UNITED STATES ENVIRONMENTAL PROTECflON AGENCY 

WASHINGTON. D.C. 2W60 

I 

- - E?,i;HQ~NSUBJECT: P& D N~W sawroe aaviev (part D NSR) ~hr-ate for 

to htkdnmenc 

for Air and Radiation (6101) 

Director, Pesticides and Toxfcs 

Hanagemeaat ~ivision, Rageons I and Ilt 

Direct-, & and Waste Xanagement aivfsion, 

Region XI 

DireEtdr, Air, Raaation and ~oxi& DivJTsian, '.- 

Region 111 -' 

Director, Air and RaBiacion ~i~isi~, 

Region Y 

Director, Mr. Pesticides and Toir2os Division 

Region VI 

Director, Air an4 Toxfea Division, 

- Regions VXI, VXU, fX, and X 

T . fntroduct5on 

With ais oemorandrim. EPA is amending one aspecr: of guidance 

Issut:J September a. 1992' amd SepQemb~~ 17, 1993' regarding r c qrtirements for nohattairrmeat areas requesting r&esignalion to 

atre ~nmenc- Xn Waese previ- maaoranda, EPA indicakd tbat 

Sc..;tes must submit and receive full approvat of any part 'D WSR 

rng~.t'ra t i~ns that were mireU by the Aot tq he subitted to EPA 

prior- to or at M8 t5mo of tAe suloni~~ion of: a ocmpleta 

redesignation rt=quPct.. The ESA has. reconsidered +bat policy, 

howevec, and is cistaltlisbFag a new po3.icy under vhich 

- * Y> -*9- . - 'murrorandum entitled, nProcedures far Precessing Requests to 

Jzel'f(.siynate rea as ta Btbhent, " from John .Calcaghi, Director, 

Air ~\u.~l ~ity ~anag-ent ~ix-ision, to Regional A& Division 

ij11-tctc:rszhfcmorandup enticled, "SIP Requirements for Areas Sumitthg 

r:c~quests for RedesignatIan to ,~ttahent of the ozosa and CO 

t:L49S On or After Navember 15, 1992." frorn ~ichaek H- Shapbo, 

I~cti.ng' Assisr;anr ~dministirator for Air and Radia.cicm, to Regional 

Air ~ivisiah Directors. 
2 

norra~~ainment areas may be leQesignated to at+llhenk 

not=+th==tanaing the lack of a fully-approved part D NSR prowam, 

Pr?y~ded the program is not relied upbn for m~rineenan~ec 3h 

atldxtion, BPA is no+ reqpairiag thr existin pat-t D WSR XUIQE bo - place4 in UE &n+ingeacy -on ~f +be nka%aOPmansc plata i. 

pursuant to se~~ zv5A. of tZle Llcts- As dismasjseul belaw, ,$ 

I however, SPA hel5evas its nrnv policy vLll asstzra that the - P 

statutory goals ef part D LISB and secrian Z7SA b prated and -* % 

'maintain the NAAQS are achiuwed. 

The EPA believ=s that us nee policy fs justifiabls undar 

th1? Agency's general autho~f- Cu establish &e mini* ex~ptiotrs 

~CatUtOry requirements where the application Of the S*~U~OW . . .- -. -- =.qiiirt*ments would be of trivial ar no ~Aue envit.ohm~tally. 

!See- ~~~%v~er.oo~ v, -e, 636 F.2d 323, 360-61 (b-C. CirISTC!. : 

IT:. packsroand /Clean Air .Act Reementa , 

secticzn lo7(d) (3) (EJ oi the Act requ5xw that a Sab have 

in place a fullpappreved SIP 'ioeetlng a= the requirements applicable to a nazaattahemt area. wde sewoh. 110 - and p& D - 

of title I or the Act h order f~ the area to. be tsdes~gnatee to 

atkiinment - 

In addition, section f75~ requires ;that the .area wt haw a 

fully-appsoved-meint~ance plan aantairring contingenay ..- KJ rwvis ions, as necessary, to -psamptZy coxz~ct aay violation af .. the applraable NAAQS 8at acaks aft:- Zdesignatian of Uae-err-- 

At a minunurn, the oonting-w plan must *Include a reqrrfi=emant 

that the stake wilZ izqplem&nt: alJ. mezis1Lres wi- respect to tbe 

cantrol of the air poll-t concerned Wish vere contain& in 

the state ialplementaMon 'plan for the area before redesignatf on 

af the area as M attafmat 

The NSk requiremats -are urntataine8- in se&&ea 110fa) (2) (C) 

and in parts C and D of title I Q$ the Act+ _ Broadly speaking, 

secti nn 110 (a) (2) (CJ of .the act .rpan4ate& tbe deValoprperLt of a 

prv~construction review progrmm b assrrcp. that me ~onstructioh or 

modif5cation af any stationary aeurce L6 oonsietent: via 

attainment of the IQUQS. The nonattairrment HSR program in part D - fJSR and the atta-ent' area prevention of signfficant 

dst~rioration (PsD) program in *. t! apply ta major aew sourdas 

ahd modifications of exisang arajcsr sauxaes-. (Implwemting :--c:gr;lations that set fbrth minimum reguctreaenrs for Sxate or 

I.o*r::il programs and Federal pesrnitring progrqm8 &awe been 

:~romulgated ar 40 CFR part S1 swart L atrd appendix S, and 40 

CFR section 52.2 1, respaotively, ) 

To assure that ma $or new or modiried ~o~ces do not 

i hter Cere with reasonable furthe pr-ess tawarda. attainment, 

nonnttaihmen-t: area part D NSR requires installation of cpntrol 
 HA nu. . --- - . . .. ....-.. ... ,.-.- . - .' " . .- ', . Gi 

tach nuloq y representing the lavest achisvsble emf86iotts r+h 

(LAER) and emission off ge-, TO prevanc "clean airY eeaS from 

sigiriricant degradation, me P6Q program rcqu&es- inscallatian of . hczsl: available.' control technolw (8ACE). and plodelm to Bhov 

that the new or modified SQUms? vi11 not awe or oontribu* to . ., . *.r vLdar.ion of a HmS or a PSO a.lr ,quality gr- incra~t- -. ... . *: . .? . . -. .. :- - , ... 

~tmvious~y, ed thoge &ov-ioas wether to - ' ".. 

r+;gl~ire that any ~~a%~rdesignation tm atti-at -st 

hzve fully-approved p+ D NSR #lee as part or ths required 

frrlly-approved SIP- In additLma, up~n rdeoignation, tbe part D S ." 

< 

PSI? rules were tzo be placed in tho naihten~oe plan contingency 

prdvisions In accordance ~5th aectbn 175A of the Act-unl-S tbe 

area needad to oontfnus implementing pa* D NSR. as one elerrrent of 

the mai?xtetlan& strategy. .! 

YXT- NSR PV~ICY ahd Leua- - --. --- .-. .-. . .& 

3 

'P 

The EPA now believes that a $e rshifis exacption to ae + 

requirement of soctioh 1127 (d) (3) (8) ioz. part IY NSB; k justlf idle- i 

because requiring the adoption am¶ full apgrovaL aC a pfut D NSR -- 

pragrarn as a prerequisite to rta5esignaticur vould not be of 

significanr environrpental value jh c-in circumstanacs. The .-- . 

L=*- has reconsidered its earl+- position becauac, once axoa . - 

is rceesignated tlo attainment, fhe part D NSR prom my be 

rcpla~~a by rho corollary PSD program. if it is show wough the 

~k3;atennncc demonstration that tha area, will maintain without 

part ll NSR and because part D NSR need n'at .beoome. p- of. the - - . - 

~onzlngency plan, - ? 

. Z 

k . Fr a-construct ioni xevitzw Programs in Attaimeht- Ar@aS - . id

. . 

There are several provisions in the Act and Ln EPA!e 

requ larions that; require precansttcrctiorr tavfetq of JLeY Dt 

w.~d Ff 5cd major sources in actah& ems to aS8esS khe hpad 

at' i..he proposed emfsstans haceases on the appbicable rrAAQS. 

These Lnclude the .PSDprogram uhiib covers 100 ten. year (.=I . 

or 250 tpy or greater sources (depezadbg oh the source mCegotry), 

the? precohstruction review rsquSllefnents of 40 CFR 51,T6S(b) 'that 

cover LOO tpy or greater sources,. and the 1nterpr~tiva.Offset 

RU~. As ta ozone, there are sane. particular requirermenks Mat 

apply. The EeA believes. these programrs will ensure -that ma jar 

new sources ;md modifications are given adequate preconstrudon reviewAfter redesignation to attainment, State PSD rules, or 

Federal P5D rules ih a delegated program., must ensuto, as 

rc?quked by sections 165 (a) (3) [a) and ilo(a) (21 (C) of the Act, 

[.hat preconstructios ravfew of nev and aodiZLed majot sources 

will prevent increases ih smissions that vould cause or 

+:ont.ribute to violatiens of the HAAQS- [see 40 CFR 51.166 (k) , 40 

CfR 52-21 (k) ] 
't 4 - 

In addition, EPAts regulations at aa eFR 51.165(b) ramre 

that SIP'S aontain preeonsmUon raviev -frQ1Pente tbak 

"PPLY nay or -modified 100 tpy. or -eater souraes' of a ! 

Pollutant in areas des&mswa at t or unolas6$Xia4la for B 

ac pollut~t ih mSas the= nodlfid 6-a VOU~~ . d 

contribute to J vioiation af a WAZLBI. Thle .req;u~~t -4as - 3' 

for preconscmction rederr-.far sources that are exempt Lraa PSD 

dye PSD ' s higher (250 tpy) majar acrurce threshold for mirr 

source categories. 

In Me absence af SIP plrrvfsiana tbat cXaply vlth 40 CrirR 

tr3.166 (b) or a part D NSR prograan, States uslrld have to use eta 

Interpretive Offset Rule at 40 CPR 51. rtppandix S as & surragate 

rule for gerzsitting new ara modified major SO- in these 

22.tni.nmehL areas. (See 45 PR 31310, L3ay 13, 1980.) -. 

$or sq, PEI-lo, NO,, and co, F@A bas established lavels of 

~sbient impacts to determine vhehrri me .major new ot rncxlified 

~?=CC would cause or cbntriht;e to a violatSon- Whee the 

source is .f eund to cauje qr contribute to a vialakion, the source 

sou3.8 be subject to more atriagent-teCIhnology and edssions - . 1n't.i gation requFrement6 of append& S ar a 40 CFa 51,165 (b] 

~r o$raR - 

with particular respeak to OZMe. because of tha difficulty 

in .)nzrdaling the impact oP mnisicms.fram specif LC sources on I 

, azon~ f ormakion, .EPh regulaticms: I40 CFR 51,165 (b) (93 and I appendix S] do not'fully a@t!r-e bav smissioas- of aaone 

precursors shauld be treated to assure that ~lajor nair .a modlffsd 

souroe do not cause or contr=te to a NABQS violatian. 

ticeertheless, if prcoonstruetian mcuritoqfng .or other Warmation 

indicahs the area is not aonthuhq ta meet f&z standard aftex 

redesigmtion to attaiment, appendix S or a 40 C9a 51-26S(b) 

program would a'lsa apply. The gPB bslieves that .in iuay area that 

.is designated or redeelgnated as atta3hra-t under sWon 107, 

but experiences ~ialatians of .Ure SBAQS, these pruvisions (and 

any Implementixig SIP provisions) dniould beqin%erpret& as 

requiring major new or modified sources to obtaln QOC enaissfan - 

. v uf fsets .of at least,:q I: 1 ratio, and as pre'whkf Icorrsistent 

w i cl~ :ec~ion 182 .t E 1 1 .*at .I : 1 Nox .off sets are necessary, a 

.- . a,;. 

Tn aadition;-atkaihment [PSD) plans require that .r~aj&r aew 

a:~ti ~odified sources apply ACT- Geperally, BACT difrars frcrm 'T c. :: by enabling permittifis autharitzes to justify, based on 

-?he EPA is in the process of revising ~A'S rulw for NSR 

e;id PSD, some of which will replace appzhdk S. Hwevcr, the 

prcpos::d revisions will not, ahange' the subsbntive panuitting r~qsiremcnrs vhere an attainment area Is vialatbg the ozone 

NMQS. 
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i 

o-ccrtearic, criers, an4 einviron~ental ,basts, the use 'of qntrol .L 

=~:=Imologies less effective than the most stringent a-llabla. ,Z Xn an area that is not ,meat- *a YGBAQS, EPA bslievee tbak -. ? 

to Zomsideratian of t?ae KAAQS v&olatians, tbe Stake Wy iplpase a. 

mbre stringent level ag con-& 43sa.n dgbt: be othervise releafed., g 

as BACT. [See Draft N&W Sourere SbdeUManual, page 8.54 (90q'; . 1990). ) : ,. 

Taken together, these preao~etru~fon review programs aua 

sr,kure that major new or modfiied sources adaieve the statutory 

gzal-. of p;re 0 NsR and the maintenance provisions of seation 

17 '38. 

8. . Part D NSR and ConiDgoncy ~ovisions 

ltequirhg the full approval of a part D W8R -am voula I 

ensure that the, progl=arm would berr~~e a cgntingency provision in 

rhe maintehance P- As staw above, purswult trr sectla * , 

175A (dl and sect on la7 Cbl 133 CE), as cmtingenq plan must I 

contain, at a miairnun, - a14 m-es ~d~laed in the 

nonattainmyt SIP- aoVevez, EPB Its fakmreting tke t;erm 

*'me;lsurea as used in. sectiorr 175A(d) F.Q as not irrclude p= D " 

NSR. ' 

The tesro wmeasurea ia not defined In seckibst 175A(d] .and 

Cengsess. utilized that: tm dif ZerentLy In dbfrerat provisf OZS 

al' the Act. with respect to the PSD add p& D KsR -perdt-g ' 

- 

pZ.ogrizw, For example, in seda Ilrs.(a$ (2)-<A) ; ~0Ia~k6 - zcqcired that SIP'S include fianfore.eable'aission lhitat~ans ah& 

3?!16:- i:orrtrol measures, bexns, or techniques - - - a.s %say be . . nlri-t.:s:sr;ry or appropriate to meet tha applicable. reguirasnts of !:z63 AC~. li In section 110 (a) (2) (c) , conrrress required -Chat SlF~s 

i. ~cludt "a program to provide. far the -for-= of ,ac peasutes 

dercri bed in subparagraph (A) , regulation- of - kbe modification 

2nd construction of any stationary source within Uae areas 

r=:.~ivs~-ed by Was plan as necessary to assure that .national ambtent 

a; .= qaality sta6c¶azds -are achieved, indl'uaing .a perlmit prograa as 

required in parts c and D ( i- e - , PSo and park D ISR) . * pmpha'sis a.5tkd. ) 

- 

If the be& ''keasure~,~' as uee in sections 11Q(a) (2) (A) and 

IlS { h) (21 (C) , had been intended to include PSD and part D' WSR, thaz-e would have ken ho point to requitfng that 6XP9s include 

b3bh msasuies preconstruetian reviev under pdTts,C and D (PSD or- part D NsRl . Thus, in sect5ons 110(a) (21 CAI and (C), it is 

apparent that Congress distlnguiohed the requirement for 

'lrncasurcs't from the requirement far preconstrudon review 

nrograms. On the ather hand, ih other prsztlslone of the Act, 

sucti as serrion 161, Congress appcax6 b have included PSD within 

tlic nctrpe of the term nmeasures.w 
The face that Congress used tbe um&ri.med torsi nmcaa~en 

differantly in dirfererrt provisfas of fhe ~ot -1-cap the 

kehp. is SusceptLbke. to more thaa one intarprctation and th4t E 

has the discr~tibn to intuxprat st irr a reasasmbIe h the $ 

Gon=t=xt of seatian x75A- maemu* zts corqmass itealf baa used 

the tern in a mannw that eluded. Pg) and psrt D NSB iron its 

=cape, EFA believe8 At is ~.easoaztblc ta Snt-t %aswe, as 

used in eedion USA(&], not eo include part D NSR- Zhe 

. rc3-onabZeness -of air interpsabtiaa is fear -ported by &e t 

Cact that PSD, a progrm that 3s t!be oorollary ~t park D rSR for - 

attainment areas, gees into effect 4 lieu of part D Ha, and. 

+hat, as disoussad alsave, &A lnteAds to implement the PSD and 

Pttler NSR proplams In a way that will achieve the ha6ia st4MOxy 

qoalr, of part D N~R. Therefare, does not believe ttrar pd= D 

NSX need be part of an area's contlngenw planIv. &her Re-ired P- t 

The EPA is not cbangihg its prcvSotaply sta+d policy with 

respect to the need fos Statas to adopt and recdve -11 approval 

3f ~45~ programs required by the &ce prior to or at *e tima of 

rhe suhoission of a redesignation request. Tha +shenee O£ a. - - cazsllary program for atfairwent areas diskinguishes pe D NSR 

L )I 9s other required programs uadcrtr the Act, sucll as errbahce¶ 1 :-.s]~set ion and maintenance and reasonabLy nva5labla cpn-01 

?-echaology IRACT) programs, Ybidh -have no oorolkury progrum. 

I Moreaver,. EPA belfaves that those o-ez requited prq2S.q arecLearly viain the -scope ~f me, tam Lmeasurem arz used in sectian 

175AFor furtsherr informatian re pa= D l~s~ requfrements 

+or areas redesignating eo attaw please contxtat Caxla 

Gldllfim at (919) 541-3347; for general irfomatiofi about PSD 

-,- cwZrementss - for attairuncnt areas, oDntact Dais Qruarplar at 

(319) 541-0871. 

cc: Air ranch-chief; Regiotrs Z-X -. 

' EPA is .not suggesting that NSR and PSD' are equiwlent. but 

'r4+.i-i:*1.,r that they are the sane type of program. 

. .