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Footnot e 3 occurre d o n pag e 1 6 o f 6/2 9 draf t preamble . "Potentia l t o emit " i s currentl ydefine d a s th e "maximu m capacit yo f a stationarysourc e t o emi t a pollutan t unde r it s physica l an

d operationa l design. " Anyphysica l o r operationa l limitatio n o n the capacit yo f the sourc e t o emi t a pollutant , including a permi t limitation , i s treate d a s par t o f it s desig n provide d the limitatio n o r it s effec t o n emission s i s federall y enforceabl e (e.g. , se e existing sectio n 51.165(a)(1)(iii) , 51.166(b)(4)) . I n recen t decisions . Nationa l Mining Ass' n v . EPA , 5 9 F.3 d 135 1 (D.C . Cir . 1995 ) an d Chemica l Manufacturer s Ass' n v . EPA , No . 89-1514 , sli p OP . (D.C . Cir . Sep . 15 . 1995) . th e Distric t o f Columbi a Circui t cour t addresse d challenge s relate d t o EPA' s requiremen t tha t a sourc e whic hwishe s t o limi t it s potentia l t o emi t mus t obtai n a federall yenforceabl e limit . EPAi s currentl y reviewing it s federa l enforceabilit yrequirement s i n ligh t o f thes e cour t decisions , an d ha s no t ye t decide d howi t wil l addres s thi s issue . Onc e EPAha s complete d it s revie wo f th e rMV federa l enforceabilit yrequirement s i n al l relevan t program s r ^ . including NSR , th e Agenc ywil l mak e availabl e i n a Federa l Q^ \fi Registe r notic e it s respons e t o the cour t decisions . /jff \
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o r potentia l emission s o r emission s factors ; (2 ) whe n ne w "^^requirement s appl yt o the PA L pollutant , suc ha s RAC T o r othe r SI P require d reductions 24 ; provid e fo r a reductio n i n permitte d
_ . cmiooiono;—t o "diocount"—fo r RAC T o r othe r technolog yr __^Arequircment o ouc ha o MAC T o r SI P require d reductions ; -(3 ) t o r /
accoun t fo r the generatio n o f offset s o r permanen t shutdown s wher e th e Stat e ha s the authorit yt o remove permanen t shutdown s fromth e emission s inventoryafte r a certai n time period ; (4 ) whe n change s unde r the PA L migh t caus e o r contribut e t o a violatio n o f a NAAQ S o r PS D incremen t o r caus e a n advers e impac t o n ai r qualit yrelate d values ; an d (5 ) during periodi c review , consisten t wit hth e titl e V permi t renewa l proces s o f the appropriatenes s o f emission s level s se t i n the PALs . Aconcer n wa s raise d i n th e NS R ReformSubcommitte e discussion s abou t th e uncertaint ytha t result s fro mth e Stat e revie wan d renewa l o f th e PAL a s wel l a s an

yauthorit yt o adjus t the PAL . I t ha s bee n recognize d tha t source s wil l wan t t o maximiz e th e roomfo r growt h unde r a PAL . I f ther e ar e to o frequen t opportunitie s fo r a downwar d adjustmen t t o the PAL , a sourc e mayb e reluctan t t o accep t a PA

L fo r fea r o f losing allowabl e emission s throughthe State' s abilit yt o mak e adjustments .

2 4 Emission s reduction s o f HAP s t o mee t MAC T a t emission s unit s unde r a C< r PAL woul d generall yno t necessitat e a downward adjustmen t t o the PA L becauT e the PA L i s no t designe d t o limi t HAPs . However , i f MAC T reduction s ar e relie d o n i n the SI P (e.g. , VO C reduction s i n nonattainmen t area s use d fo r RF P o r attainmen t demonstrations ) the n the PA L need s adjustmen t downward ? PRELIMINAR

YSTAFF WORKIN

GDRAFT FO

ROFFICE O

F MANAGEMEN

T AN D BUDGE T REVIE

W * DOE S NOT REPRESEN T OFFICIA

L EP A POLIC Y •••November 3 , 199 5 [file name : Masterl.103 ] •• • 

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' ^/ / Preambl e Inser t t o NS RRefor m Proposa l onTemporar y Exclusion s fo r Nationa l Security Emergencie s Staf f Draf t 11/7/9 5 Th e Do D ha s als o raise d th e questio n o f whethe r par t 5 1 shoul d requir e Stat e permitting authoritie s t o gran t military source s temporaryexclusion s fro mth e requiremen t fo r preconstructio n revie wo f nfajo r modification s i n th e even t o f a "nationa l securit yemergency. " Th e Do D define s "nationa l securit yemergency " a s a situatio n wher e extremel yquic k actio n i s require d o n th e par t o f a MilitaryDepartmen t (e.g.,.... ) o r a Do D Componen t (e.g. , .... ) t o respon d t o emergenc ysituation s tha t mak e i t impractica l t o mee t th e procedura l requirement s fo r obtainin g a majo r NS R permi t i n advanc e o f a majo r modificatio n an d th e associate d increas e i n emissions . "Nationa l securit y emergencies " woul d includ e situation s wher e Unite d State s force s ar e introduce d int o hostilitie s o r peacekeeping operations , othe r situation s wher e involvemen t i n hostilitie s i s indicated , an d situation s wher e U.S . force s ar e calle d upo n t o protec t th e publi c healt ho r welfare , suc ha s responding t o release s o r discharge s o f oi l o r hazardou s material s (e.g. , i n accordanc e wit happrove d Spil l Preventio n an d Respons e Plan s and Spil l Contingenc yPlan s unde r ) , civi l disturbances , and natura l disaster s suc ha s hurricanes , earthquakes , and wildfires , and providin g emergenc yhumanitaria n relie f i n suc hcircumstances . Unde r Jthio exclusion , i n lie u o f the norma l preconstructio n

A. revie wprocess , th e militaryfacilit ywoul d appl yfo r and obtai n a n NS R permi t afte r th e emergenc yha s ended . Th e Do D believe s tha t regulatoryprovision s t o addres s "nationa l securit yemergencies " ar e necessaryt o enabl e th e Dc DP. 6

t o immediatel yand dramaticall yrespond t o suppor t specificall y designate d nationa l securit ymission s o r civilia n emergencies . Th e absenc e o f suc hemergenc yprovision s coul d hinde r th e abilit y o f loca l commander s t o compl ywit hPresidentia l directive s i n a timel ymanne r becaus e of : (1 ) th e time period s and publi c notic e requirement s involve d i n obtaining NS R permits ; and (2 ) emissio n limitations , operating restrictions , o r othe r loca l ai r quality

relate d requirement s whic hotherwis e canno t b e exceede d and whic h preclud e th e Do D fromresponding t o "nationa l securit y emergencies " a s needed . Th e EP Ai s requesting commen t o n the nee d fo r a n explici t regulatoryexclusio n i n th e NS R rule s fo r "nationa l securit y emergencies. " I n particular , th e EPAi s soliciting commen t o n th e lega l authorit yfo r suc ha n exclusion , whethe r suc ha n exclusio n shoul d b e mandatoryo r voluntaryfo r al l State s t o implemen t unde r ne wsourc e revie wSIPs , an d whethe r suc ha n exclusio n shoul d b e limite d t o th e DoD , o r whethe r i t shoul d b e mad e availabl e t o othe r publi c agencie s tha t mayb e calle d o n t o protec t th e publi c healt ho r welfar e i n respons e t o unforesee n natura l o r civilia n emergencies . I n addition , th e EP Ai s requestin g commen t o n th e specifi c for mtha t an

ysuc hprovision s shoul d take . Th e Augus t 31 , 199 5 supplementa l proposa l t o amend th e EPA' s regulation s a t 4 0 CF R par t 70 , tha t addresse s requirement s fo r Stat e Titl e V

operating permi t programs , raise d th e issu e o f whethe r simila r exclusio n provision s shoul d b e adde d t o par t 7 0P. 7

t o authoriz e loca l government s (an d othe r sources ) t o mak e ^ change s withou t revising th e source' s Titl e V permi t unde r specifie d circumstance s t o respon d t o emergencie s suc ha s natura l disaster s and sever e weathe r conditions . (See 6 0 FR 45560-45561 ) Th e EP Arequeste d comment s o n thi s topi c i n respons e t o preproposa l comment s submitte d b yStat e an

d loca l ai r pollutio n contro l agencie s tha t alread yhav e authorit yt o gran t temporary exclusion s a s a matte r o f Stat e o r loca l law . I n tha t notice , th e Agenc ysolicite d commen t o n th e prope r scop e an d term s o f an

y suc hauthorizatio n provisio n tha t migh t b e adde d t o par t 70 , including appropriat e procedura l safeguard s fo r exercisin g suc h authorit yconsidering th e scop e o f th e authorization . Example s o f procedura l safeguard s includ e prio r notificatio n o f a chang e b yth e sourc e requesting emergenc yauthorization , unles s prio r notificatio n i s no t possible , an d authorizatio n fo r th e permittin g authorit yt o attac hcondition s t o th e authorization , a s i t deem s appropriate , t o ensur e tha t th e chang e i s bein g mad e i n a manne r tha t wil l caus e th e leas t change , modification , o r advers e impac t t o life , health , property , o r natura l resources . Th e EP Abelieve s tha t simila r consideration s ar e appropriat e i n the contex t o f a temporaryexclusio n tha t migh t b e adde d t o th e NS R rule s i n part s 5 1 an d 52 . Furthermore , i n th e contex t o f respondin g t o comment s o n the par t 7 0 supplementa l proposa l an d o n today' s notice , the EPAwil l conside r whethe r temporary emergenc yexclusio n provision s tha t specificall yaddres s Do D source s shoul d b e adde d t o par t 7 0 a s wel l a s t o th e NS RP. 8 

# 8- 1 5|// regulations . Th e EPAsolicit s comment s o n whethe r suc htemporary emergenc yexclusio n provision s fo r th e Do D shoul d b e adde d t o par t 7 0 and o n ho wsuc hprovision s shoul d diffe r fromthos e tha t mayb e incorporate d i n the NS R regulations , shoul d suc h provision s b e adopte d fo r eithe r program . Th e Do D ha s suggeste d th e following approac hfo r including "nationa l securit yemergency " provision s i n th e NS R regulations . Sectio n 51.16 5 (an d section s 51.16 6 an d 52.21 ) woul d b e amende d t o add a definitio n fo r "nationa l securit yemergency " tha t i s base d o n th e discussio n o f tha t ter mabove . Anew , stand-alon e paragrap hwoul d b e adde d i n section s 51.165(a ) (§51.165(a ) ( )) , 51.166 , and 52.2 1 entitle d "Temporaryexclusion s fo r nationa l securit yemergencies, " whic hwoul d read a s follows : "Eac hpla n shal l provid e tha t action s o n th e par t o f a militar yfacilit yt o respond t ba nationa l securit yemergenc y tha t otherwis e woul d constitut e a majo r modificatio n shal l no t constitut e a majo r modificatio n fo r th e purpose s o f thi s section , provide d tha t th e /COMMANDE R f- nee d appropriat e term ] o f th e militaryfacilit ycomplie s wit hth e following conditions . Fo r th e purpose s o f thi s section , militaryfacilit yshal l mea n th e majo r stationarysourc e tha t i s owne d o r operate d byth e Unite d State s Departmen t o f Defens e an d tha t i s engage d i n nationa l securit yo r relate d activities . (1 ) A s soo n a s practicable , bu t n o late r tha n seve n calenda r day s afte r the actio n i n respons e t o a nationa l securit yemergenc ybegins , th e COMMANDE R o f th e militaryP. 9 

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facilit yshal l notif yi n writin g al l affecte d Stat e permittin g authoritie s an d EP ARegiona l Offices , an d th e appropriat e Secretar yo f th e Militar yDepartmen t o r Hea d o f th e Departmen t o f Defens e Component , tha t th e militar y facilit yi s respondin g t o a nationa l securit yemergenc yan d tha t th e militar yfacilit yintend s t o us e th e temporar y emergenc yexclusio n provide d fo r i n thi s section . Durin g th e firs t 3 0 calenda r day s o f th e nationa l securit y emergency , th e COMMANDE R o f th e militar yfacilit yshal l b e authorize d t o determin e whe n th e exclusio n unde r thi s sectio n applies . Suc hdeterminatio n shal l b e mad e onl y afte r th e COMMANDE R ha s mad e reasonabl e effort s t o accommodat e th e emission s increas e withou t deviatin g fro m otherwis e applicabl e permittin g requirements . (2 ) I f th e militar yfacilit yseek s t o rel yo n th e temporar y emergenc yexclusio n fo r longe r tha n 3 0 calenda r day s fro m th e dat e o f th e notic e i n paragrap h(1) , th e continue d us e o f th e exclusio n mus t b e approve d b yth e Stat e permittin g authorit yo n th e basi s o f informatio n provide d i n writin g b y th e appropriat e Secretar yo f th e Militar yDepartmen t o r Hea d
o f th e Departmen t o f Defens e Component . Th e authorizatio n b yth e Stat e permittin g authorit yt o continu e us e o f th e temporar ynationa l securit yexclusio n shal l b e reguire d fo r eac hconsecutiv e 3 0 da yperio d followin g th e otar t o f th o dat e o f th e notic e require d i n paragrap h(1) . (3 ) Durin g th e nationa l securit yemergency , th e COMMANDE RP.1 0

o f th e militaryfacilit yshal l tak e al l reasonabl e measures , wher e practicable , t o ensur e tha t an yphysica l o r operationa l change s t o the sourc e tha t resul t i n emission s increase s tha t otherwis e woul d constitut e a majo r modificatio n b e mad e i n a manne r tha t wil l minimiz e th e emission s increas e o r otherwis e minimiz e an yadvers e impac t t o publi c healt han d welfare . Suc hmeasure s mayinclud e the us e o f emissio n control s and prope r operatio n and maintenanc e practice s and/o r choosing material s o r operatin g scenario s tha t minimiz e deviation s fro mexisting permi t term s and conditions . I n addition , the COMMANDE R o f th e militar yfacilit yshal l mak e a reasonabl e effort , wher e practicable , t o monito r emission s during th e emergenc yi n Re
orde r t o quantif ythe emission s resulting fromphysica l o r 

### A operationa l changes . (4 ) A s soo n a s practicable , bu t n o late r tha n seve n calenda r day s afte r th e us e o f thi s exclusio n i s n o longe r needed , th e COMMANDE R o f th e militaryfacilit yshal l notif y i n writin g al l affecte d Stat e permitting authoritie s an d EPA Regiona l Offices , an d the appropriat e Secretaryo f th e Militar yDepartmen t o r Head o f the Departmen t o f Defens e Component , tha t th e militaryfacilit yha s cease d responding t o a nationa l securit yemergenc yfo r the purpose s o f thi s section . (5 ) A s soo n a s practicable , bu t n o late r tha n 4 5 calenda r day s afte r th e dat e o f th e notificatio n i n paragrap h(4) ,P.1 1 

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th e COMMANDE R o f the militaryfacilit yshal l provid e a writte n repor t t o al l affecte d Stat e permittin g authoritie s and EP ARegiona l Offices , an d t o th e appropriat e Secretary o f the MilitaryDepartmen t o r Hea d o f th e Departmen t o f Defens e Component , tha t describe s th e reason s fo r relyin g o n th e exclusion , the emission s unit s affected , th e amoun t o f increase d emissions , an d othe r informatio n neede d t o determin e th e natur e an d exten t t o whic hth e sourc e deviate d fromotherwis e applicabl e permitting requirements . (6)(i ) Th e COMMANDE R o f the militaryfacilit ynee d no t submi t a n applicatio n t o the Stat e permitting authorit yfo r a permi t unde r thi s sectio n i f th e physica l o r operationa l chang e t o th e sourc e resulte d onl yi n a temporary modification , tha t is , a modificatio n tha t last s n o longe r tha n th e perio d o f th e nationa l securit yemergenc yand tha t doe s no t expand th e capacit yo f the sourc e t o emi t a t a n increase d leve l afte r the cessatio n o f th e emergency . (ii ) A s soo n a s practicable , bu t n o late r tha n 4 5 calenda r day s afte r th e dat e o f the notificatio n require d i n paragrap h(4) , the COMMANDE R o f the militaryfacilit yshal l submi t a n applicatio n fo r a permi t unde r thi s sectio n i n the S even t tha t th e physica l o r operationa l change) ^ mad e a t th e sourc e i n respons e t o th e nationa l securit yemergenc yi s no t temporary . Fo r example , a n applicatio n fo r a permi t shal l b e require d i f the militaryfacilit yi s physicall ychange d o r ha s capacit yadde d i n way s tha t ar e no t late r reverte d c rP.1 2

otherwis e actuall yreturne d t o the pre-modificatio n conditions . (7 ) Th e permi t applicatio n unde r paragraph(6)(ii ) an d th e permittin g authority' s action s o n tha t applicatio n shal l compl ywit hth e requirement s o f thi s sectio n a s though constructio n ha d no t ye t commence d o n th e modification. "

Th e Do D ha s provide d some example s o f th e type s o f action s tha t militar yinstallation s coul d b e calle d o n t o tak e durin g nationa l securit yemergencie s tha t woul d resul t i n "temporary " and "nontemporary " modification s tha t otherwis e b e subjec t t o majo r NSR . An exampl e o f a temporarymodificatio n woul d b e whe n th e sourc e mus t pain t tactica l equipmen t using a particula r pain t tha t emit s greate r quantitie s o f VOC s an d whic hi s not
accommodate d byth e existing permit . Th e Do D i s concerne d tha t i t ma yno t b e possibl e t o anticipat e o r allo wfo r thi s possibilit yi n existing permit s becaus e o f th e difficult yo f predictin g wher e i n th e countrythi s operatio n maytak e place , an d loca l ai r qualit yregulation s maypreclud e the us e o f th e neede d paint . Similarly , i f the Do D mus t mak e physica l change s t o a sourc e t o increas e temporaril yit s capacit yt o pain t tactica l equipment , o r t o us e a differen t typ e o f paint , an d thes e change s woul d resul t i n emission s increases , thes e change s woul d b e considere d "temporary " if , afte r th e cessatio n o f th e emergency , the yar e returne d t o thei r pre-modificatio n condition .P.1 3 

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I n th e precedin g examples , unde r the DoD' s suggeste d language , th e physica l o r operationa l change s woul d no t b e require d t o underg o post-modificatio n NS R permitting . [CONTINU E WIT H NONTEMPORARY EXAMPLE ] Th e EP Ai s requesting comment s o n the appropriatenes s and sufficienc yo f th e preceding suggeste d languag e fo r inclusio n i n part s 5 1 and 52 . I n particular , the EPAi s soliciting comment s o n whethe r an

ytyp e o f preauthorizatio n b yth e permittin g authorit yshoul d b e require d befor e a militaryinstallatio n ma y us e th e temporaryexclusion , i f on e i s adopted . I n addition , th e EP Ai s intereste d i n knowing commenters ' opinion s and concern s abou t an

yadditiona l requirement s tha t shoul d o r coul d b e included , suc ha s additiona l element s tha t coul d b e include d i n th e repor t o n emission s increase s resulting fro mphysica l o r operationa l change s mad e t o respon d t o a nationa l securit y emergency , and abou t th e implication s o f providing fo r a nationa l securit yemergenc yexclusio n i f suc hprovision s ar e no t mandator y fo r al l States .P.1 4 

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# o Classifie d Informatio n The.DO D als o requeste d tha t the rule s a t 4 0 CFR 51.16 1 and 51.16 6 b e revise d t o provid e a n exclusio n fro mpubli c availabilit yrequirement s fo r classifie d information . EP Aagree s wit hDO D tha t informatio n properl yclassifie d unde r Executiv e Orde r i s no t require d t o b e mad e publicl yavailabl e and propose s t o codif ythi s vie wi n th e NS R rules . A s suggeste d byDOD , EP Apropose s tha t "classifie d information " b e define d i n th e NS R rule s a s i t i s define d i n the Classifie d Procedure s Act , 1 8 U.S.C . App . 3 , sectio n 1(a) , a s "an yinformatio n o r materia l tha t ha s bee n determine d b ythe Unite d State s Governmen t pursuan t t o a n Executiv e order , statute , o r regulation , t o requir e protectio n agains t unauthorize d disclosur e fo r reason s o f nationa l security. " Th e EPAnote s tha t crimina l penaltie s exis t fo r th e unauthorize d disclosur e o f classifie d information , define d i n th e Ac t a s "information , whic ha t th e time o f a violatio n o f thi s section , is , fo r reason s o f nationa l security , specificall ydesignate d b ya Unite d State s Governmen t Agenc yfo r limite d o r restricte d disseminatio n o r distribution. " 1 8 U.S.C . 798(b) . DO D and EPAbeliev e tha t thes e law s mus t b e rea d i n congruenc e wit hthe Clean Ai r Ac t an d the nee d fo r publi c availabilit yo f permitting information . Th e Ac t canno t b e reasonabl yinterprete d t o requir e a violatio n o f crimina l la wb y makin g classifie d informatio n publicl yavailable . A s recommende d b yDOD , EP Apropose s tha t the publi c availabilit yprovision s b e revise d a s follows : [51.161(b)(1) ] [51.166(g)(2)(ii) ]