r analyze r t o monito r fo r leak s fro m equipmen t inuse . Th e observe dscreenin g valu e ma y

requir e adjustmen t fo r respons e facto r i f th e weighte drespons e facto r o f th e stream

exceed s a specifie dmultiplier . Metho d1 8 i s t o be use d t o determin e organi c conten t o f a proces s stream . Tes t procedure s usin gP.1 2

Draf t 12/19/9 0 eithe r a ga s o r a liqui dfo r pressur e testin g th e batc hsyste m ar e specifie d t o detec t fo r leaks . Recordkeeping . Th e standard s woul drequir e a readil y accessibl e recordkeepin g system . Record s require dinclud e identificatio no f equipmen t tha t woul db e covere db y th e standards , identificatio no f equipmen t tha t i s foundt o b e leakin g durin g a monitorin g perio dan dwhe ni t i s repaired , testin g associate dwit hbatc hprocesses , desig nspecification s o f close dven t system s an

dcontro l devices , tes t result s fro m performanc e test s o r testin g proces s stream s fo r organi c content , an dinformatio nrequire db y equipmen t in QIP . Othe r recordkeepin g requirement s als o apply , andth e reade r i s referre d t o tha t sectio no f th e negotiate drul e fo r mor e detai l (se e Appendi xB) . Reporting . Owner s an doperator s woul db e require dt o submi t a ninitia l repor t tha t describe s th e sourc e an dal l equipmen t subjec t t o thes e standards . Ever y si xmonths , a repor t mus t b e submitte dtha t summarize s th e result s o f monitorin g an

dperformanc e test s conducte ddurin g tha t period , change s t o th e proces s unit , change s inmonitorin g frequenc y o r monitorin g alternatives , and/o r initiatio no f a QIP . Report s ca nb e submitte do nelectroni c medi a wher e acceptabl e t o bot hth e Administrato r an dth e owne r o r operator .

Dat e Deput y Administrato r



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Draf t 12/19/9 0 Appendi xA . Lis t o f Negotiator s Neqo t i ator/Affi1 i at i o n Rober t L . Ajax , EP A Alfre d Bickum , Internationa l Institut e fo r Syntheti c Rubbe r Producer s Bruc e Bowers , Standar d Chlorin e Lind a Curran , Amoc o Davi d Doniger/Alle n Hershkowitz , Natura l Resource s Defens e Counci l Davi d Dunn , Sterlin g Chemica l Larr yGoodheart/Elle n Seigler , America n Petroleu mInstitut e Jac k Kace , Pharmaceutica l Manufacturer s Associatio n Thoma s Kittleman , Chemica l Manufacturer s Associatio n Rober t Majewski , Northeas t State s fo r Coordinate d Ai r Us e Managemen t Le s Montgomery , Texa s Ai r Contro l Boar d HarvelRogers , Jefferso n Count y(Kentucky ) Ai r Pollutio n Contro l Distric t Gustav e Vo n Bodungen , Louisian a Departmen t o f Environmenta l Qualit y Facilitato r Phili p J . Harter , Esq. , Consultan t t o EP A Observe r Nicola s Garcia , Offic e o f Managemen t and Budge t

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# iAppendi xB [Regulation ]



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Draf t 12/19/9 0