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# OAR Box 1781 Prepped by Ollie Stewart



### Document

Number: 

# 128)IV-C-4 2 Docket Number: 

# A-90-3 7

Printed 10/29/2008 10:46:24

AM Sheet 128 of 142P. 2

o r f t f UNITE D STATE S ENVIRONMENTA L PROTECTIO N AGENC Y Offic e o f Ai rQualit y Plannin g an d Standard s Researc h Triangl e Park , Nort h Carolin a 2771 1



## m l 4 jgg g Mr

. Gustav e Vo n Bodungen Assistan t Secretary , Stat

e o f Louisian a Departmen

t o f Environmenta

l Qualit y Pos t Offic e Bo x 8213 5 Bato n Rouge , Louisian a7088 4 Dea r Mr

. Von Bodungen : Thi s i s in respons e t o your

letter t o Rober t Hannesschlage

r regardin g th e Louisian a Departmen

t o f Environmenta

l Protection' s (LDEQ ) positio n on th e preventio n o f significan t deterioratio n (PSD ) significan t emissio n leve l fo

r ozon e depletin g substance s (ODS ) a t existin g majo r sources . I

t i s m y understandin g tha

t LDE Q i s considerin g th e applicabilit y o f th e PS D progra mto asourc e wher

e th e propose d emission s o f OD S ar e approximately 4 0 ton s pe r yea r (TPY)

. A s discusse d in th e Septembe r 11,199 7 letter

fromRegio n V I to LDEQ , curren t Federa l regulation s specif

y "any emission s rate " a s th e significanc e level fo r ODS

. Nevertheless , a s yo u ar e als o aware , o n Jul y 23,1996 , th e Environmenta l Protectio n Agenc y (EPA ) propose d ane w significanc e leve l o f

10 0 TP Y fo r ODS

. Th e commen

t perio d wit h regar d t o thi s proposa

l i s no w closed , an d th e Agency receive d n o advers e comment s o n th e propose d significanc e level

. The EPA' s curren

t plan s ar e to issu e afinal rulemakin g o n thi s issu e b y th e en d o f thi s year . I

n ligh t o f thes e factors , EP

A woul d hav e n o objectio n to LDEQ' s issuanc e o f apermi t to thi s source , which wil l emi

t substantiall y les s tha

n 10 0 TP Y o f ODS , without

conductin g aPS D review fo r OD S emissions , prio r

to th e promulgatio n o f

final rule s establishin g a

n OD S significanc e level

. If you hav e an

y question s concernin g thi s response , pleas e contac t Davi d Solomon o f

th e Integrate d Implementatio n Grou p a t (919 ) 541-5375

. I appreciat e th e opportunit

y t o b e o f servic e an d trus t tha t thi s informatio n wil l b e helpfu l to you .

S,

. Seit z Director : o f Air Qualit y Plannin g an d Standard s

cc : Rober

t Hannesschlage

r_P 3 SE7VT . EY:Al r .Pes tToxic s Re

g 6 5 1-16-9 8 ; 3:27P

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"5^pK.'* , , 2146652164 - 919135414028; #2 / 6 % 

# State o f Louisian a -J

L Departmen to f

Environmenta l Qualit y ^ '•*ieo i

MJ."WIKr. " FOSTER

. JR . COVP.KNOK j . DAI> : C;I\TN S MtflilTAIt V ^JLK W Januar y 12,199 7 

## (J$\35xr cv \olh*\*~ L^ L o^e - ye^^^A^-to Mr . Rober tHannesschlage r - 6T D Actin g Directo r Multi-Medi a Planning & Permittin g Divisio n U . S . Environmenta

l Protectio n Agenc y Regio n V I 144 5 Ros s Avenue , Suite 120 0 Dallas , Texa s 7520 2 kc : AHiedSigna

l Dea r Mr . Hannesschlager : This lener ha

s bee n prepare d i n respons e i o you r reques tfo r a n officia l writte n communicatio n fro m th e Louisiana Departmen to f linvironmcnta

l Qualit y (LDEQ ) tha

tclarifie s it s latitud e in evaluatin g th e significan temissio n lev d wit h respec tt o ozon e depletin g substance s (ODS ) a l existin g majo

r stationar y sources . Th e LDE Q i s i

n receip to f

Ms . Jol c Luchrs ' lette r o f Septembe r II , IW 7 relatin g t o a PS D determinatio n fo r a rcfngerantreclamation uni tpropose d i o b e constructe d b y th e Bato n Roug e Sout h Work s plan to f AHiedSignal . Prio r l o an d subsequentt o th e issuanc e o f th e reference d lene r numerou s discussion s too k plac e betwee n an d amon g representative s o f th e I-DEQ , AHiedSignal , Regio n V I an d th e Office o f

Air Qualit

y Plannin g an d Standards (OAQPS) . Subsequen tt o thes e discussions , I wa s vcjuall y informe d b y Joh n Seit z tha

titwoul d h e appropriat

e t o us e th e propose d 10 0 ton pe r yea

r (tpy ) significanc e leve l tha ti s include d h

i llijf c Ne w Sourc e Revie w Refor m rulemaking packag e (6 1 F R 38250 ) i

n determining preventio n o f significantdeterioratio n (PSD ) applicabilit

y fo r OD S unde

r th e majo

r modification classification . A s a consequenc e o f thes e verba

l assurances , th e I.DP. Q issue d a constructio n authorisatio n fo r th e projec tpursuan

tt o LA C 3.V.M.501.C A which provide s fo r such where ther e i s a positiv e huma

n healt h o r environmenta

l benefit . Subsequently , th e LDE Q accepte d a non-PS D permitapplication , whic h i s currentl y undergoin g review , fro

m AHiedSigna

l for the propose d project. Th e LDE Q ha s bee n advise d tha t AUicdSigna

J expect s t o b e i n a position t o start-u

p the propose d uni

th y Februar y I , 190 8 an

d woul d like t o issu e th e necessar

y peimi tunde r th e provision s o f minor-NS R prio r t o tha

tdate . O f issu e i n thi s cas e i s th e existin g languag e include d i n bot h 4 0 CF R 51.166(b)(23)(ii ) an

d 4 0 CF R 52.2 1 (b)(23)(H) , which stale s "Significant means , it i reference t o a ne

temission s increas e o r th e potentia l o f a source t o emi

ta pollutan

tsubjec tt o regulatio n unde

r th e Acttha

tparagrap

h (b)(23X 0 

# W fCCvCH-t l WJ\t*< OI' I IC I O r Air i DUALIT Y P O BO X 82>3 6 IIAIONMOUGE

. LOUISIAN A /u<t:t-i>?i ; A N COUA L OPFOMIUMIT Y CMPlOYPf

t 

# fes. t &P. 4 SErVr.BYiAir

. Pes tToxic s Re

g 6 ; 1-16-9 8 ; 3:27P

M 2146652164 - 919195414028; * 3 / 6

Pag e 2 I/12/9X

o f thi s sectio n doc s no tlist , an y emission s rate. " Paragrap h (bX23X> ) o f

each specifie s d e minimi s -emission s rates , expresse

d in term s o f ton s pe r year , fo r criteri a an

d certai n non-criteri a ai

r pollutants t o b e considere

d significant

. Th e concep to f

significan ti s use d t o determin e PS D majo r modificatio n applicability an

d identif y pollutant

s associate d wit

h a ne w sourc e o r a majo r modificatio n tha i ar e subjec tt o BAC T an

d ai r qualit

y analyse s a s par

to f a PS D review . Wit

h th e exceptio n o f

th e pollutants relate d t o municipa l wast e combustor s o r municipa l soli d wast e landfills , al l o f th e remainin g pollutant

s an d emissio n rate s wer e incorporated into th e PS D progra m a s o resultu f

th e promulgation o f

th e Augus t7.198 0 NS R regulations . Prio r t o th e promulgation o f th e 198 0 regulations , th e threshol d fo r classificatio n a s a majo r modificatio n wa s a

n increas e i n potentia

l emission s o f

100/25 0 tpy—dependin g upo n whethe r th e source wa s a name d category—o f

an y pollutan tregulated under th e Ae tfin e Clea n Air Actj , which wa s th e sam

e threshol d fo r classificatio

n a s a majo

r source . Th e 197 9 Alabama Powercourtdecisio n (4 5 F R 52699 ) rejected liPA' s regulator y approac h o f requirin g PS D revie w o f

potentia l emission s increase s a texisting stationar

y source s onl y when suc

h increase s woul d equa

l o r excee d th e 100/25 0 tp y threshold , an

d held , instead , tha

ta change i

n a majo r stationar

y sourc e i s subjec

tt o revie w onl y i f i twould resul

ti n an y significan

tne tincrease . Additionally (4 5 F R 52705) , th e cour

tindicated tha

t emissions fro

m certai n smal l modifications , an

d emission s o f

certai n pollutant

s a tne w sources , coul d b e exempted fro

m som e o r al

l PS D revie w requirement s o n th e ground s tha

tsuc h emission s woul d b e de minimis. Th e cour tals o indicate d tha tth e Agency coul d establis h exemption s base d o n administrative necessit

y (e.g. , th e inabilit

y u f reviewin g authoritie s t o provid e th e necessar y wor k forc e t o properl

y revie w a ver

y larg e numbe

r o f permi tapplications) . I n Sectio n X I o f

the 198 0 preamble , th e Agenc y goe s int o grea tdetail tn cvplai n th e methodolog y fu r th e establishmen

to f th e significan

temissio n rales . I'w o differen tmethod s wer e employe d fo r criteri a pollutant

s fo r whic h extensiv e healt h an d welfar e informatio

n wa s develope d an

d documente d an d non-criteri

a pollutant

s fo r whic h n o criteria o n ambien

tellecl s existed . Itwa s Anthe r note d tha

t th e non-criteri a pollutant s wer e covere d b

y eithe r NSP S o r NESHAP . l l wa s note d tha ti twa s therefor e reasonabl

e t o develop de minimis cutoff s fro m separat e perspective s wit

h criteri a pollutan t </( ? minimis cutoff

s based o n ai

r qualit y "desig n values " an

d non-criteri a pollutantdc minimis value s based o n th e emission s rate s embodie d i n th e NSP S an

d NESHAP . O f

significanc e i s th e fac

ttha t th e criteri a an d non-criteri

a pollutant

s include d in th e definition of

significant

in th e 198 0 regulation s wer e th e onl y pollutant

s regulate d unde

r th e Ac ta ttha ttime . Hence , th e any emissions rate phrase tlia tbecam e promulgate

d i n 198 0 an d currentl y reside s i n paragraph

s (b)(23)(ii ) wa s superfluous , a s ther e wer e n o othe r polluinm s regulated unde r th e Ac tattha ttime . I n th e closin g paragrap

h o f Sectio n XI , an

d i n i ejectin g a suggestio n t o limi tth e Jc minimis concep tonl y t o criteri a pollutants , EP A note d tha

tus e o f the dc minimis concep twit h respec tt o onl y th e criteri a pollutant s suggest s tha tan y increas e (i.e. , a zer o d? minimis value ) woul d b e significantfo r non-criteri a pollutani s an d jnusl b e reviewe d an

d then stated tha

ta 7ctodt! minimis i s no tpractica l for thi s [PSD | program . A s earl y a s Januar

y o f 1981 , EP A apparentl

y recognize d th e inappropriafenes s o f th e any emissionsP. 5 SENT-BY:Al

r Pes tToxic s Re

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M 2146652164 - 919195414028.: * .4 / 6

Pag e 3 1/12/9 8

rate phrase . I

n hi s respons e o n Januar y 19 , 198 1 t o Questio n 4 pose d b y Andre a S . Bear , Esq. , Dougla s Costl e responded :

The firstpar

to f th e definitio

n o f th e ter m ".significant " i n th e ne w regulation s contain s a lis

to f pollutant s an d specific s a deminmi s emission s leve l fo r eac h o f them . Se c 4 0 CF

R S2.21(bX23)(i) , * * M l 52737 . Th e secon d par tthe n provide s that

, fo r an y pollutant"subjec

tt o regulatio n unde r th e A a tha t[th e firs tpail ] doe s no tfist, "tii

e ter m mean s an

y emission s rat

e a tall . Jd. 4 0 CF R 52.2l(b)(23X«) . You as k tha

tth e agenc

y delet e th e secon d par

to f di e definition . EP A agree s t o d o so , whe n i

tpromulgate s in th e nea

r futur e technica

l an d conformin g amendment

s t o th e regulation s I n reassessin g th e secon d par to f th e definition , LP

A ha s conclude d tha

ti ti s superfluous . O

n th e on e liand , th e firs

tpar talread y list s each o f

th e pollutants thi U wer e regulated unde

r th e Actwhe n EP

A promulgate d th e part. O n th e othe r hand , F.P

A plan s t o establis h a d e minimis threshol d for an y currentl y unregulate d pollutant , whe n i tregulate s tha

tpollutant . Thus , considerin

g th e detai

l wit h whic h F.P A establishe d i/

e minimis value s fo r th e initia l significant level s an d th e remark

s i n Dougla s Costlc' s Januar y 19,198 1 letter , iti s clear dial EP A intended t o establish significan

tlevel s wheneve r an

y previously umeguhte d pollutant s becam e regulate d unde

r th e Act . Th e initia l eightOD S compound s (CFC s 11 , 12 , 113 . 114 . 11 5 an d llalon s 1211 . 130 1 an

d 2-102 ) becam e "regulated unde

r th e Act " whe n EP

A promulgaie d a fina

l rul e o n Augus t12 , I9R 8 (5 3 F R 30566 ) implementin

g th e Montrea

l Protocol . Unfortunately , liPA di d no testablis h significan

tvalue s fo r thes e pollutant

s a ttha tlim e and , sinc e F.P

A di d no l delet e th e "seeorid par to f th e definition " a s i tagree d t o i n 1981 , thes e pollutant

s becam e regulated under PS D wit h a zer o dc minimis omission s rate , whic h LP

A ha d slate d in th e 198 0 preambl e wa s no l bein g practica

l for th e PS D program . Likewise , when EPA promulgate d a final rul e o n Jul

y 30 , 199 2 (5 7 F

R 33754 ) tha

tregulate d al

l o f th e Clas s I an

d T l ODS , agai n withou tth e establishmen to f PS D significantlevels , numerou s additiona l previousl y unregulated pollutant s becam e regulated unde

r PS D wit

h a zei o tie minimis emission s rate . As. a consequence , a situatio n ha s arise n i n whic h thes e previousl y unregulated pollutant s hav e bee n assigne d d e facto zo o de minimis emission rate s du e t o EPA' s failur e t o establis h appropriat

e dc minimis emissio n rates fo r thes e pollutant s coinciden twit

h their becomin g regulated . I

ti s obviou s from a revie

w o f th e preamble

s o f Uies e regulations , whic

h wer e promulgaie d i n Par tX 2 pursuan

tt o Titl e V I o f

th e Aet , tha

tn o consideratio n ha

d bee n afforde

d t o th e potentia

l impac to f thes e regulation s o n th e PS D program . Considerin g EPA' s prior assertion s regardin g a zer o de minimis leve l an

d it s inten tt o promulgat

e significan

tlevel s whe n ne w pollutant s becam eP. 6 «3j_r« i ui-ni i les i iHAIL S ive g u • 1~A0~9 0 I O'ZOn u » .Z140002104 - 313135414028; * 5 / 6

Pag e 4 1/12/9 8 regulated , th e failur

e t o d o s o shoul d no tb e construe d a s a n intentt o appl y a zer o de minimis t o ODS . EP A ha s finall y attempte d t o remed y thi s situatio n i n it s Jur

y 23 , 199 6 NS R Refor

m rulemakin g proposa l (6 1 FR 3K250) , i n whic

h a 10 0 tp y dc minimus emissio n rat e wa s propose d fo r all OD S in th e aggregate . I

n proposin g dii s significanc e leve l (6 1 F R 38308) , EP A abandoned it s previou s preceden to f establishin g significanc e level s based o n local ambien timpactslatin g "Sinc e emission s causing stratospheri

c ozon e depletion i s strictl

y a globa l problem, no appreciabl e local ambien timpac t wil l resul tfro

m emission s fro

m a particula

r source. " Instead . LP A acknowledge d tha t"the Ac t provides tlia

ta ne w source emittin

g 100 tpy o f

OD S (an d fo r som e sourc e categorie s 25 0 tpy ) shoul d b e subjec tt o PS D review " an

d the n state d "EP A believe s tha

tPS D shoul d appl

y i o an y modificatio n a ta majo r stationar y sourc e tha twoul d resul

ti n a ne temission s increas e o f

OD S o f a tleas t10 0 tpy , whic h i s th e lowe r majo

r source threshold. " EPA' s choic e o f the lowe r majo

r sourc e threshol d o f

10 0 tp y a s th e significanc e lev d fo r OD S an d it s reason s fo r doin g s o emphasize s th e absurdit y o f a d e fact o zer o dc minimis emission s rat e fo r thes e pollutants . I

l ha s been ove r seventee n month s sinc e th e NS R Refor

m proposal , snd , since promulgatio n o f thi s significanc e leve l i s a tbes tseveia l month s away , a n inequhabl

c situatio n currentl y exist s To

r bot h souiec s an

d reviewin g agencie s tha

tdemand s immediat e relief . I n the TM< ^ o f th e AHiedSigna

l project , which i s bein g constructe d t o provid e a vehicl e fo r en d user s t o satisf y Titl e V I requirement

s tha tOD S b e recycle d an

d notvente d t o th e atmosphere , ther e wil l b e a n emission s increas e a

tdi e AHiedSigna

l facilit y o f approximately 3 9 tp y o f

ODS , whic h i s wel l belo w th e propose d significanc e leve l o f 100 tpy . Thes e emission s wil l li e a combinatio n o f point sourc e emission s fro

m a non-condensibl c purg e ven tan d fugitiv e emission s fro m pipin g an

d equipmen tcomponent s tha

tAHiedSigna

l has calculate d usin g th e averag e SOCMI emissio n factor s containe d i n th e Protocol for Equipment

Ixak fanission Estimates, F.PA-453/R-95-017 , Noveml>e r 1995 , whic

h ar c know n t o b e conservative . Shoul d PS D revie w b e require d for thi s project , a

n esscnliall y "hollow " procedura l permi twoul d mos tlikel y b e produced . A s ther e ar c n o NAAQS , increment s o r modelin

g significan

tlevel s fo r ODS , a n ambien tai r analysi s woul d no tb e prepare d a s pan o f (h e application . Additionally , considerin g tlt c magnitud

e an d typ e o f emission s associate d wit h th e project , i ti s ver

y probable tha

ta determination o f

n o contro l coul d b e made wit h respec tl o BACT . I

n th e end , considerabl e lim e an d resource s o f

bot h th e sourc e an

d th e t.DL Q woul d b e consumed i

n th e preparatio

n an d review o f

a PS D permi

tapplicatio

n fo r a n environmentally beneficia l projecttha

tcoul d otherwis e b e processe d unde r d> c minor-NS R provision s wit h n n les s stringent emission s limitations . Sinc e th e beginnin g o f

thes e discussions , th e LDE Q ha s jus tbee n appraise J o f anothe r propose d projec ta tth e AHiedSigna

l facilit y involvin g a greate r tha

n 7er o emission s increase . Thi s particula r projec tinvolve s modifications t o th e facility' s packagin g operation s tha twil l resulti

n a n increas e o f 0. 8 tp y o f

ODS , con.sisiin g entirel

y o f fugitiv e emissions . Th e projeci itsel f consist s essentiall y o f pipin g modification

s tha tca n b e performe

d within a fe w weeks , and , excep tfo r th e zer o de minimis 

# 5P. 7 out i ui-rti i its i iuAit. a At| j u » j-io-o o » o^ur m i ^14000^104 - 313195414028; * 6 / 6

Page S 1/12/9 8

emissions rat

e issue , coul d b e processe d b y th e I JMv Q a s a permi

texemption—a proces s tha tcan normall y b e accomplishe d i n abou ttw o weeks . Certainly , subjectin g such a projec tt o PS D revie w wil l hav e n o significantenvironmenta l benefit. I n additio n t o thes e particula

r projects , facilitie s such a s AHiedSigna l tha tmanufactur

e OD S becom e potentiall y subjec

tl o PS D revie w o n every singl e projec tdia l i s propose d du e t o th e existin g zer o dc minimis emission s rat e issue . Certainly , Uu'

s situatio n wa s no l intende d b y Congres s i n it s enactmen to f

th e PS D requirements . I ti s the LDF.Q' s belie f

tha tprojects such a s thes e shoul d noth e require d t o underg o PS D review . T o requir e suc h appear s t o b e inconsisten twit

h th e inten

to f th e procedure s tha

twei e ver

y carefully establishe d wit h the promulgatio

n o f the 198 0 regulation

s an d Congiessiona l intenta s well . EP A has finally take

n step s i o mitigat

e thi s unreasonabl e positio n i n th e NS R Refor

m proposal ; however , du e t o th e potentia

l impac ttha ttlii s situatio n currentl

y lia s o n bot

h source s an

d reviewin g agencies , a

n immediat e resolutio n throug

h polic y actio n i s require

d a tthi s time . Tlian k yo u for you r consideratio n o f thi s mos timportan

tissu e 1 loo k forwar

d t o you r rapi

d respons e outlining procedures an

d policy—base d o n th e propose d 10 0 tp y significanc e level—tha twill allo w project s suc

h a s thes e t o b e approve d b y th e LDE Q withou tliv e necessity o f

PS D review . Sincerely ,

Gustav e Vo n Bodunge n AssistantSecrelai y

Bll/b h



## Q>P. 8



### OAQP S CORRESPONDENC E TRACKING SHEE T

CONTRO L N O : UNCT-98-167 9

SUBJEC T Dat e Du e t o AQP S Dat e Du e AQP S Receive d AX/A L Assigne d AX/A L Du e 02/05/9 8

/ / 

### RE : LOUISIAN

ADEP T O F ENV' L PROTECTIO N (LDEQ ) POSITION O N TH E PREVENTIO N O F (PSD ) (ODS ) A T EXISTIN G MAJO R SOURCES .

FROM : ROBER T HANNESSCHLAGE R FROM ORG . : MULTI-MEDI ADIV , RE G V I T O : GUSTAV E VO N BODUNGE N ACTIO N ASSIGNE D T O : CC' S RESPONS E REQUIRE D : N PREPAR E RESPONS E FO R TH E SIGNATUR E O F :

SPECIAL INSTRUCTION S : H THOMA S CONCURRE D 2/5/9 8 T O J SEIT Z 2/5/9 8

- ^