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## Document

Number: 

# 64 ) ll-F-1 1

Docket Number: 

# A-90-1 9

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## P. 2 

# A-90-1 9 ll-F-1 1

Not e t o Tro v Hillie r Subject : Cos t Effectivenes s estimate s fo r Benzen e NESHA P Date : Sept

. 29 , 199 2

Attache d ar e page s fro mth e Septembe r 14 , 198 9 preambl e fo r Benzen e Storag e Vessel s NESHA P an d th e Marc h 7 , 199 0 preambl e fo r th e Benzen e Transfe r Operation s NESHAP

. Thes e page s sho w th e anticipate d emission s reduction s an d cost s fo r th e tw o rules

. Th e number s fro

mth e benzen e transfe r operation s rul e wer e use d t o develo p th e uppe r en d o f th e rang e o f cos t effectivenes s value s include d i n th e briefin g packag e yo u aske d m e abou t thi s morning

. Th e number s fro

mth e benzen e storag e vessel s rul e wer e use d t o develo p th e lowe r en d o f th e rang e o f cos t effectivenes s value s include d i n tha t briefin g package

. A n averag e o f th e cos t an d emission s estimate s fo r benzen e storag e vessel s wa s use d t o estimat e th e rule' s cos t effectiveness

. I f yo u hav e an

y mor e question s abou t th e dat a EPAha s provide d t o you , pleas e giv e m e a cal l a t (919 ) 541-0248

.



# ~u * 

# w c 

# ^ — 1L~\~P. 3

Federa l Registe r /

Vd . 54 . No . 177 /

Thursday . Septembe r 14 . 198 9 / Rule s aa d Regulation s 3807 ! Althoug h a n increase d cyanid e concentratio n i n wastewate r t s expecte d wit h th e us e o f indirectcoolin g instea d i f direc tfina l coolin g a tcok e byproduc t 1 . ants , th e increas e (abou t20 0 g/M g o i c i ke ) i s no tanticipate d t

o caus e problem s fo r complianc e wit

h effluen t regulations . Summary of

Cost and Economic Impacts: Th

e nationwid e capital cos to f th e standard s fo

r furnac e an d foundr y plant s combine d i s estimate d a tabou t S7 4 million (196

4 dollars) : nationwid e annua l cost s ar e estimate d a

t$1 6 miiiion/yr . Th e increas e incurred i n th

e pric e of furnac e an d foundr y cok e a a a resulto

f th e standard s i s estimate d t o be less tha n on e percent . The EPA' s economi c analysi s indicate s tha

ta tbaseline , severa l plant s ma y hav e margina

l cost s o f operatio n greater tha

n th e pric e o f cake . Th e analysi s predict

s tha t implementatio n o

f th e standard s ma

y ad d on e mor

e plantt o thi s group . However , a company decisio n t o actuall y clos e a planti s base d o n a numbe r of factors tha

ta n economi c mode l canno tconsider , including : tb e premiu m a planti s willin g t o pa

y fo r a secure , captiv e cok e supply ; requirement

s fo r a particula r cok e quality : ag e o

f th e batteries , foundry

, o r stee l mill : continue d acces s t o profit s fro m stee l production ; an d management' s perceptio n regardin g thei r futur e cost s an d revenues . Th

a EP A recognize s tha

timplementatio n o f

th e standard s coul d b e th e facto r tha twoul d trigge r closure decision s a tplants tha t ar e presentl y margiaa

i o r operatin g a ta loss . Benzene Storage Vessels Summary ofthe Standards: Th e fina l standards , in 4

0 CF R 8 1 Subpar

tY . ar e mos tsimilar t o th e standard s proposed fo r benzen e storag e vessel s unde r proposed polic

y Approache s A . 8 . and C . Th e standard s requir

e contro l o

f al l ne w an d pxisrtn

g storag e vessel s greate

r tha n o r equa l t o 3 s m * (10.00 0 gallons ) used t o stor e benzen e makin g th e specification s incorporate d b y reference i n J 61.270(a

) fo r industria

l grad e benzen e o r refined benzene-4S& , -535 , o r -345 . Th e standard s d o no tappl

y t o storag e vessel s use d fo

r storin g benzen e a tcok e by-produc

trecovery facilitie s becaus e the

y ar e considere d unde

r th e cok e by-produc

trecover y plant s NESHAP . Th e standard s requir

e us e o f certai n kind s o

f equipmento n eac h typ e o f benzen e storag e vesse L Tabl e 2 hst s th e requirements . 'ABL E 2.—€QU«PMEM T REQUIRE D O N SENZEN E STORAG E VESSEL S B Y *0 CF R PAR T 6 1 SUBPAR T Y

vaaa w a n an d am * o i

'. fixe d roo

t if R i

. ,3f l m * corsmjcoo n atto r Jw y 29

. j '988 : o r >36m*

. core . I f-wca d curi a uucsov

t ono r r a Jo * 28.1988

. an a ne o ; ^ o 'FH , o r fa a a n if R I turnou t i continuou s S H ! I S o t an y 28

. 1988

. 5

. >3 B m*

. aiiiiiam.a u > # R cortstruroo n pna r t o -J * i u 23

. 1988

. an d na d a n <F R a c t July 29

. '9*8

. i £? a vesse l i. ,3 8 nf. eonananca d consBucao n atta r OJ/I T 28

. 1988 : a r j>38nH

. com IF R wrtngqud mouna w o r

gaaaaia d roo

t fifflnOS.

gaskaNdreo f WSnoa. *

primar y aaa l an d a

» Jua r 29

. 1988 , an a a e > t a tiw i mniw n |

• a a o c Jul y iS

. 1088

. 3

. ,3 3 n* 4

. convnanc M consvucsof

t ono t o o Jul y i 28

. 1388

. an a na d a | iqud-mounta d snmai y i s«a i a * o f Jul y 28

. T968

.

1 Gasaaon Q of roof fitsno a s roojaaat f S M Su e ttfno> m e vassa l • daouaan

. « n » aacowgag

y aa * m watawaS » e ara

t a— a tm n m • otqasaad

. The benzen e storag e vesse l standard s tequir e tha tfixed roo f

vessel s inchid e a n IF R wit h a continuou s sea l an d gaskete d roof

fittings . Specifically , tb e standard s require tha tne w fixe d roo f vessel s an d existin g fixe d roof vessel s t o whic h a n IF R wa s adde d afte r Jur

y z & 1388. mas thav e EFR*

s with either : fl ) A iJauidHiHnmte

d continuou s seal . (2 ) a vapor-mounte

d primar y sea l witi i a secondar y sea l bot

h o f whic h ar e continuous , o r (3 | a mechanica l sho e sea l Thes e vessel s are als o required t o hav e gaskete d roof

fittings , eve n i

f the y have a secondar y sea l Thes e requirement

s mas tb e metbefor

e vessel fillin g fo r ne w vessel s o r withi n 9 0 day s o f th e effectiv e dat e of

thi s regulatio n fo r existin g vessels . Existin g fixe d roo f vessel s tha

talread y ha d IFR' s o n Jul y 28.1968 . an d hav e vapor-mounte d primar y seal s ar e no trequired t o ad d secondar y seal s o r t

o hav e thei r vapor mounte d seal s replace d wit h liquid mounte d seals . However , existin g shingle d sea i IF R vessel s sr e required t o replac e thei r shingle d sea l wit h a continuou s sea l withi n di e 90-day compliance period . Al l vessel s with IFR' s prior t o Jul y 2 & 1988 . ar e als o require d t o hav e gaskete d fittings, eve n i f the y have secondar y seals . However . fo r thes e existin g vessels , the fitting s ca n b e retrofitted a

tth e firs tdegassin g o r withi n 1 0 year s (whicheve r i s first). Owner s o f existin g an

d ne w EF R vessel s ar e require d t o instal l liquid mounted primar

y seal s (or mechanica

l sho e seals ) an d continuou s secondary seal s meetin g certai n ga

p requirements . Fo r ne w vessels , thes e requirement s mus tb e me tbefor e vessel-filling . Fo

r existin g vessel s tha

tdi d no thav e liquid mounte d primar y seal s a s o

f Jul y 28 . 1988 . the y mus tb e me twithi n 9 0 day s o

i th e effectiv e dat e o

f thi s regulation. Existing EF

R vessel s alread y equipped wit h a liquid-mounted primar y sea i d s o . Jul y 28.1988 . ar

e required t

o ad d th e secondar y sea l a tthe firs tdegassin g o

f th e vessel . However , thos e wit h othe r type s o f primar y seal s (e.g. . vapo r o

r mechanica

l shoe ) mus tad d th e required type s o f primar y an d secondar y seal s withi n 90 day s of

the effectiv e dat

e o f this regulation . Th e standard s requir

e tha teach IF R vesse l be inspecte d fro

m insid e prio

r t o th e filling of th e vesse l (I

f i ti s a ne w vesse l o r i s emptie d t

o instal l contro l equipment

) and atleas tonc a ever

y 1 0 years . A n IF

R havin g defect s o r a sea l having hole s o

r tear s woul d hav e t

o b e repaired befor

e fillin g di e storag e vesse l wit h benzene . Th e standard s als o require tha

tth e IF R and its sea l b e inspecte d throug

h roo f hatche s o

n th e fixed roo f a tleas tonc e annually . However , i

f a n IF R wer e equippe d wit

h a primar y an d secondar y seal , di e owne r o r operato r coul d conducta n interna l inspectio n ever y 5 year s rather tha n perfor m di e annua

l inspections . An y defect s suc

h a s roo f sinking . liquid o n th e deck , hole s o

r tear s i n di e sea l o

r primar y sea l detachmen t(o r secondary sea l detachmen ti

f on e i s i n service ) a

3 viewe d throug

h the roo f hatche s ar

e require d t o b e repaired withi n 4

5 day s o t th e storag e vesse l woul d have t o b e emptied . I f repai r withi n 4 5 day s i s no

t possible , an

d alternat e storag e i s no

t availabl e t

o allo w th e tan k t o b e emptied , th

e owne r o r operato r coul d reques ta n extensio n o

f u p t o 3 0 additiona l days . Th e standard s als o requir

e that, fo r EF R vessels , th

e primar y sea l an d secondar y sea l gap s b e measure d initiall y an

d a tleas tonc e ever

y 5 years fo r th e primar y sea l an d a

tleas tonc e annuall y fo r th e secondar

y seal . Conditions no

tmeetin g the standard s whic h ar e identifie d durin

g thes e inspection s mus

tb e repaired withi n 4

3 day s o r the vesse l woul d hav e t o b e emptied . A

n extensio n o

f u p t o 3 U day s ma y b e requested i

f th e repai r i s no

t possibl e withi n th

e 4 3 day s allowed .P. 4

3807 2 reaera i Registe r / Vol . 54 . No . 17

7 / Thursday . Septembe r 14 . 198 9 / Rule s an d Reauiation s Summary of

:he Environmental. Health, and

E.ie.yy impacts: Under the standards summarize

d above , benzen e emission s fro

m thi s source category ar

e estimate d t

o b e reduce d fro m di e baselin e rang

e o i 62 0 t o 1.29 0 Mg/y r t o a level o f 510 Mg/yr. Th

e residual incidence o

f leukemia fro

m exposur e t

o benzen e emission s afte

r applicatio n o

f th e standard s i s estimate d t o b e 1 cas e ever y 2 5 year s (0.0 4 case/year) , an d th

e MI R i s predicted t

o b e 3 x 10"* . Thi s ca n b e compare d wit h a n incidenc e range o

f 1 cas e ever

y 1 0 t o 2 0 years (0. 1 t

o 0.0 5 case/year ) an

d a n MI R rang e o f 4 X10" 1 t o 4 x 10" * unde

r th e baselin e conditions . Becaus e th

e contro l equipmen

tan d wor k practice s require

d b y di e standard s do no

tinvolv e di e generatio n o f an y wastewate r o

r soli d waste , ther

e ar e n o expecte d impact

s o n wate r qualit y o r soli d wast e disposa l Further , n o nois e o r radiatio n impact

s are expected , no

r ar e an y change s in energ y us e predicted . Summary of

the Cost and Economic Impacts: Nationa

l capita l cost s o f contro l associate d wit

h achievin g di e standards ar

e 30.6 6 million (1982 dollars) . Th

e nationwid e annua

l costi s SO. l million/y r (198

2 dollars) . N o majo r advers e economi c impact s ar e anticipate d a s a resulto

f thes e standards . VI. Administrativ

e Paperwork Reduction Act Th e informatio

n collectio n provision s associate d wit

h th e rules hav e bee n approve d b y th e Offic e o f Management an d Budge t(OMB ) unde r di e Paperwor

k Reductio n Ac t(PRA ) o f 1980.4 4 U.S. C 350 1 e tseq . an d hav e bee n assigne d OM B Contro l Numbe r 2060-0185 . Durin g di e firs t3 years tha

tdi e standard s ar

e i n effect , di e publi c reportin g burde n fo r collectio n o

f information, includin

g tim e fo r reviewing instructions , searchin g existin g dat

a sources , gathering and maintainin

g th e dat a needed , an d completin g an d reviewin g di e collectio n o f informatio

n i s estimate d t

o be : (1 ) 2.13 4 average d annua

l hour s wit h a n averag e o

f 1 7 hours/yea r pe r responden tfo r piant s witi i benzen e storag e vessels : an

d (2 ) 5.83 5 averaged annua

l hour s witi i a n averag e o f 16 2 hours/yea r per responden tfo r cok e by-produc

trecovery plants . N o ne w standard s ar

e bein g promulgate

d fo r EB/ S proces s vent s an d equipmen tleaks , therefore , tiiere ar e n o associate d recordkeepin

g and reporting burdens . Th

e existin g standard s for benzene equipmen

tleak s wil l remai n in effec tConsequently , ther e i s no chang e i

n th e reportin g an d recordkeepin g burden. Regulatory Flexibility Act Th e Regulator

y Flexibilit

y Act(RFA

) ( 5 U.S.C . 60 1 etseq. ) require s EP A t o conside r potentia

l impact s o f propose d regulations o

n smal l "entities.' ' I

f a preliminar

y analysi s indicate s tha

ta propose d regulatio n woul d hav e a significan teconomi c impac

to n 2 0 percen to r mor e o f smal l entities , the

n a regulator y flexibilit

y analysi s mustb e prepared . Presen tRF A guideline s indicat e tha t a n economi c impac

tshoul d b e considere d significanti

f i tmeet s on e o

f di e followin g criteria : (1 ) Compliance increase s annua l productio n cost s b y mor e tiian 5 percen t (2 ) Complianc

e cost s a s a percentag e o f sale s fo r small entitie s ar

e atleas t1 0 percen tmor e tha n complianc e cost s a s a percentage o

f sale s fo r large entities : (3 ) Capita l cost s o f complianc e represen ta "significant " portio n o f capita l availabl e t

o smal l entities , considerin g interna

l cas h flo w plu s externa l financia l capabilities ; an d (4 ) Regulator

y requirement

s ar e likel y t o resultin closure s o f

smal l entities . Fo r EB/ S proces s vent s an d equipmen tleak s n o additiona l control s ar e required, therefore , n o smal l businesse s wil l b e adversel y affected . Fo r benzen e storag e vessels , very fe w businesse s woul d b e considere d smal l businesses . Accordin g t

o Smal l Busines s Administratio n guidelines , a smal l busines s tiiatmanufactures cycli c crudes and cycli c intermediates , pharmaceuticals , an d man y otiie r chemical s i s on e tiiatha s 75 0 employee s o r fewer . Ver

y fe w o f th e businesse s in di e existin g industr

y emplo y fewe r tha

n 75 0 people . Benzen e storag e facilitie s owne d b y smal

l businesse s wil l no tb e adversel y affecte d b y di e standards . I n di e economi c analysi s fo

r tiiis standard , di e pric e increas e and profitabilit y impact s wer e estimate d fo

r smal l a s wel l a s fo r large r facilities . The impact

s fo r di e smal l benzen e storag e facilitie s were ver y small (abou tS800/year) . Fo r cok e by-produc

trecovery plants . EP A ha s determine d unde r di e Smal l Busines s Administratio n guideline s tiiat an y cok e fir m tha temploy s fewe r tha

n 1.00 0 worker s i s a smal l business . Si x foundr y cok e firm

s wer e identifie d a s being smal

L The economi c analysi s fo r di e standard s estimate s tha ton e plant ma y excee d criterio n (2

) above . However , di e standard s ar e no tsubjec t t o th e RF A becaus e ther

e i s no ta substantia

l numbe r (i.e. . 2 0 percent ) o f th e small businesse s tha

twoul d b e adversel y affected . Pursuan tt o th e provision s o

f 5 U.S.C . 605(b) . I hereb y certif

y tha tth e ruie s fo r benzen e storag e vessel s an d cok e byproduc trecover y plant s wil l no thave a significan teconomi c impac

to n a substantia

l numbe r o f smal l entities . Docket Th e docke ti s a n organized and complet e fil e o f ai l th e information submitte d t o o r otherwis e considere d b

y EP A i n th e developmento

f tiiis rulemaking . Th

e principa l purpose s o

f di e docke tare : (1 ) T o allo w intereste d partie s t o identif y and locat

e document

s s o tha t the y ca n participat

e effectivel y in th

e rulemakin g process : an

d (2 ) T o serv e a s di e record in cas e o f judicia l revie w (excep tfo

r interagenc

y revie w material s (Sectio n 307(d)(7)(A ) o f di e CAA|) . Miscellaneous A s prescribe d b

y sectio n 11 2 o

f th e CAA . a s amended , establishmen to f today' s nationa

l emission s standard s wa s preceded b

y th e Administrato r s listin g o f benzen e a s a hazardou s air pollutan to n Jun e 8.197 7 (4

2 F R 29332) . I n accordanc e wit

h sectio n 11 7 o

f di e CAA . publicatio n o

f thes e action s o n benzen e wa s precede d b y consultatio n wit h appropriat

e advisor y committees . Independen

texperts , an

d Federa l department

s an d agencie s t

o di e maximu m exten tpractical . Unde r Executive Orde

r 12291 . EP

A i s require d t o judg e whethe r thes e regulations ar

e "majo r rules " an d therefor e subjec tt o certai n requirement

s o f di e Order

. Th e EP A ha s determine d tha tthe regulations fo

r benzen e storag e vessel s and fo

r cok e by-produc

t recover y plant s wil l resul

ti n non e o f th e advers e economi c effect

s se tfort h i n Sectio n 1 o

f th e Orde r a s grounds fo

r rindin g a regulation t

o b e a "majo

r rule.' * Thes e regulation

s ar e no tmajo r because : (1 ) Nationwid e annua

l compliance cost s ar e no ta s grea ta s th e threshol d o

f S10 0 million : (2 ) The regulations d

o no tsignificantl y increas e price s o

r productio

n costs ; and (3 ) Th e regulations d

o no tcaus e significant, advers e effect s o n domesti c competition , employment

, investment , productivity , innovation , o r competitio n i n foreig n markets . Th e regulations presented i

n thi s notice wer e submitte

d t o OM B fo r review a s required b

y Executiv e Orde

r 12291 . An y writte n comment

s fro m OM B t o EP A and writte

n EP A response s t

o thos e comment s ar e include d i n di e docket s liste d a tth e beginnin g o f today' s notic eI

. Federa l Registe r / vol . 55 . iso . <*

D / V\eam:8Ua> , P. 5 I\uiv j an u I\c«.ui a uu.. - II. Summar

y o f Fina l Standards an

d Impact s A Benzene TransferOperations Summar y o f Standard s The forma

tfo r the fina l standar d i s a weight-percentreductio

n an d a limitatio n o

f loading t o onl y vapor-tigh

t tan k trucks , railcar

s o r marin e vessels . Th e fina l standar d applie s t

o al l loadin g racks wher

e benzen e i s loade d int

o tan k trucks , railcar

s o r marin e vessel s a

t eac h productio

n facilit y an d eac h bul k termina l The standar

d exempt s tiiose facilitie s tha

tloa d onl y liquid s containin g les s tha

n 7 0 weight-percen

t benzene , o

r a twhic h les s tha n 1 J millio n liters o

f 7 0 o r mor e weight percentbenzen e ar

e loade d annually , fro m di e collectio n an

d contro l provision s o

f th e standard . Thes e affecte d facilitie s mus

tfil e a repor

t documenting th

e throughpu

tand concentratio n o

f benzen e loade d i n the firs tyea r o f Ui e standard . Th e standar

d require s thos e facilitie s tha tloa d 1. 3 millio n liter s per yea r o

r mor e o f liquid s containing 7 0 weight percen to r mor e benzen e t

o equi p eac h loadin g rac

k witii a vapo r collectio n syste m and t

o rout e emission s fro

m th e collectio n syste m t

o a 98 percen

t efficientcontro

l device . The standar

d als o requires tha

tth e loadin g o

f 7 0 weight-percento

r mor e benzen e at affecte d facilitie s be limite d t o vapor tigh ttan k trucks , railcars , o

r marin e vessels . Thes e requirements ar e discusse d below . The fina l standar d require s tha teac h loadin g rac

k a twhic h a tleas t1. 3 millio n liter s per yea r o

f liquid s containin g a

t leas t7 0 weight-percen

tbenzen e ar

e loade d b e equippe

d wit h a vapo r collectio n system t

o preven tthe vapor

s displace d durin

g loading fro

m passin g int o th e atmospher

e uncontrolled , eithe r directly o r throug h another rack . Additionally , th

e standar d require s tha t di e loadin g o

f benzen e b e limite d t

o thos e tan k trucks , railcars , an

d marin e vessel s equipped wit

h vapo r collectio n equipmen tcompatibl e wit

h th e vapo r collectio n syste m a

tth e loadin g rack, and t o thos e times when th e tw o vapo r collectio n system s ar

e connected . Furthe r provision s o

f the standar

d ar e designe d t

o ensur e tha tdi e pressur

e durin g loadin g wil l no

tcaus e pressure vacuu m vents t o open , and tha

t inspection s fo

r leak s and repair o

f identifie d leak s ar

e conducte d f

n a timely manner. Tb e fina l standar d requires tha

tdi e owne r o r operato r of

eac h affecte d facilit y obtai n a cop y o

f di e vapor tightnes s documentation prio r t o the loadin g o f a liqui d nrmijaiTiinr

j 7 0 weight percen

to r mor e benzen e int

o an y tan k truck , railcar . o r marin

e vessel . Th

e tes t dat e o n di e documentatio n mus tb e withi n th e precedin g 1 2 months , di e affecte d facilit

y mus tretain a cop y o

f th e tes tdocumentation , an d th e documentatio n mustb e update d a tleas t onc e annually . Th e standar d require s tha ttan k truck s and railcar

s b e teste d fo r vapo r tightnes s usin g metho d 2 7 o f 4 0 CF R par t60 , appendi x A . an

d marin e vessel s b e teste d usin g metho d 2 1 o f appendi x A t o documen

tdi e vapor tightness . The standar d furthe

r provide s tha

ti f a marin e vesse l owne r o

r operator cannot produc e Ui e appropriat

e documentation , Ui e owne r o r operato r o

f a n affected facilit y ma y stil l loa d di e vessel , tf

a vapor-tightnes s tes tmeeting di e requirement

s o f metho d 2 1 i s conducted durin g di e fina l 2 0 percen

to f loading . A cop y o f tiiis tes tmus

tb e kep twit h the vessel , and a cop y mus

tb e retained i n di e affecte d facility' s documentation file . I f the vesse l fail s th e vaportightness tes tu e facdit

y retain s documentatio n tiiatthe vesse l faile d di e tes tan d di e owne r o r operator o f di e facilit y may no tloa d di e vesse l agai n until documentatio n o

f repairs , o r proo f tha trepair s canno tb e completed unles s th e vesse l i s dry-docked , i s provided . I n di e cas e wher e repairs cannotb e complete d unles s di e vesse l i s dry docked , di e standar

d require s thes e repairs b e mad e di e firs

ttim e th e vesse l i s dry-docked . The standar d als o require s tiiatdi e vapor-tightnes s tes tb e performe d durin g di e fina l 2 0 percento

f loadin g durin

g di e firstloadin g subsequen tt o documente d repairs . I f tiiis tes ti s successful , di e documentatio n i s retaine d i n th e affecte d facility' s file , and woul d exemp t di e vesse l from furthe

r testin g fo

r a ful l year . Th e standar d als o provide s a n additional vapor-tightnes s tes ti n S 61.304(f ) tha tma y b e use d in lie

u o f tes tmetho d 21 . Thi s tes tinvolve s pressurizin g th e vesse l witi i dr y ai r o r a n iner tga s an d determining the pressur e chang e ove r time. Th

e advantag

e o f thi s tes ti s tha tn o benzen e wil l b e i

n th e tank , and therefor

e canno tb e emitte d t

o the atmospher e durin

g testing . I n lie u o f th e vapor-tightnes s documentation , marin

e vessel s ma

y b e loade d atnegativ e pressure . i.e , wit h a benzen e produc

ttan k belo w atmospheri c pressure . Unde r S 61.302(e)(1) , vessel s loaded a tnegativ e pressure woul d b e considere d t o b e vapor-tightfor di e purpose s o f tiiis standard . The fina l standar d require

s tha tall vapors coUecte d durin

g loadin g o f liquid s containin g 7 0 weight-percen t benzen e o

r mor e b e route d t o a contro l devic e capabl e o

f reducin g benzen e emission s t

o the atmospher

e b y 9 8 weight-percent . Th

e 9 8 percen tvalu e 1 9 base d o n di e typica

l performanc

e o f a n incinerato r o

r a flare , whic

h ar e universall y applicabl e t

o facilitie s expecte d t

o b e subjec

tt o this standard . Availabl e tes tdat

a indicat e tiiat properly designed , operated , an d maintaine d incinerator

s o r flare s ca n achiev e a tleas ta 9 8 weight-percen

t reductio n o

f organi c compounds . Althoug h the standar

d i s base d o

n th e us e of a n incinerato r o

r flare , an y contro l devic e ma

y b e use d a s lon

g a s a 98 weight-percentreduction i s achieved . The standar

d contain s provision s fo

r performanc

e testin g an

d monitorin

g o f specifi c parameter

s fo r flares , boilers , proces s heaters , incinerators , stea m generatin g unit

s an d carbo n adsorption systems . I

f a n owne r o

r operato r wishe s t o us e a contro

l devic e otiier tha

n thos e specificall y mentioned fo

r compliance purposes , di e standar

d allow s the owne r o r operato r t o submitinformatio n t o th e Administrato r describin g the operation o f di e contro

l devic e an

d thos e parameter

s ma twoul d indicat

e prope r operatio n an

d maintenanc e o

f the device . Th e contro

l devic e mus

tbe abl e t o produc e a 9

8 weight-percen

t reductio n in th e benzen e emission s route d throug h it . Record s o f all performanc

e test s an d monitoring result

s mus tb e maintained fo r a tleas ttw o years an

d b e readil

y availabl e fo

r inspection . The standar

d require s tha

tthe vapor-tightnes s documentatio n fo

r all tan k trucks , railcars , an

d marin e vessel s b e maintaine d in a permanen tfil e an d b e availabl e fo

r inspection . Additionally , th e standar

d require s Ui e informatio

n i n Ui e fil e b e updated a

tleas tonc e annually . The standar

d als o require

s quarterl y report s o f di e followin g information : (1 ) Eac

h exceedanc e o

f monitored parameters . (2

) all period s whe n di e ventstrea

m i s diverted fro

m di e control device , (3

) al l period s whe

n a steam generating uni

to r proces s heate r wa s no toperating , whe

n Ui e contro l devic e use d i s a 6tea

m generating uni

to r a proces s heater , (4

) i f a flar e i s use d a s a control device , al

l period s whe

n th e pilo tflame wa s absen tan d (5 ) al l times whe n maintenanc e i s performe d o n car seale d valves , whe

n di e ca r sea l i s broken , an

d when th e car-seale d valv e positio n i s changed . Th

e initia l quarterl y repor twoul d b e file

d withi n 9 0 day s o f di e effectiv e dat

e o f th e standard , o

r 90 day s afte r th e startu

p date , i f th e startu p dat e i a afte r th e effectiv e dat

e o f th e standard .

•••!

_

V 

### VU^i " 6-'^8294 * Federa l Registe r / Vol . 55 . No . 4 5 /

Wednesday , Marc h 7. 199 0 / Rule s an d Regulation s i i a
—laiiaia— • iaaaa

i aa—i—iITTTIIII H i i

n i a^\i\m^m^mmmmsm^H^m^m^m^mi^i^ms^mmmis^mwsmm^smmtm^m^mwsm^m^m^s^s^m^mmm^s^^m^a^^mt^^ ^ P. 6

Th e standar d require s tha tal l tan k truc k an d reilca r loading rack

s a teac h affecte d facilit

y b e i n complianc

e wit h the standar

d withi n 9 0 day s o

f th e effectiv e dat

e o f th e standard , o

r obtai n a waive r o

f complianc e a s provide

d fo r in § 61.1 1 o

f the Genera

l Provisions . Th

e fina l standar d requires marin e vessel s t o b e i n complianc e b

y Februar y 28,1991 . Th e one-yea r genera

l waive r fo

r marin e vessel s i s necessar y fo

r th e installatio n o f controls . Summar y o f Ui e Environmental . Health , and Energ

y Impact s Benzen e emission s fro

m thi s sourc

e categor y wil l b e reduced fro

m 4.50 0 megagrams/yea r a

tbaselin e t

o a n estimate d 27

0 megagrams/year . a

* reductio n o

f approximatel

y 9 4 percent . The residual incidenc e o

f leukemi a fro m exposur e t

o benzen e emission s afte

r applicatio n o

f thi s standar

d i s estimated t o b e approximately 0.0

2 case/year , an

d Ui e MI R i s predicte d t

o b e approximately 4x10"' . This ca n b e • . compare d wit

h a n incidenc e o

f 1 case / J yea r and a MI

R o f 6X10''unde r i baselin e conditions . I I I Potentia } environmenta l impact s o f tiiis standard depen d o

n th e contro l devic e selecte d b

y each facilit

y t o attain compliance . Incinerator

s an d flare s ar e notexpecte d t

o produc e an y wastewate r o r soli d wast e impacts . However , i f carbo n adsorbers ar

e used , some mino

r wastewate r and soli d waste impact s ca n b e expecte d fro

m desorption o

f th e carbo n bed s wit

h steam , an

d the n th e final disposa l o

f spentcarbon . Becaus e i ti s notknown ho w man

y benzene transfe r facilitie s wil l emplo y carbo n adsorbers , rathe

r tha n incinerator

s o r flares , t o comply wit

h di e standard . Ui

e wastewate r and soli d waste impact s o f thi s standar

d cannotb e quantifie

d a t thi s time . However , in ligh to f existin g regulator y controls , regulation

s bein g develope d unde

r otiie r act

s suc h a s RCRA . and thos e regulation

s bein g considere d fo

r benzen e waste . Uiese impact s ar e expecte d t

o b e small . N

o change s i n energ y us e ar e predicted . Summar y of di e Costand Economi

c Impact s Nationa l capita l cost s o

f contro l associate d wit

h achievin g di e standar

d •ar e $16 7 millio n (i

n 198 7 dollars) . Th

e nationwid e annua

l cos ti s $30 million

/ / yea r (in 198

7 dollars) . No majo

r advers e / economi c impact

s ar e anticipated a s a resul to f Uies e standards . B. Gasoline Marketing System Th e Administrato r i s withdrawing th e standard s propose d fo

r di e thre e gasolin e marketin

g sourc e categories . Sinc e publicatio n o

f th e propose d rul e i n 4

1 \ \ 

# M



# I Septembe r 1989 . EP A ha s evaluate d th

e publi c comment

s an d reexamined th

e propose d regulatio n o

f thes e source categories . Afte r extensiv e revie w o f fact s relevan tt

o thes e categories , EP

A conclude s tha

tapplicatio n o

f th e NESHA P polic y describe d in Ui

e Septembe r 14.1989 , rul e fo r variou s source categorie s o

f benzen e (5

4 F R 38044 ) doe s no tmandate establishin g NESHA P fo r th e gasolin e marketin

g sourc e categorie s i n orde r t o protec t publi c healt

h becaus e th e baselin e emission s are alread y withi n a saf e range , an d additiona l control s ar e unnecessary t o provid e a n ampl e margi

n o f safety . A s describe d i n th e proposa l the baselin e MI

R fo r eac h sourc e categor y i s a s follows : 5x10" * fo

r bul k gasolin e terminals ; l x 10" * fo

r bul k gasolin e plants ; an d 5 X10 " * for servic e statio n storag e tanks . Accordingl y eac h o f tiiese sourc e categorie s fall s belo w di e presumptive acceptabl e risk benchmar k o f approximatel y 10 " * MIR . The EP A di d no tres tit s acceptabl e risk judgmen

to n tiiese number

s alone . I n addition , di e incidenc e reduction fo r eac h o f th e categorie s woul d b e ver y low , i n th e rang e o

f 0.0 3 t o 0.0 7 case / year . Finally , EP

A estimate s tha

t withoutregulatio n th e vas tmajorit y o f th e populatio n expose d t o Uies e source s i s alread y protecte d t

o a leve l o

f 10" * o r lower . I n considerin g whethe r furthe r regulatio n woul d b e necessar y i n orde r t o provid e a n ampl e margi n o f safety , EP A reviewe d th e contro l cost s an d emissio n reduction s associate d wit h a numbe r of alternativ e contro l level s fo r eac h sourc e category . Fo

r di e thre e categories , capita l costwoul d b e approximatel y $ 1 billion , wit h annualize d cost s o

f $13 0 million . I

n addition . EP

A considere d qualitativ e informatio n o n ris k distribution , th e numbe r o f relevan tfacilitie s and thei r proximit y t o residentia l areas , an

d th e potential populatio n a trisk s greater tha n 10"* . Th e detail s o

f thos e alternative s ar e explaine d full y in sectio n IV-D- 6 o f

thi s notice . I n determinin g tiiatdi e existin g -emissio n level s for bul

k gasolin e terminal s provid e a n ampl e margi n of safety , EP

A considere d th e fac

ttha t Incidenc e reductio n fo r di e alternative s propose d woul d b e relativel y small . I t wa s als o recognize d tha

tth e majorit

y o f th e ris k reductio n woul d occu r i n th e populatio n expose d a trisk s belo w 10"*. Th e cos to

f th e alternativ e contro

l measure s wer e judged t

o b e hig h relativ e t o achievabl e risk reduction . Finally , i twa s recognize d tha ta s all ne w an d modifie d facilitie s mus tmee t the NSPS . th e ris k an d emission s fro m thi s sourc e categor y wil l b e reduce

d ove r time . Likewise , for bul

k gasolin e plant

s fo r the contro l option s considered . EP

A foun d a smal l incidenc e reductio n a ta hig h relativ e cost , and the vas tmajorit y o f Ui e populatio n expose d t

o risks belo

w 10"* . Fo r servic e statio n storag e vessels . althoug h specifi c estimate s o

f person s expose d atdifferentrisk level s could no t b e developed , di e incidenc e reductio n wa s considere d small . Th e cos to f additional contro l wa s considere d disproportionatel y high , relativ e t o th e smal l healt

h benefits . Fo r thes e reasons , a s describe d i n detai l i n sectio n IV

, EP A determine

d tiiatfor al l thre e sourc e categorie s o f gasolin e marketing , di e baselin e emission s provide d a

n ample margi

n o f safety . I tshoul d b e note d thatUi

e decision s nott o regulat e tiiese sourc e categorie s unde r sectio n 11 2 a

tthi s tim e doe s no t preclud e control s o n benzen e emission s occurring throug

h differen tmeans i n th e future . Fo r example , EP

A plan s withi

n th e nex tsevera l month s t o issu e a n Advanc e Notic e o

f Proposed Rulemaking fo

r the contro l o

f air toxics , includin g benzen e specifically , throug h gasolin e an d diese l reformulation . I n addition , severa l propose d amendment s t o th e CAA . i f

enacted , woul d authoriz

e additional benzen e controls . Fo r example , th e Administration' s propose d amendment

s t o di e CA A includ e a majo r ne w initiativ e o n alternativ e fuel s under whic h th e Administrato r woul d se tperformanc

e standard s fo

r clean-fue

l vehicle s designed , amon

g other things . t o reduc e toxi c ai r emissions , suc h a s benzen e emissions . Th e Administration' s propose d amendment s woul d als o requir

e tha tservic e statio

n owner s in certai n part

s o f th e countr y instal l system s fo

r Stag e I I gasoline vapo r recovery o

f emission s includin

g benzen e emission s fro

m th e refuelin g o f vehicles . Finally , th e Administration' s propose d amendment

s woul d authoriz

e a stud y an d regulatio n of air toxi c emission s fro

m mobil e sources . Thus , furthe r benzen e control s ma

y be provide d fo

r under a ne w CAA , a s well . C. Benzene Waste Operations

' Summar y o f Standard s Applicability. Th e final standards fo r benzen e wast e operation s ar e applicabl e t

o owner s o

r operator s o f chemical plants , petroleu

m refineries , an d cok e by-produc

trecover y plants . Th e standard s als o appl

y t o owner s o r operators o

f TSD F tha treceiv e waste s fro m chemica l plants , petroleu m

1 « s las < ^ 

# r >• /•- 

# ly

' * •