Attachment 7

Prefiled Testimony of 

Darwin Burkhart and Ross Cooper 

for May 8, 2014 Public Hearing

dated April 24, 2013

Illinois Ozone SIP Revision - Vehicle Refuleing Vapor Recovery Program: Attachments Page - 483
Illinois Ozone SIP Revision - Vehicle Refuleing Vapor Recovery Program: Attachments Page - 484
BEFORE THE ILLINOIS POLLUTION CONTROL BOARD 

IN THE MATTER OF: 

VAPOR RECOVERY RULES: 

AMENDMENTS TO 35 ILL. ADM. 

CODE PARTS 201, 218, AND 219 

) 

) 

) 

) 

) 

Rl3-18 

(Rulemaking - Air) 

NOTICE OF FILING 

TO: John Therriault, Assistant Clerk 

Illinois Pollution Control Board 

James R. Thompson Center 

100 West Randolph, Suite 11-500 

Chicago, Illinois 60601 

Richard R. McGill, Jr. 

Hearing Officer 

Illinois Pollution Control Board 

James R. Thompson Center 

100 West Randolph, Suite 11-500 

Chicago, Illinois 60601 

Thomas Davis, Assistant Attorney General 

Office of the Attorney General 

500 South Second Street 

Springfield, Illinois 62706 

Mitchell Cohen, General Counsel 

Office of Legal Services 

Illinois Department ofNatural Resources 

One Natural Resources Way 

Springfield, IL 62702-1271 

PLEASE TAKE NOTICE that I have today flled with the Office of the Pollution Control 

Board the TESTIMONY OF DARWIN BURKHART and TESTIMONY OF ROSS COOPER of 

the Illinois Environmental Protection Agency, a copy of which is herewith served upon you. 

DATED: Apri124, 2013 

1021 N. Grand Avenue East 

P.O. Box 19276 

Springfield, Illinois 62794-9276 

(217) 782-5544 

(217) 782-9143 (TDD) 

Respectfully submitted, 

ILLINOIS ENVIRONMENTAL 

PROTECTION AGENCY 

By: ~~~~~~~--~~ 

Kent E. Mohr Jr. 

Assistant Counsel 

Division of Legal Counsel 

Illinois Ozone SIP Revision - Vehicle Refuleing Vapor Recovery Program: Attachments Page - 485
BEFORE THE ILLINOIS POLLUTION CONTROL BOARD 

IN THE MATTER OF: 

VAPOR RECOVERY RULES: 

AMENDMENTS TO 35 ILL. ADM. 

CODE PARTS 201, 218, AND 219 

) 

) 

) 

) 

) 

R13-18 

(Rulemaking- Air) 

TESTIMONY OF DARWIN BURKHART 

Good morning, my name is Darwin Burkhart and I am Manager of the Clean Air Programs in the 

Bureau of Air at the Illinois Environmental Protection Agency (Illinois EPA). Part of my duties 

is overseeing the Stage I and Stage II Gasoline Vapor Recovery program, as well as the proposed 

rulemaking and the Technical Support Document that we are here to present today. Other 

Illinois EPA staffwith me today are Chuck Gebhardt, Jerry Clark, Mike Rogers, and Ross 

Cooper. These gentlemen contributed various portions and levels of expertise to the Technical 

Support Document and will be able to help answer any specific questions that the Board or 

audience may have. With regard to the rule amendments, primarily affecting the Stage II 

program with some minor changes for registrations on the Stage I program, I will be testifying 

on Parts 218 and 219 of the proposed rules, while Ross Cooper of our Air Permits section will be 

providing testimony on changes to Part 201 as they relate to air permits. 

The Illinois EPA has proposed amendments to 35 Ill. Adm. Code Parts 201,218, and 219 to 

phase-out the Stage II requirement for affected gasoline dispensing facilities, including both 

retail gas stations and private or commercial fuel facilities, in the Chicago ozone nonattainment 

area. The Chicago ozone nonattainment area includes the Counties of Cook, DuPage, Kane, 

Lake, McHenry and Will and Aux Sable and Goose Lake Townships in Grundy County and 

Oswego Township in Kendall County. 

Illinois Ozone SIP Revision - Vehicle Refuleing Vapor Recovery Program: Attachments Page - 486
The Illinois EPA is proposing to phase-out the Stage II equipment installation requirement 

beginning January 1, 2014. On and after this date, new gasoline stations or facilities that are 

starting operation need not install Stage II equipment. In addition, beginning January 1, 2014, 

the owners of previously existing gas stations or facilities with Stage II equipment may begin 

decommissioning their vapor recovery equipment. The amendments also establish 

decommissioning procedures and timelines for facilities to properly decommission their existing 

Stage II equipment. These proposed rules provide for a three-year timeframe and require that 

existing Stage II equipment be decommissioned no later than December 31, 2016. 

The authority for this action is contained in the U.S. Environmental Protection Agency's (U.S. 

EPA) May 16, 2012 final rule determining the "widespread use" of onboard refueling vapor 

recovery, or ORVR, equipment. In Clean Air Act Section 202(a)(6), Congress recognized that 

the implementation ofORVR would ultimately achieve equivalent emission reduction benefits 

as compared to Stage II and, therefore, allowed for the waiver of the Clean Air Act's Stage II 

requirement when ORVR-equipped vehicles were determined by U.S. EPA to be in "widespread 

use." In its final rule, U.S. EPA effectively defined "widespread use" to be when 75 percent of 

the gasoline dispensed is into vehicles that have ORVR systems. This widespread use 

determination allowed U.S. EPA to waive the Stage II requirement. As a result, states have the 

option of phasing-out their Stage II programs by submitting a revision to their State 

Implementation Plans (SIP) which are approved by U.S. EPA. However, as required by Section 

11 0(1) of the Clean Air Act, states intending to remove or phase-out their Stage II requirements 

must demonstrate that such an action would not result in any net emissions increase, referred to 

as "backsliding." 

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Illinois Ozone SIP Revision - Vehicle Refuleing Vapor Recovery Program: Attachments Page - 487
As general background, the Clean Air Act required the implementation of Stage II systems at 

affected gasoline stations or facilities in moderate and worse ozone nonattainment areas in the 

early 1990's. The Illinois Pollution Control Board adopted the Stage II rules for the Chicago 

"severe" ozone nonattainment area in August 1992 phasing in the requirement for the installation 

and operation of Stage II vapor recovery equipment. The Illinois Stage II regulations require any 

facility in the Chicago nonattainment area that dispenses an average monthly volume of more 

than 10,000 gallons of gasoline to install and maintain Stage II vapor recovery equipment. 

Illinois' Stage II rule requires affected facilities to install California Air Resources Boardcertified equipment that is at least 95 percent efficient in capturing gasoline vapors displaced 

during vehicle refueling. 

The purpose of the Stage II equipment is to capture gasoline vapors displaced during vehicle 

refueling. When gasoline is dispensed into the partially empty vehicle gas tank, vapors are 

forced out of the tank and, if not captured, into the atmosphere. The vapors contain volatile 

organic compounds which, when reacted with other pollutants in the presence of sunlight, 

contribute to the formation of ground-level ozone pollution. The use of Stage II equipment 

captures these ozone precursor emissions, thereby improving air quality and human health in the 

Chicago nonattainment area. 

There are two basic types of Stage II systems: vacuum-assist and balance. The vacuum-assist 

system uses a vacuum pump on the vapor return line of the gas dispenser to help draw vapors 

from the vehicle fill pipe through the nozzle and back into the underground gasoline storage 

tank. The balance system uses a rubber boot at the end of the nozzle to create a seal around the 

vehicle's fill pipe. With a balance system, a natural positive pressure differential is created 

3 

Illinois Ozone SIP Revision - Vehicle Refuleing Vapor Recovery Program: Attachments Page - 488
between the vehicle's fuel tank and the underground tank. This pressure differential draws the 

gasoline vapors from the vehicle's tank and into the underground tank without the aid of a 

mechanical pump as used in the vacuum-assist systems. 

In addition to Stage II controls required at gasoline stations and facilities, the Clean Air Act also 

established ORVR requirements whereby auto manufacturers were required to start installing 

systems on board new vehicles to capture the gasoline vapors displaced during refueling. The 

ORVR system consists of an activated carbon canister into which refueling vapors are routed 

from the vehicle's fuel tank. These vapors are purged from the canister and into the engine 

where they are burned. Auto manufacturers were required to phase-in ORVR systems for new 

vehicles, starting in model year 1998 for light-duty cars and culminating in 2006 for heavier 

light-duty gasoline trucks. Since 2006, all new vehicles less than 14,000 pounds Gross Vehicle 

Weight Rating sold in the U.S. are equipped with ORVR systems. Based on recent research, 

U.S. EPA has found that ORVR systems are 98 percent efficient in capturing gasoline vapors 

during refueling. 

When an ORVR vehicle is fueled at a gas station equipped with the most commonly used version 

of the vacuum-assist Stage II vapor recovery system, a lack of compatibility between the two 

controls actually cause the emission reduction benefits of the two systems acting together to be 

less than the emission reduction achieved by either system alone. Instead of capturing the 

displaced vapors, the vacuum in the dispenser draws fresh air into the underground storage tank. 

The fresh air causes gasoline in the underground tank to evaporate increasing pressure in the 

tank. As a result of the increased pressure, gasoline vapors are forced out of the underground 

storage tank vent pipe into the ambient air. This incompatibility can result in an estimated 1 to 

4 

Illinois Ozone SIP Revision - Vehicle Refuleing Vapor Recovery Program: Attachments Page - 489
10 percent decrease in control efficiency over what would be achieved by either Stage II or 

ORVR alone. The majority of the vacuum-assist systems in operation in the Chicago 

nonattainment area are incompatible with ORVR. 

In the Chicago area, there are 2,420 affected gas stations and facilities that are equipped with 

Stage II controls. Of these, 2,320 or nearly 96%, use vacuum-assist equipment. The 100 other 

facilities use the balance-type Stage II controls. All retail gas stations in the Chicago area utilize 

the more consumer-friendly vacuum-assist systems, with the balance systems only found at 

private fleet facilities. 

Of the 2,320 stations and facilities with vacuum-assist equipment, 2,005 (86%) have the models 

that are incompatible with ORVR, resulting in a decreased efficiency of the Stage II systems. 

Therefore, the Illinois EPA is proposing the required decommissioning of Stage II systems in the 

Chicago nonattainment area, since ORVR systems reduce vehicle refueling emissions more 

effectively than the majority of these currently-installed, incompatible systems. 

In order to determine when the emissions reduction benefits of operating the Stage II program 

are equaled by the ORVR program, the Illinois EPA used U.S. EPA's MOtor Vehicle Emissions 

Simulator, or MOVES, model to evaluate refueling emissions. Illinois EPA used the MOVES 

Version 201 Ob with Chicago area-specific vehicle fleet information to estimate refueling 

emissions from 2007 through 2020 as ORVR-equipped vehicles become an increasing portion of 

the vehicle fleet. The Technical Support Document contains a summary of the key MOVES 

model inputs used as well as the complete model input and output files. 

5 

Illinois Ozone SIP Revision - Vehicle Refuleing Vapor Recovery Program: Attachments Page - 490
Figure 1 in the Technical Support Document, and attached hereto as Exhibit 1, shows the 

MOVES modeling results for the Chicago nonattainment area with and without Stage II vapor 

recovery systems installed at gasoline facilities. In the figure, the line with triangle markers 

represents total vehicle refueling emissions in tons per day (tpd) in the current situation; that is, 

assuming the expected level of vehicles with ORVR equipment and the required operation of 

Stage II equipment. The line with diamond markers represents vehicle refueling emissions 

assuming only ORVR-equipped vehicles. The figure also shows the "cross-over point", where 

the "ORVR-only" line (diamonds) crosses the "ORVR +Stage II" line (triangles) in 2014. At 

this point, the emissions reduction benet1ts of an ORVR-only program equal the benefits of an 

"ORVR +Stage II" program. Beyond this point, the use ofORVR alone will result in achieving 

additional emission reductions. 

Based on this analysis, it is for this reason that the Illinois EPA is proposing that new gas stations 

and facilities beginning operation on and after January 1, 2014 no longer be required to install 

Stage II equipment. We are also proposing that existing facilities be allowed to begin 

decommissioning their Stage II equipment on January 1, 2014 in accordance with the proposed 

decommissioning requirements. By waiting until January 2014 to begin phasing-out the Stage II 

program in Chicago, there will be no loss in emissions reductions benefits and, therefore, the 

proposal would comply with the Clean Air Act Section 11 0(1) "anti-backsliding" provisions. It 

is important to emphasize that, based on the MOVES analysis, Stage II is currently providing 

emission reductions above and beyond what ORVR is achieving by itself, unti12014. 

The amendments in this rulemaking primarily serve to phase-out the Stage II requirements at 

facilities in the Chicago nonattainment area, require decommissioning procedures by which these 

6 

Illinois Ozone SIP Revision - Vehicle Refuleing Vapor Recovery Program: Attachments Page - 491
facilities are to appropriately decommission their current vapor recovery equipment, and 

establish timefrarnes tor these actions to take place. These amendments, as described in detail in 

the Technical Support Document, primarily affect 35 Ill. Adm. Code Part 218. However, we are 

also proposing related clarifying and clean-up amendments in 35 Ill. Adm. Code Parts 201 and 

219 that are also fully discussed in the Technical Support Document. 

Subpart Y of 3 5 Ill. Adm. Code Part 218 contains the "Gasoline Distribution" regulations for the 

Chicago nonattainrnent area including the "Motor Vehicle Fueling Operations" requirements in 

Section 218.586. The majority of the rule revisions prompted by the proposed phase-out of the 

Stage II program occur in this Section. In addition to the substantive revisions to the rules 

addressing the phase out of the Stage II program and the inclusion of decommissioning 

procedures, certain provisions are either being deleted as no longer necessary, revised for clarity, 

or updated to replace outdated references. 

The primary changes in this section to phase-out the Stage II program occur with revisions to 

subsections 218.586( d), now proposed to be entitled "Compliance", and with the proposed 

addition of subsection 218.586(i) "Decommissioning." Existing subsection 218.586(d)(1) 

through (5), which currently defines the time frame by which facilities of certain monthly 

gasoline throughput were required to comply with the vapor recovery and control requirements, 

is proposed to be deleted. Instead, the Illinois EPA is requiring that existing gas stations and 

facilities continue to operate their Stage II equipment until decommissioning is commenced on 

or after January 1, 2014. Per subsection 218.586(d)(2), beginning January 1, 2014, new gas 

stations and facilities will not be subject to Stage II vapor recovery requirements. 

7 

Illinois Ozone SIP Revision - Vehicle Refuleing Vapor Recovery Program: Attachments Page - 492
Proposed Section 218.586(i) defines the decommissioning time frames and procedures. In order 

to minimize the time that incompatible Stage II systems are in operation, we are also proposing 

that decommissioning of all Stage II equipment be completed within three years, or no later than 

December 31, 2016. The Illinois EPA has held outreach meetings and discussions with members 

of the petroleum marketing industry and with contractors likely to be involved in 

decommissioning work, and the three-year time frame was believed to be a reasonable amount of 

time for all existing affected facilities to complete the decommissioning work. 

Subsection 218.586(i)(2) contains the decommissioning procedures and standards. In its August 

7, 2012 document entitled "Guidance on Removing Stage II Gasoline Vapor Control Programs 

from State Implementation Plans and Assessing Comparable Measures", included as Attachment 

C in the Technical Support Document, the U.S. EPA "recommends that currently available 

industry association codes and standards be followed (where applicable) to ensure that Stage II 

systems are properly ... dismantled or decommissioned." The Petroleum Equipment Institute 

has developed guidance entitled "Recommended Practices for Installation and Testing ofVaporRecovery Systems at Vehicle-Fueling Sites" (hereinafter referred to as the "PEl") which 

contains, among other things, the steps involved in dismantling Stage II hardware for both 

balance and vacuum-assist type systems. This document is included as Attachment D to the 

Technical Support Document. The Illinois EPA is not aware of any other industry codes or 

standards specifically addressing Stage II decommissioning. Therefore, we are requiring that 

contractors follow the cited PEl procedures, as recommended by U.S. EPA in the 

aforementioned guidance, as these were developed by industry experts with a focus on regulatory 

compliance and safety. The Illinois EPA believes that consistent and uniform procedures should 

be in place to avoid gasoline liquid or vapor leaks during and after decommissioning. Therefore, 

8 

Illinois Ozone SIP Revision - Vehicle Refuleing Vapor Recovery Program: Attachments Page - 493
we are proposing to incorporate the PEI document by reference in Section 218.112. 

In our outreach meetings, members of the petroleum marketing and petroleum equipment 

industry, as well as officials from the Office of the State Fire Marshal, were supportive of the 

requirement for the use of the PEl decommissioning procedures and standards. In checking with 

several other states with Stage II programs, the Illinois EPA learned that most are also adopting 

the PEl decommissioning procedures and standards and are incorporating them into their Stage II 

decommissioning requirements. In order to assure that the PEl decommissioning procedures are 

properly implemented, and as recommended by the PEl, the Illinois EPA is proposing to require 

that contractors involved in the decommissioning process are registered or licensed by the State. 

The PEl is vague on the qualifications and licensing of contractors for this purpose, but does 

state that contractors should have equipment manufacturer and state certifications. There are no 

State of Illinois licensing or registration requirements specific to the decommissioning of Stage 

II equipment. However, the State Fire Marshal and the Illinois Department of Agriculture have 

contractor licensing and registration requirements for work performed on gas station dispensers, 

underground storage tank piping, and tank testing. Specifically, the State Fire Marshal licenses 

contractors that perform underground storage tank and testing work, whereas the Department of 

Agriculture registers those who work on dispensers. All three agencies agree that contractors 

that are licensed with both the State Fire Marshal and the Department of Agriculture are best 

suited to perform the decommissioning work due to their experience in working with the 

dispensers, piping, and underground storage tanks. Therefore, we are proposing that contractors 

doing Stage II decommissioning work should be licensed with both the State Fire Marshal and 

Department of Agriculture. The three agencies further believe that, to ensure that the 

decommissioning work involving the dispenser is done correctly, including the reprogramming 

9 

Illinois Ozone SIP Revision - Vehicle Refuleing Vapor Recovery Program: Attachments Page - 494
of the dispenser software for the "no presence of Stage II" setting, the licensed contractor should 

also be certified by the specific dispensing equipment manufacturer to work on that 

manufacturer's dispenser if the company provides such certification. 

Specifically, the Illinois EPA is proposing that all decommissioning procedures, except testing, 

shall be performed only by a contractor who is (1) registered with the Illinois Department of 

Agriculture's Bureau of Weights & Measures in the 3-A Gasoline Pump Meters Code, (2) 

licensed by the State Fire Marshal in its installation/retrofitting licensure module and (3) have the 

appropriate dispenser-manufacturer certification and training, if any. In addition, 

decommissioning procedures related to testing will be required to be performed only by a 

contractor who is licensed by the State Fire Marshal in the tank tightness testing licensure 

module. The pressure decay test, as required by the PEl, shall be passed in accordance with 

Appendix A of the PEL The tie-tank test, also required by the PEl, shall be conducted and 

passed in accordance with the referenced California Air Resources Board's test procedure to 

ensure that all tanks are properly vented. The Illinois EPA included these requirements to clarify 

the PEl that these tests must be passed. In the event that product piping is disconnected during 

decommissioning or other action is taken in which a State Fire Marshal permit is required tor any 

component of the work, the contractor shall ensure that the State Fire Marshal-permitted work is 

performed by the appropriate licensed contractor and personnel. The Illinois EPA included this 

language to reference a potential tie-in to the State Fire Marshal requirements. The three 

agencies also believe that there is a sufficient number of contractors that meet the above 

licensing, registration, and certification requirements to enable all gas stations and facilities in 

the Chicago area to complete the decommissioning work in the proposed three-year time period. 

However, for those contractors that currently do not have the referenced state-issued licenses and 

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Illinois Ozone SIP Revision - Vehicle Refuleing Vapor Recovery Program: Attachments Page - 495
registration, both the State Fire Marshal and Department of Agriculture stated that they can get 

these from their respective departments within a reasonable amount of time. 

The Illinois EPA also proposes to require that the owner or operator of a gas station or facility 

provide a 1 0-day notice of intent to decommission. This notice would allow us the ability to 

schedule an inspector to be present when the decommissioning takes place to the extent this is 

necessary. 

The Illinois EPA is proposing to require that the owner or operator of the station or facility 

submit a Stage II decommissioning checklist and the test results, completed by the owner and 

contractors within 30 days after decommissioning. This checklist verifies that all of the 

decommissioning steps have been properly completed. All decommissioning records are to be 

kept for five years after decommissioning and made available upon request. 

The Illinois EPA believes that the PEl procedures, as well as the remainder ofthe Agency's 

proposed decommissioning procedures and standards, are technically feasible. These procedures 

and standards and the related timeframes for the decommissioning work were supported by 

industry representatives and other state government agencies in our outreach meetings and 

communications. 

In Section 218.583( e), the Illinois EPA is proposing to repeal the registration program for gas 

stations and facilities subject to the Stage I requirement upon adoption of these amendments by 

the Board. However, the Stage II registration requirements at Section 218.586(h) remain in 

effect until a station or facility begins the decommissioning process. The federal National 

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Illinois Ozone SIP Revision - Vehicle Refuleing Vapor Recovery Program: Attachments Page - 496
Emission Standards for Hazardous Air Pollutants (NESHAP) rules for gasoline facilities ( 40 

CFR 63, subpart CCCCCC) include notification requirements for those that dispense 10,000 

gallons of gasoline or more per month. Since the Illinois EPA administers and enforces 

NESHAP rules, it already has information on gasoline dispensing facilities. In addition, the 

State Fire Marshal and Dept. of Agriculture both have programs that track stations and facilities 

that would be subject to the Illinois EPA's Stage I and Stage II programs. Theretore, we are 

proposing to streamline the rules in favor of the other registration or notification requirements by 

deleting the Stage I registration requirements. 

Repeal of the Illinois EPA's Stage I registration program and revision to the Stage II registration 

program would result in the unintended consequence of these sources being required to obtain an 

air permit. Therefore, with respect to state minor source permitting, in Section 201.146(1), we 

are proposing to exempt the stations and facilities subject to Stage I and Stage II from the 

requirement to obtain a permit. Also, for major Title V sources, we are proposing to add/clarify 

"insignificant activities" for storage tanks (Stage I) and fuel dispensing (Stage II). In addition, 

the Illinois EPA proposes minor clarifications to permitting regulations related to gasoline 

facilities. These clarifications and mechanisms to exempt these facilities through revisions to 

Part 201 are discussed in detail in the Technical Support Document. 

The Illinois EPA is also proposing revisions to Part 219. This Part is applicable to the MetroEast ozone nonattainment area, which includes Madison, Monroe, and St. Clair counties. 

Section 219.105 sets forth test methods and procedures used in conjunction with this Part. 

Section 219.1 05(j) is no longer applicable due to the repeal of the Metro-East ozone 

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Illinois Ozone SIP Revision - Vehicle Refuleing Vapor Recovery Program: Attachments Page - 497
nonattainment area Stage II rule in February 1994. Therefore, the Illinois EPA is proposing to 

repeal these test methods. 

Section 219.112(v) incorporates by reference U.S. EPA Stage II vapor recovery technical 

guidance. The reference to this guidance is no longer applicable due to the repeal of the MetroEast nonattainment area Stage II rule. Therefore, the Agency is proposing to repeal the reference 

to this guidance. 

Section 219.583 describes the requirements for Stage I vapor recovery- storage tank filling 

operations at facilities in the Metro-East nonattainment area. In this section, the Illinois EPA is 

proposing to repeal the registration program. The federal NESHAP rules for gasoline facilities 

include notification requirements for those that dispense 10,000 gallons of gasoline or more per 

month. In addition, the State Fire Marshal and Dept. of Agriculture both have programs that 

track gas stations and facilities that would be subject to the Illinois EPA's Stage I program. 

Therefore, we are proposing to streamline the rules in favor of the other registration or 

notification requirements by deleting the Stage I registration language in this section. The repeal 

of the Stage I registration program would result in the unintended consequence of these sources 

being required to obtain a permit. Therefore, in Section 201.146(1), we are proposing to exempt 

the stations and facilities subject to Stage I from the requirement to obtain a permit. 

Regarding the costs for the implementation of this proposal, the U.S. EPA issued a final 

regulatory support document "Decommissioning Stage II Vapor Recovery Financial Benefits and 

Costs" on May 8, 2012, included as Attachment H of the Technical Support Document, outlining 

the near-term and long-term costs and cost-benefits of decommissioning Stage II vapor recovery 

13 

Illinois Ozone SIP Revision - Vehicle Refuleing Vapor Recovery Program: Attachments Page - 498
systems, presented as national averages. In addition, similar cost estimates were included in 

their final rule issued May 16,2012. To augment the U.S. EPA's cost information, the Illinois 

EPA requested cost estimates from a few of the major licensed contractors that do gasoline 

dispenser and fuel infrastructure work in the Chicago area. The contractors provided a range of 

cost estimates related to the decommissioning of Stage II equipment. Cost ranges resulted due to 

the differences in the manufacturer of the dispenser, the type and design of the Stage II system, 

and the number of nozzles per dispenser. 

The cost estimates received for decommissioning work range from $2,000 to $7,000 per station. 

The balance-type systems will be the least expensive systems to decommission, with cost 

estimates at $2,000 or less. For the vacuum-assist systems, the dispensers with 2 nozzles, one on 

each side, will be in the lower half of the cost range. In the Chicago area, about half of the 

gasoline stations have 2-nozzle configurations, while the other half uses the 6-nozzle 

configurations, three nozzles on each side. The average decommissioning cost per station in the 

Chicago area is estimated to be about $4,400, with the total cost for 2,420 facilities to 

decommission their equipment being about $10.6 million. 

U.S. EPA reported estimated annual cost savings, after incurring the initial decommissioning 

costs, to be in the range from $3,000 to $6,000. Those stations with 6-nozzle dispenser 

configurations that used to be equipped with Stage II will realize the higher cost savings within 

this range. This recurring annual savings factors in the elimination of Stage II maintenance and 

hardware replacement, electricity costs, and the direct and indirect costs for staff training and 

time spent on the monitoring and recordkeeping requirements for Stage II systems. Cost savings 

begin immediately after the decommissioning process is completed and, in the initial year, the 

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Illinois Ozone SIP Revision - Vehicle Refuleing Vapor Recovery Program: Attachments Page - 499
savings could be $1,000 or more after subtracting the costs to decommission. U.S. EPA also 

stated in its August 7, 2012 guidance document that new facilities could save $20,000 to $60,000 

by not having to purchase and install Stage II equipment and related hardware. 

Overall, the Illinois EPA believes that this proposal is economically reasonable, considering the 

recurring annual cost savings after decommissioning is completed. This completes my 

testimony. 

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Illinois Ozone SIP Revision - Vehicle Refuleing Vapor Recovery Program: Attachments Page - 500
Exhibit 1: ORVR Alone vs. Stage II + ORVR 

14 

Stage II 

12 2014 th

Cross-over point 

8 

6 

... 

ORVR + Stage II 

2 +-·---------------

2007 2008 2009 2010 2011 2012 2013 2014 2015 2016 2017 2018 

Year 

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Illinois Ozone SIP Revision - Vehicle Refuleing Vapor Recovery Program: Attachments Page - 501
BEFORE THE ILLINOIS POLLUTION CONTROL BOARD 

IN THE MATTER OF: 

VAPOR RECOVERY RULES: 

AMENDMENTS TO 35 ILL. ADM. 

CODE PARTS 201,218, AND 219 

) 

) 

) 

) 

) 

R13-18 

(Rulemaking - Air) 

TESTIMONY OF ROSS COOPER 

My name is Ross Cooper and I am an Environmental Protection Engineer III with the Clean Air 

Act Permit Program (CAAPP) Unit of the Permit Section at the Illinois Environmental 

Protection Agency (Agency). After completing my bachelor's degree in Electrical Engineering 

from Northern Illinois University in 2001, I joined the Agency. While employed with the 

Agency I completed a Master's of Business Administration (MBA) from the University of 

Illinois at Springfield in 2004. During my employment with the Agency, I have worked on an 

individual and collaborative basis with air permitting programs for both major and minor 

stationary sources of air pollution, as well as various Agency rulemaking efforts. 

The waiver of the Stage II requirement from the Clean Air Act, previously discussed, created 

ripple effects into 35 IAC 201.146, the State permit exemption list. That list holds a permit 

exemption conditioned on the emission source's registration with Stage I and II programs. 

Because the Stage II registration program will ultimately no longer be required and the proposed 

repeal of Stage I registration, the Agency was all but required to revise the affected permit 

exemption. With the Part to be reopened, the Agency took the opportunity to investigate 

thematically related state permit exemptions and CAAPP insignif!cant activities which could 

benefit from an update. After review of the existing regulations, the Agency is proposing several 

Illinois Ozone SIP Revision - Vehicle Refuleing Vapor Recovery Program: Attachments Page - 502
revisions to the State permit exemption listing as well as the CAAPP insignificant activity 

listing. 

The changes this rulemaking proposes regarding the State permit exemption listing of 35 lAC 

201.146 are: 

• a revised permit exemption at 35 IAC 201.146(1) which removes the reference to the 

Stage I registration and modifies its use by broadening the original scope of exempting 

retail gasoline stations to more generally exempt the storage and dispensing of fuels that 

are used exclusively for mobile sources (i.e, on-road or off-road vehicles and mobile 

equipment). This revision is desired to broaden the exemption's use beyond retail 

dispensing to include emission sources at private or commercial entities whose emissions 

from this activity are small, and to address the removal of Stage I and II registration 

requirements while maintaining the existing exemptions. This new revised exemption 

specifically does not recognize as an exemption the filling or dispensing of distribution 

vessels such as a tanker truck tanks, rail tanks, barge storage, or other such similar 

distribution vessels. 

• a revised permit exemption at 35 lAC 201.146(n)(l) which proposes to strike the 

reference to Stage I and instead clarify the intent of the language that any amount of 

material or any mixture of any material that is listed as a Hazardous Air Pollutant (HAP) 

is not included in this storage tank permit exemption. Gasoline would be considered a 

mixture of materials containing HAP, and therefore is not be eligible to use this 

particular exemption. This revision is desired to correct a long standing 

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Illinois Ozone SIP Revision - Vehicle Refuleing Vapor Recovery Program: Attachments Page - 503
misinterpretation of the language's intent as written (i.e., gasoline does not apply as it is 

not a HAP pursuant to the definition of HAP). 

• a revised permit exemption at 35 lAC 201.146(kk) which repeals that particular permit 

exemption (i.e., registration) as it is no longer applicable due to the Stage I and II permit 

exemption being moved to 35 lAC 201.146(1) without the registration requirement. 

• a revised permit exemption at 35 lAC 201.146(nn) which removes the exclusion for 

gasoline fuel handling because gasoline fuel handling or dispensing to mobile sources is 

proposed to be exempt from permitting under the aforementioned 35 lAC 201.146(1). 

The changes this rulemaking proposes regarding the CAAPP insignificant activity listing of35 

lAC 201.210 are: 

• a revised insignificant activity at 35 lAC 201.210(a)(l0) which specifically declares 

gasoline and/or gasoline-ethanol blends storage ofless than 2,000 gallons to be 

considered as an insignificant activity. Two-thousand gallons (2,000) was utilized as the 

cutoff because that limitation is similarly used as a breakpoint in 40 CFR 63 Subpart 

CCCCCC and our existing state rules (i.e., 35 lAC 215/218/219.583(b)(2)), as well as an 

amount which provides a reasonable amount of usage to the source. This revision is 

desired to address the previous lack of categorical exemption for gasoline and/or 

gasoline-ethanol blends fuel storage in 35 lAC 201.210. 

• a new insignificant activity at 35 lAC 201.210(a)(19) which specifically declares fuel 

dispensing activities into mobile sources (e.g., fleet vehicle, bull dozer, landfill 

compactor or other such similar on-road or off-road vehicle) to be considered an 

insignificant activity for: 

3 

Illinois Ozone SIP Revision - Vehicle Refuleing Vapor Recovery Program: Attachments Page - 504
A) gasoline or gasoline/ethanol blend fuels if the annual average throughput of 

such fuel dispensed is less than 120,000 gallons (rolling 12 month total), and 

B) other fuels unrestricted by a throughput. 

The separation of gasoline and gasoline-ethanol blends from other common fuels is due 

to emissions potential for the activity due to the difference in vapor pressure. Onehundred and twenty thousand gallons (120,000) was utilized as the cutoffbecause that 

limitation is also similarly used as a breakpoint in 40 CFR 63 Subpart CCCCCC (i.e., a 

monthly throughput of less than 10,000 gallons), as well as an amount which provides a 

reasonable amount of usage to the source. This proposal also defines fuel dispensing, as 

opposed to its state permitting equivalent which does not, because of the need for 

enhanced specificity and scrutiny for a major source. This new insignificant activity 

specifically does not recognize as an insignificant activity the filling or dispensing of 

distribution vessels such as a tanker truck tanks, rail tanks, barge storage, or other such 

similar distribution vessels. This revision is desired to address the previous lack of 

categorical exemption for gasoline or other fuel dispensing in 35 IAC 201.210. 

Of note, common to both insignificant activity expansions was a threshold above which 

the eligibility no longer applies, unlike the similarly functioning state permit exemptions. 

The rationale behind this difference is two-fold: 

1. A major source of emissions, in general, as compared to a minor source of 

emissions, will have a greater potential for actual emissions as a result of a much 

larger overall source. It was therefore determined that usage at or above the 

4 

Illinois Ozone SIP Revision - Vehicle Refuleing Vapor Recovery Program: Attachments Page - 505
proposed limitations would be considered at a level worthy of greater permitting 

scrutiny. 

2. Unique to the CAAPP program is the fact that every emission unit at a source is 

required to be addressed in the Title V permit, including insignificant emission 

units. As such, a rule like 40 CFR 63 Subpart CCCCCC is generally required to 

be addressed at some level in the permit. The cutoffs chosen for the proposed 

insignificant activities coincide with the cutoffs for more stringent actions from 

the rule (e.g., prescribed management practices or the operation of a vapor 

balance system, etc.), and thus were a natural parallel to distinguish when more 

stringent permitting would be required. 

• a revised insignificant activity at 35 lAC 201.210(b)(4) which excludes the expanded 

usage of fuel (i.e., gasoline or gasoline/ethanol blend fuels or other fuels). The revision 

does not change that this particular insignificant activity is intended solely for vehicle 

maintenance and servicing activities at the source. This revision is necessary for 

consistency with the previously proposed fuel and dispensing changes. 

The changes this rulemaking proposes regarding the reporting requirements of35 lAC 201.302 

are: 

• a revised 35 lAC 201.302 which is modified to account for the evolution of newer 

exemptions and additional sources not requiring a permit (e.g., Registration of Smaller 

Sources (ROSS)). The modification involves redirecting its trigger for the requirement to 

submit an annual report (i.e., any emission unit unless specifically exempted) to the 

5 

Illinois Ozone SIP Revision - Vehicle Refuleing Vapor Recovery Program: Attachments Page - 506
applicability provisions for the Annual Emission Report (AER) of Part 254, specifically 

35 IAC 254.102. Additionally, the reference to 35 IAC 201.302(d) is also proposed to be 

deleted as the exemption it draws upon is proposed to be moved to 35 lAC 201.146(1), 

and when combined with the redirected AER trigger is no longer needed. 

Regarding the feasibility of the proposed new and modified exemptions and insignificant 

activities, the Agency believes that the changes are feasible. This rulemaking, rather than 

command and control via a given pollution control device or constriction of a work practice, 

proposes revisions which are effectively expansions to the existing listings, and hence no 

technical feasibility issue exists. The Agency does not foresee an adverse environmental impact 

as the proposed expanded activities are small sources of emissions which are bound to any and 

all applicable rules irregardless of the necessity for a permit. Regarding the economical 

reasonableness of the proposed revisions, the Agency believes that there will be a slight 

reduction in fees to the Agency from both major and minor source construction and operating 

permit fees as emission sources would now be able to avoid those fees which previously they 

triggered. Slightly lowering permitting fees for the Agency conversely means a slight cost 

savings to the affected sources. Finally, the permitting burden for the Agency and Permittee 

would be lowered through the expanded exemption and insignificant activity listings. 

This concludes my testimony. 

6 

Illinois Ozone SIP Revision - Vehicle Refuleing Vapor Recovery Program: Attachments Page - 507
STATE OF ILLINOIS 

COUNTY OF SANGAMON 

) 

) 

) 

ss 

CERTIFICATE OF SERVICE 

I, the undersigned, an attorney, state that I have served electronically the attached 

TESTIMONY OF DARWIN BURKHART and TESTIMONY OF ROSS COOPER of 

the Illinois Environmental Protection Agency upon the following persons: 

John Therriault, Assistant Clerk 

Illinois Pollution Control Board 

James R. Thompson Center 

100 West Randolph, Suite 11-500 

Chicago, Illinois 60601 

Richard R. McGill, Jr. 

Hearing Officer 

Illinois Pollution Control Board 

James R. Thompson Center 

100 West Randolph, Suite 11-500 

Chicago, Illinois 60601 

DATED: April24, 2013 

1021 N. Grand Avenue East 

P.O. Box 19276 

Springfield, Illinois 62794-9276 

(217) 782-5544 

Thomas Davis, Assistant Attorney General 

Office of the Attorney General 

500 South Second Street 

Springfield, Illinois 62706 

Mitchell Cohen, General Counsel 

Office of Legal Services 

Illinois Department ofNatural Resources 

One Natural Resources Way 

Springfield, IL 62702-1271 

mitchell.cohen@illinois.gov 

ILLINOIS ENVIRONMENTAL 

PROTECTION AGENCY 

Kent E. Mohr Jr. 

Assistant Counsel 

Division of Legal Counsel 

Illinois Ozone SIP Revision - Vehicle Refuleing Vapor Recovery Program: Attachments Page - 508
Attachment 8

Illinois EPA Response to Board Order 

[of April 4, 2013]

dated April 29, 2013

Illinois Ozone SIP Revision - Vehicle Refuleing Vapor Recovery Program: Attachments Page - 509
Illinois Ozone SIP Revision - Vehicle Refuleing Vapor Recovery Program: Attachments Page - 510
NOTICE OF FILING

TO: John Therriault, Assistant Clerk

Illinois Pollution Control Board

James R. Thompson Center

100 West Randolph, Suite 11-500

Chicago, Illinois 60601

Thomas Davis, Bureau Chief

Environmental BureauOffice ofthe Attorney General500 South Second Street

Springfield, Illinois 62706

ORIGINAL

Richard R. McGill, Jr.Hearing OfficerIllinois Pollution Control Board

James R. Thompson Center

100 West Randolph, Suite 11-500

Chicago, Illinois 60601

Mitchell Cohen, General Counsel

Office of Legal Services

Illinois Department ofNatural Resources

One Natural Resources Way

Springfield, IL 62702-1271

PLEASE TAKE NOTICE that I have today filed with the Office ofthe Pollution Control

Board the ILLINOIS EPA RESPONSE TO BOARD ORDER of the Illinois Enviromnental

Protection Agency, a copy of which is herewith served upon you.

Respectfully submitted,ILLINOIS ENVIRONMENTALPROTECTION AGENCY

DATED: April 29, 2013

1021 N. Grand Avenue East

P.O. Box 19276

Springfield, Illinois 62794-9276

(217) 782-5544(217) 782-9143 (TDD)

By:

Kent E. Mohr Jr.

Assistant Counsel

Division of Legal Counsel

Illinois Ozone SIP Revision - Vehicle Refuleing Vapor Recovery Program: Attachments Page - 511
ILLINOIS EPA RESPONSE TO BOARD ORDER

NOW COMES the Illinois Environmental Protection Agency (“Illinois EPA”), by its

attorney, and hereby submits its response to the Illinois Pollution Control Board’s (“Board”)

Proposed Rule, First Notice, Opinion and Order, dated April 4, 2013, regarding the Board’s

response therein to the Illinois EPA’s Motion for Waiver of Copy Requirements, as directed by

the Board. In support therefore, the Illinois EPA states as follows:

1. On March 18, 2013, the Illinois EPA filed a regulatory proposal with the Board

entitled “VAPOR RECOVERY RULES: AMENDMENTS TO 35 ILL. ADM. CODE PARTS

201, 218, AND 219.” Included with this regulatory proposal was, among other things, a

“MOTION FOR WAIVER OF COPY REQUIREMENTS” (“Motion”).

2. The Motion included with the Illinois EPA’s regulatory proposal requested that the

Board waive its normal copy requirements (35 Ill. Adm. Code § 102.200) for a document

published by the Petroleum Equipment Institute entitled “Recommended Practices for

Installation and Testing of Vapor-Recovery Systems at Vehicle-Fueling Sites” (“PEI”). Motion

at p. 2. In its regulatory proposal, the Illinois EPA proposed to incorporate the PET by reference

and requested a waiver of the Board’s nonnal copy requirements because the PEI is copyright

protected and must be purchased at a cost to the Illinois EPA. Id. In this rulemaking, the Illinois

EPA is proposing that the procedures contained in Section 14.6 of the PEI be followed by

affected gasoline dispensing operations to decommission existing vapor recovery equipment.

Illinois Ozone SIP Revision - Vehicle Refuleing Vapor Recovery Program: Attachments Page - 512
afoul of any copyright limitations.” Order at p. 5. Further, the Board specified that if it’s the

Illinois EPA’s position that the Board cannot make the PET document available for public

inspection and copying without violating copyright limitations, the Illinois EPA “. . .must propose

alternatives for how the Board can fulfill the Board’s obligations under Section 5-75(c)...” ofthe

Illinois Administrative Procedure Act (“IAPA”) (5 ILCS 100/5-75(c)). Id. The Board reserved

ruling on the Motion, and directed the Illinois EPA to file a document in support of its Motion byMay6, 2013. Id.

4. First and foremost, respectfully, the Illinois EPA’s Motion has nothing to do with the

Board’s compliance with the IAPA and federal copyright law. The Illinois EPA’s Motion was

made solely to request a waiver of the Board’s normal copy requirements. To reserve ruling onthe Illinois EPA’s Motion on the basis of compliance with the IAPA’s public inspection and

copy requirement relative to federal copyright law seems misplaced.

5. Second, the Illinois EPA historically and routinely requests by motion to file only the

original of copyright protected documents (e.g. American Society for Testing and Materials

standards), and the Board routinely grants such motions (e.g. R12-24). The Illinois EPA’s

request of the Board to waive its copy requirements for the PET is no different than these other

routine requests that are consistently granted. To treat the Illinois EPA’s Motion differently than

other similar motions would, at the least, be inconsistent with prior history and practice.

2 Illinois Ozone SIP Revision - Vehicle Refuleing Vapor Recovery Program: Attachments Page - 513
copyright law provides further support for the lawful right of the Board to make the PET

document available for public inspection or viewing. Section 109(c) of federal copyright lawauthorizes the public display of a particular copy, lawfully made, without the authority of the

copyright owner, to viewers present at the place where the copy is located. 17 U.S.C. § 109(c)(2011).

7. As to “copying,” it is possible, and seems reasonable, that the Board could comply

with the IAPA requirement that the PEI document be available for “copying” without running

afoul of federal copyright law by purchasing additional “copies” of the PET for requesting

members ofthe public and charging such requesting members for the actual purchase cost of the

PET. The IAPA specifically provides that an agency incorporating a document by reference shall

make such document available for inspection and copying “at no more than cost.” 5 ILCS

100/5-75(c) (2010). The regulations ofthe Joint Committee on Administrative Rules (“JCAR”),

which implement and are authorized by the IAPA, reiterate the pennissible charge for “copying”

documents. 1 Ill. Adm. Code § 220.760(b) (2010). Similarly, and possibly even more

dispositive of the issue, in the context of “underlying data,” Illinois Secretary of State (“SOS”)

rules, which implement and are authorized by the IAPA, provide that “[i]fthe agency must pay a

fee to a contracting entity to obtain a copy of the underlying data, the agency may charge the

requester a fee equaling the cost of obtaining the data” and “[t]his fee shall reflect actual costs

incurred by the agency.” 1 Ill. Adm. Code § 100.355(c) (2010). Therefore, the IAPA

3 Illinois Ozone SIP Revision - Vehicle Refuleing Vapor Recovery Program: Attachments Page - 514
copy, lawfully made, to dispose ofthe copy by sale or any other means. See 17 U.S.C. § 109(a)

(2011).

8. While an unknown to the Illinois EPA, it is possible that federal copyright law could

trump the TAPA’s requirement that documents incorporated by reference be available for

copying where they are also copyright protected documents. Further, it is possible that aspecified limitation to federal copyright law restrictions could apply based on the application of

certain factors or conditions to a particular circumstance involving the use of the PET (e.g. “fair

use” under 17 U.S.C. § 107).

9. Ultimately, it is for the Board to determine whether and how it can comply with both

the IAPA and federal copyright law.

10. If the Board believes that it cannot comply with the IAPA due to federal copyright

restrictions, then an alternative would be to not incorporate the PEI by reference, identify it only

as a published study or report used in developing the rule amendments, and specifically write

vapor recovery equipment decommissioning procedures into its vapor recovery rule at 35 Ill.

Adm. Code § 218.586 that do not run afoul of federal copyright restrictions. It is important to

note, however, the Illinois EPA has relied on the PET decommissioning procedures because it

does not have the expertise to develop its own decommissioning procedures.

4

Illinois Ozone SIP Revision - Vehicle Refuleing Vapor Recovery Program: Attachments Page - 515
Respectfully submitted,

ILLINOIS ENVIRONMENTAL

PROTECTION AGENCY

By:___

Kent E.Mohr

Assistant CounselDivision of Legal Counsel

DATED: April 29, 2013

1021 North Grand Avenue East

P.O. Box 19276

Springfield, Illinois 62794-9276

(217) 782-5544

(217) 782-9143 (TDD)

5 Illinois Ozone SIP Revision - Vehicle Refuleing Vapor Recovery Program: Attachments Page - 516
Tracy Pierceall

Illinois EPA

Library #18

1021 N Grand Ave E

Springfield IL 62702

Ph: 217-782-9691

Fax: 217-524-4916Email: tracy.pierceall@illinois.gov

From: Robert Renkes [mailto:rrenkespei .org]

Sent: Wednesday, April 17, 2013 4:12 PM

To: Pierceall, Tracy

Subject: RE: copyright license question

Tracy—You can certainly make it available for public viewing at the library.

The document cannot be photocopied.

I am not familiar with the fair-use copyright practices.

Bob

Bob Renkes

Executive Vice President/General CounselPEIP. 0. Box 2380, Tulsa, OK 74101

918-494-9696

Follow me on Twitter!

From: Pierceall, Tracy [mailto:Tracy. Pierceall©Illinois.qov]

Sent: Wednesday, April 17, 2013 2:59 PM

To: rrenkes@pei.org

Subject: copyright license question

Good afternoon. Several months ago, we purchased two copies of “Recommended Practices for Installation

and Testing of Vapor-Recovery Systems at Vehicle-Fueling Sites,” standard number PEI/RP300-o9, in

association with an environmental rulemaking in the State of Illinois.

What I wanted to know was if there is a licensing agreement that accompanies your standards that stipulates

appropriate uses. Specifically, are we permitted to make this publication available for public viewing (e.g. a

1

Illinois Ozone SIP Revision - Vehicle Refuleing Vapor Recovery Program: Attachments Page - 517
Ph: 2177829691Fax: 217-524-4916Email: tracy.pierceall@illinois.gov

Illinois Ozone SIP Revision - Vehicle Refuleing Vapor Recovery Program: Attachments Page - 518
EPA RESPONSE TO BOARD ORDER of the Illinois Environmental Protection Agency

upon the following persons,

John Therriault, Assistant Clerk

Illinois Pollution Control BoardJames R. Thompson Center

100 West Randolph, Suite 11-500

Chicago, Illinois 60601

Richard R. McGill, Jr.Hearing Officer

Illinois Pollution Control Board

James R. Thompson Center

100 West Randolph, Suite 11-500

Chicago, Illinois 60601

Thomas Davis, Bureau Chief

Environmental Bureau

Office ofthe Attorney General

500 South Second Street

Springfield, Illinois 62706

Mitchell Cohen, General CounselOffice of Legal Services

Illinois Department ofNatural Resources

One Natural Resources Way

Springfield, IL 62702-127 1

by mailing a true copy thereof in an envelope duly addressed bearing proper first class

postage and deposited in the United States mail at Springfield, Illinois on April 29, 2013.

DATED: April 29, 2013

1021 N. Grand Avenue East

P.O. Box 19276

Springfield, Illinois 62794-9276

(217) 782-5544

ILLINOIS ENVIRONMENTAL

PROTECTION AGENCY

Kent E. Mohr Jr.Assistant Counsel

Division of Legal Counsel

Illinois Ozone SIP Revision - Vehicle Refuleing Vapor Recovery Program: Attachments Page - 519
Illinois Ozone SIP Revision - Vehicle Refuleing Vapor Recovery Program: Attachments Page - 520
Attachment 9

Hearing Officer Order

dated May 6, 2013

Illinois Ozone SIP Revision - Vehicle Refuleing Vapor Recovery Program: Attachments Page - 521
Illinois Ozone SIP Revision - Vehicle Refuleing Vapor Recovery Program: Attachments Page - 522
ILLINOIS POLLUTION CONTROL BOARD 

May 6, 2013 

IN THE MATTER OF: ) 

) 

VAPOR RECOVERY RULES: ) 

AMENDMENTS TO 35 ILL. ADM. CODE ) 

PARTS 201,218, and 219 ) 

R13-18 

(Rulemaking - Air) 

HEARING OFFICER ORDER 

On March 18, 2013, the Illinois Environmental Protection Agency (IEPA) filed a 

rulemaking proposal to amend the Board's air pollution rules at 35 Ill. Adm. Code 201,218, and 

219. The proposal includes the phase out of Stage II vapor recovery systems at gasoline 

dispensing operations in the Chicago ozone nonattainment area. On April 4, 2013, the Board 

issued an opinion and order which, among other things, accepted !EPA's proposal for hearing 

and, without commenting on the proposal's merits, adopted the proposed amendments for firstnotice publication in the Illinois Register (5 ILCS 100/5-40 (2010)). 

The first of two scheduled hearings will be held in Springfield, beginning at 11 :00 a.m. on 

May 8, 2013. The deadline to pre-file testimony for the hearing was April 24, 2013. Only IEP A 

pre-filed testimony. Attached to this order are Board staff questions for the witnesses of IEPA. 

These questions will be taken up at the first hearing. IEP A is not required to present written 

responses to the attached questions before or at hearing. The hearing officer will, of course, 

provide opportunities for other participants attending the hearing to pose questions to IEP A. 

IT IS SO ORDERED. 

Richard R. McGill, Jr. 

Hearing Officer 

Illinois Pollution Control Board 

100 West Randolph Street, Suite 11-500 

Chicago, Illinois 60601 

(312) 814-6983 

richard.mcgill@illinois.gov 

Illinois Ozone SIP Revision - Vehicle Refuleing Vapor Recovery Program: Attachments Page - 523
ATTACHMENT TO HEARING OFFICER ORDER 

May 6, 2013 

Board Staff Questions for First Hearing 

Docket R13-18, Vapor Recovery Rules: Amendments to 

35 Ill. Adm. Code Parts 201, 218, and 219 

Part 201 

1. At pages two and three of Mr. Cooper's pre-filed testimony, Mr. Cooper explains the 

need for the proposed amendments to Section 201.146(n)(l) ("any amount of material or 

mixture of any material listed as a hazardous air pollutant pursuant to section 112(b) of 

the Clean Air Act"). Are like amendments ("amount" and "mixture") needed in Sections 

201.210(a)(IO)(A) and 201.210(b)(l4), which also refer to any material listed as a 

hazardous air pollutant pursuant to section 112(b) of the Clean Air Act? 

2. In !EPA's view, is an underground storage tank (UST) considered "not used to store" or 

"not used for the storage of' gasoline (Sections 201.146(n)(1) and 201.21 O(a)(1 ), 

respectively) ifthe UST is put into "temporary closure" pursuant to 41 Ill. Adm. Code 

175? Under the temporary closure regulations of the Office of the State Fire Marshal 

(OSFM), a UST is considered "empty" when "all materials have been removed using 

commonly employed practices so that no more than 2.5 centimeters (one inch) of residue, 

or 0.3 percent by weight of the total capacity of the UST system, remain in the system." 

41 Ill. Adm. Code 175.810(a)(l) (based on 40 C.F.R. § 280.70(a)). 

3. Proposed Section 201.210(a)(10)(B) states in part: "gasoline, including gasoline/ethanol 

blend fuels." This "including" language is repeated at proposed Sections 

201.210(a)(19)(A) and (b)(4). The term "gasoline" is used in Section 201.210(a)(IO)(A), 

however, without this "including" language. Should "including gasoline/ethanol blend 

fuels" be added to Section 201.210(a)(IO)(A)? 

4. Proposed Section 201.210(a)(19)(B) states: "Distillate oil, including kerosene and diesel 

fuel, biodiesel, and biodiesel/distillate oil blends." This "including" language is repeated 

at proposed Section 201.210(b)(4). Please clarify which listed fuels are intended to fall 

within the word "including," i.e., does "distillate oil" include kerosene and diesel fuel, 

but not biodiesel or biodiesel/distillate oil blends? Also, the term "distillate oil" is used 

in Sections 20 1.146(n)(3) and 201.21 0( a)(11 ), but without this "including" language. 

Should the "including" language be added to Sections 201.146(n)(3) and 201.210(a)(11 )? 

5. IEPA proposed amending Section 201.210(b)(4) as follows: "General vehicle 

maintenance and servicing activities at the source, other than gasoline, including 

gasoline/ethanol blend fuels, distillate oil, including kerosene and diesel fuel, biodiesel, 

and biodieselldistillate oil blends fuel handling and dispensing." Is it IEP A's intent that 

all of these listed fuels, beginning with "gasoline," modify the words "fuel handling and 

dispensing"? 

Illinois Ozone SIP Revision - Vehicle Refuleing Vapor Recovery Program: Attachments Page - 524
2 

6. Please provide some examples ofhow the "rolling 12 month total" would be calculated 

for purposes of determining the "annual average throughput" in proposed Section 

201.21 O(a)(19)(A). 

Part 218 

1. Why are the proposed amendments to Section 218.586(b) ("[ c ]ompliance shall be 

required and demonstrated") and Section 218.586( d) ("shall comply and demonstrate 

compliance") necessary? 

2. If the amendments in item 1 are necessary, are like amendments needed in other Part 218 

provisions (not open in this rulemaking) that refer to demonstrating compliance (e.g., 

Sections 218.187( c), 218.204(a)(2)(B)(ii))? 

3. In Sections 218.586(d)(1) and (g)(4), should language be added so as to further identify 

what is being decommissioned, i.e., "decommissioning of the vapor collection and 

control system"? 

4. Must the "records relating to decommissioning" (Section 218.586(g)(4)) be maintained at 

the site of the gasoline dispensing operation? If so, how must the record be maintained if 

the site closes? Does Section 218.586(g)(4) correctly read 30 "minutes"? 

5. Does IEP A have a sample 1 0-day "notice of intent" form referred to in proposed Section 

218.586(i)(2)(A)? If so, please provide a copy for the record. Will the form be available 

on IEP A's website after these rules are adopted? 

6. In Section 218.586(i)(2)(B), is Section 14.6.14 of the Petroleum Equipment Institute 

(PEl) Recommended Practices (PEI/RP300-09) excluded from applicability because 

IEP A will be providing the decommissioning checklist and certification pursuant to 

Section 218.586(i)(2)(C)? Does IEP A have a sample checklist and certification? If so, 

please provide a copy for the record. Will the form be available on !EPA's website after 

these rules are adopted? How would !EPA's form differ from Appendix C of 

PEIIRP300-09? 

7. In Sections 218.586(i)(2)(B)(i) and (ii), please explain what the two OSFM "licensure 

model[s]" are, as well as the Illinois Department of Agriculture's "3-A Gasoline Pump 

Meters Code." 

8. In Section 218.586(i)(2)(B)(iii), please describe generally the "pressure decay test" and 

the "tie-tank test" and explain why the former must be "passed" while the latter must be 

"conducted and passed." 

9. Under Section 218.586(i)(2)(C), which "test results" should be submitted to IEPA? 

Illinois Ozone SIP Revision - Vehicle Refuleing Vapor Recovery Program: Attachments Page - 525
3 

10. At pages 14 to 15 ofMr. Burkhart's pre-filed testimony, there is this statement: "in the 

initial year, the savings could be $1,000 or more after subtracting the costs to 

decommission." Does the "the initial year" refer to the first year after decommissioning 

is complete? Please explain how the "$1 ,000 or more" in savings was arrived at by 

"subtracting the costs to decommission." 

11. Please confirm that the numbers on the vertical axis of the figure attached as Exhibit 1 to 

Mr. Burkhart's pre-filed testimony correspond to total vehicle refueling emissions in tons 

per day of volatile organic compounds. 

12. Section 5-75(a) ofthe Illinois Administrative Procedure Act on incorporations by 

reference states that "(t]he reference in the agency rules must fully identify the 

incorporated matter by publisher address and date in order to specify how a copy of the 

material may be obtained." 5 ILCS 1 00/5-75(a) (2010) (emphasis added). Please submit 

an amendment to proposed Section 218.112(ft) that identifies PEl's address for purposes 

of obtaining a copy of the Recommended Practices (PEI/RP300-09). 

Part 219 

1. Why does IEPA propose "reserving" subsection (e) of Section 219.583? See also 

proposed reservation of Section 218.583(e)? 

Technical Support Document 

1. On page 7 of the Technical Support Document (TSD), IEP A states that it used USEP A's 

"MOtor Vehicle Emissions Simulator" (MOVES) model version 2010b to estimate 

refueling emissions from 2007 to 2020. Please submit USEPA's MOVES2010b User 

Guide for the record. 

2. Please spell out the following acronyms appearing in the table entitled "Key Input Data 

for the MOVES Model" on page 7 of the TSD: HPMSV; VMT; IM; and OBD. Also, 

please explain what these terms mean in the context of MOVES model. 

3. Please describe the function of the parameters in the model that are listed as key input 

data in the table on page 7 of the TSD. 

4. Attachment B to the TSD contains the MOVES input and output files in "mySQL 

format" on a compact disc. To make this information more readily understandable, 

please provide, if feasible, a written summary of the input and output files (not simply 

pages of numbers) that would give ranges and averages for the key input data parameters 

listed on page 7 of the TSD, as well as output values other than those graphed in Figure 1 

of the TSD. 

Illinois Ozone SIP Revision - Vehicle Refuleing Vapor Recovery Program: Attachments Page - 526
4 

5. Please provide numerical values for the points graphed in Figure 1 of the TSD. Also, 

please quantify the emission reduction benefits in terms of tons per day (tpd) of volatile 

organic compounds (VOC) for each year graphed beginning in 2014. 

6. The TSD refers to the "January 2014 cross-over point." TSD at 9. Please clarify whether 

the points graphed in Figure 1 correspond to January 1st of each year on the horizontal 

axts. 

7. Please explain the trends in the Figure 1 graph as to what is occurring and why. For 

example: 

a. Does the decrease in "Refueling Emissions (VOC in tons/day)" depicted by the 

"ORVR Only" curve represent an increasing number of vehicles equipped with 

ORVR accompanied by a gradual phase-out/scrapping of older model vehicles 

without ORVR? 

b. Why does the ORVR +Stage II line show a very gradual decrease over time 

rather than an increase due to the incompatibility issue affecting more vehicles 

over time? 

c. The TSD states that "[a ]fter this [cross-over] point, the difference between the 

two lines represents the reduction in refueling emissions if Stage II is 

decommissioned. This difference is 0. 7 tpd in 2014 if Stage II is decommissioned 

increasing to 2.54 tpd in 2020 when an estimated 96% of the vehicle fleet will be 

ORVR equipped." TSD at 8. As the cross-over point appears to be in 2014, at 

which point the difference would be zero, when specifically is the 0.7 tpd 

difference expected? 

Illinois Ozone SIP Revision - Vehicle Refuleing Vapor Recovery Program: Attachments Page - 527
Illinois Ozone SIP Revision - Vehicle Refuleing Vapor Recovery Program: Attachments Page - 528
Attachment 10

Transcript of May 8, 2013 Hearing

Illinois Ozone SIP Revision - Vehicle Refuleing Vapor Recovery Program: Attachments Page - 529
Illinois Ozone SIP Revision - Vehicle Refuleing Vapor Recovery Program: Attachments Page - 530
Page 1

BEFORE THE

ILLINOIS POLLUTION CONTROL BOARD

IN THE MATTER OF:

VAPOR RECOVERY RULES: ) DOCKET R13-18

(Rulemaking -Air)

AMENDMENTS TO 35 ILL. ADM.

CODE PARTS 201, 218 AND 219 )

CLERjc OFFICE

MAY 13 23

STATE OF LLlNO,S olluton Control Board

Hearing held, pursuant to notice, on Wednesday,

May 8, 2013, at the hour of 11:00 a.m. at 1021 N.

Grand Avenue East, Springfield, Illinois, before

RICHARD R. McGILL, JR., duly appointed Hearing

Officer.

L.A. REPORTING SERVICE

(312) 419—9292

REPORTER: LAUREL A. PATKES, CSR *084-001340

Illinois Ozone SIP Revision - Vehicle Refuleing Vapor Recovery Program: Attachments Page - 531
Page 2

1 BOARD MEMBERS:

2 TOM HOLBROOK, Chairman

CARRIE ZALEWSKI

3 JEROME O’LEARY

DEANNA GLOSSER

4

ALISA LIU, Technical Unit

5

CHAD KRUSE

6 Attorney Assistant to Member Zalewski

7

APPEARANCES:

8

KENT E. MOHR, JR.

9 IEPA Assistant Counsel

1021 N. Grand Avenue East

10 Springfield, Illinois 62794—9276

11

12

13

14

15

16

17

18

19

20

21

22

23

24

Illinois Ozone SIP Revision - Vehicle Refuleing Vapor Recovery Program: Attachments Page - 532
Page 3

1 INDEX

2

WITNESS PAGE

3

Opening remarks by Hearing Officer 4

4

Narrative testimony by Darwin Burkhart 14

Narrative testimony by Ross Cooper 24

6

Questioning by the Board 32

7

8

9

10

11

12

13

15 EXHIBITS

16 IDENTIFIED ADMITTED

17 Hearing Exhibit 1 8 9

Hearing Exhibit 2 9 9

18 Hearing Exhibit 3 67 67

19

20

21

22

23

24

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Page 34

requirements are triggered by the potential to emit

2 of an air pollutant which a storage tank having the

3 capability to store or having previously stored a

4 volatile liquid does. As long as a storage tank is

5 on site, it is considered an emission unit.

6 HEARING OFFICER McGILL: So if I

7 understand that correctly, it could be empty under

8 the Fire Marshal regulations but still be considered

9 used to store gasoline?

10 MR. COOPER: Correct.

11 HEARING OFFICER McGILL: For purposes

12 of the agency’s proposal?

13 MR. COOPER: Correct.

14 HEARING OFFICER McGILL: Thank you.

15 Question 3. Proposed

16 Section 201.210 (a) (10) (3) states in part, “gasoline,

17 including gasoline/ethanol blend fuels.” This

18 “including” language is repeated at proposed

19 Sections 201.210 (a) (19)A and (b) (4). The term

20 “gasoline” is used in Section 201.210 (a) (10) (A)

21 however without this “including” language. Should

22 “including gasoline ethanol blend fuels” be added to

23 Section 201.210 (a) (10) (A)?

24 MR. MOHR: Mr. Cooper.

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Page 41

not make changes in those specific sections.

2 HEARING OFFICER McGILL: Question 3

3 in Section 218.586(d) (1) and (g) (4), should language

4 be added so as to further identify what is being

5 decommissioned; that is, decommissioning of the

6 vapor collection and control system?

7 MR. MOHR: From a legal standpoint,

8 both of those subsections (d) (1) and (g) (4)

9 specifically relate back to subsection (i) which

10 requires decommissioning of vapor collection and

11 control systems, so in my opinion, from a legal

12 standpoint, you don’t need to make that change.

13 HEARING OFFICER McGILL: But because

14 it would be redundant; not because it’s inaccurate.

15 MR. MOHR: Exactly.

16 HEARING OFFICER McGILL: Thank you.

17 MR. MOHR: You certainly could make

18 the change if you chose to do so.

19 HEARING OFFICER McGILL: Question 4.

20 Must the “records relating to decommissioning -- I’m

21 referencing Section 218.586(g) (4) -— be maintained

22 at the site of the gasoline dispensing operation?

23 MR. MOHR: Mr. Burkhart.

24 MR. BURKHART: No. They do not have

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Page 61

1 in the model scenario USEPA did when they made this

2 document of 2012. That’s essentially what they were

3 showing in the series of four tables in that

4 document.

5 MR. MOHR: And in Table 4, that’s

6 where they show how you come up with the savings?

7 MR. BURKHART: Yes.

8 MR. MOFIR: Okay. Then after the

9 initial decommissioning event, can you realize cost

10 savings in the subsequent periods?

11 MR. BURKHART: Yes, recurring cost

12 savings, definitely.

13 MR. MOHR: And those would not

14 obviously take into account the savings that you had

15 at the time of decommissioning. It would be a

16 different amount of savings based on purely the cost

17 of not having to do operation and maintenance on the

18 Stage II equipment and replace those more expensive

19 Stage II parts.

20 MR. BURKHART: Correct.

21 MR. MOFIR: Thank you.

22 BOARD MEMBER O’LEARY: With a phasing

23 out of Stage II and then if a particular station is

24 going to decommission, what’s the likelihood that

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Page 68

1 MS. LIU: No. 3. Would you please

2 describe the function of the parameters in the model

3 that are listed as key input data in the table on

4 page 7?

5 Was that answer intended to -—

6 MR. GEB}-IARDT: I’m sorry.

7 MS. LIU: Was your previous answer

8 intended to cover that as well?

9 MR. GEBHARDT: No, no. No. 3 I’d

10 like to respond in writing.

11 MS. LIU: No. 4. Attachment B to the

12 TSD contains the MOVES input and output files in

13 mySQL format on a compact disc. To make this

14 information more readily understandable, would you

15 please provide, if feasible, a written summary of

16 the input and output files (not simply pages of

17 numbers) that would give ranges and averages for the

18 key input data parameters listed on page 7 of the

19 TSD as well as the output values other than those

20 graphed in Figure 1 of the TSD.

21 MR. MOHR: Mr. Gebhardt?

22 MR. GEBHARDT: For No. 4 I’d like to

23 respond in writing also.

24 MS. LIU: No. 5. Would you please

Illinois Ozone SIP Revision - Vehicle Refuleing Vapor Recovery Program: Attachments Page - 598
Page 69

1 provide numerical values for the points graphed in

2 Figure 1 of the TSD. Also, please quantify the

3 emission reduction benefits in terms of tons per day

4 of volatile organic compounds for each year graphed

5 beginning in 2014.

6 MR. GEBFIARDT: For No. 5 I will

7 respond in writing.

8 MS. LIU: No. 6. The TSD refers to

9 the January 2014 crossover point. Would you please

10 clarify whether the points graphed in Figure 1

11 correspond to January 1st of each year on the

12 horizontal axis.

13 MR. MOHR: Mr. Gebhardt.

14 MR. GEBHARDT: For No. 6 I will

15 respond in writing.

16 BOARD MEMBER O’LEARY: No. 7. Please

17 explain the trends in the Figure 1 graph as to what

18 is occurring and why. For example:

19 a) Does the decrease in “Refueling

20 Emissions (VOC in tons per day) depicted by the

21 “ORVR—only” curve represent an increasing number of

22 vehicles equipped with ORVR accompanied by a gradual

23 phase-out/scrapping of older model vehicles without

24 ORVR?

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Page 72

1 DCEO, conduct an economic impact study for this

2 rulemaking. Section 27(b) of the Environmental

3 Protection Act requires the Board to request that

4 DCEO conduct an economic impact study or EcIS on

5 proposed rules before the Board adopts the rules.

6 DCEO may produce a study on the economic impact of

7 proposed rules. The Board must make the economic

8 impact study or DCEO’s explanation for not

9 conducting one available to the public at least 20

10 days before public hearing.

11 On April 8, 2013, the Board delivered

12 to DCEO a request to conduct an EcIS on IEPA’s

13 rulemaking proposal. On that same date, the Board

14 received a letter from DCEO Acting Director Adam

15 Pollet (that’s P—o-l—l—e-t) stating that DCEO would

16 not be conducting the requested economic impact

17 study.

18 Is there anyone who would like to

19 testify regarding this matter?

20 Seeing none, the next procedural

21 item, I just want to mention that the notice list

22 for this rulemaking is a list of persons who wish to

23 receive only the Board’s opinions and orders and

24 hearing officer orders. The service list is the

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Page 75

l STATE OF ILLINOIS

)SS.

2 COUNTY OF SANGANON)

CERTI FICATE

5 I, Laurel A. Patkes, Certified Shorthand

6 Reporter in and for said County and State, do hereby

certify that I reported in shorthand the foregoing

8 proceedings and that the foregoing is a true and

9 correct transcript of my shorthand notes so taken as

10 aforesaid.

11 I further certify that I am in no way

12 associated with or related to any of the parties or

13 attorneys involved herein, nor am I financially

14 interested in this action.

15 Dated May 10, 2013.

16

Certified Shorthand Reporter

19

20

21

22

23

24

Illinois Ozone SIP Revision - Vehicle Refuleing Vapor Recovery Program: Attachments Page - 605
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obtained 43:24

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11:10 16:18

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