Document ID: EPA-HQ-OECA-2010-0358-0002
Agency: epa
Document Type: Supporting & Related Material
Title: 
Posted Date: 2010-08-24T04:00Z

SUPPORTING STATEMENT

ENVIRONMENTAL PROTECTION AGENCY

	

	NSPS for Portland Cement Plants (40 CFR part 60, subpart F) (Renewal)

1.  Identification of the Information Collection

1(a)  Title of the Information Collection

NSPS for Portland Cement Plants (40 CFR part 60, subpart F) (Renewal)

1(b)  Short Characterization/Abstract

The New Source Performance Standards (NSPS) for the regulations
published at 40 CFR part 60, subpart F were proposed on August 17, 1971,
promulgated on December 23, 1971, and revised on December 14, 1988. 
These regulations apply to the following facilities in portland cement
plants: kilns, clinker coolers, raw mill systems, raw mill dryers, raw
material storage, clinker storage, finished product storage, conveyor
transfer points, bagging and bulk loading and unloading systems.  New
facilities include those that commenced construction, modification or
reconstruction after the date of proposal.  This information is being
collected to assure compliance with 40 CFR part 60, subpart F.

In general, all NSPS standards require initial notifications,
performance tests, and periodic reports.  Owners or operators are also
required to maintain records of the occurrence and duration of any
startup, shutdown, or malfunction in the operation of an affected
facility, or any period during which the monitoring system is
inoperative.  These notifications, reports, and records are essential in
determining compliance, and are required of all sources subject to NSPS.
 

Any owner or operator subject to the provisions of this part shall
maintain a file of these measurements, and retain the file for at least
two years following the date of such measurements, maintenance reports,
and records.  All reports are sent to the delegated state or local
authority.  In the event that there is no such delegated authority, the
reports are sent directly to the United States Environmental Protection
Agency (EPA) regional office.

Approximately 118 sources are currently subject to the regulation, and
it is estimated that no new sources will become subject to the
regulation in the next three years.  However, we do expect that a small
percentage of existing sources will undergo modifications or
reconstruction such that they will have to do the initial notifications
and performance testing required by the standard.  We estimate that two
(2) existing sources per year over the next three years will be required
to resubmit notifications and retest as a result of a modification or
reconstruction.  

The previous ICR had the following Terms of Clearance (TOC):

“When this ICR is resubmitted for renewal, EPA should review the
estimates of annual respondent burden hours and verify that they reflect
actual respondent burden, particularly the burden hours associated with
filing semi-annual reports.”  

EPA has addressed each item of concern in the TOC by reviewing the
estimates of annual respondent burden hours to verify that they reflect
actual respondent burden, particularly the burden hours associated with
filing semi-annual reports.  Based on its knowledge of the industry, EPA
considers the estimates representative of the actual burden hours
encountered by facilities undertaking compliance with the rule.  The
semiannual report is merely the reporting of information already
collected under the recordkeeping requirements for the rule.  Therefore,
24 hours is a reasonable estimate of the time needed to write the
report.  For this ICR renewal, EPA also contacted Mr. Andy O'Hare of the
Portland Cement Association, trade organization for the industry, on
July 12, 2007, to request voluntary assistance in providing information
related to the burden associated with this ICR.  However, no comments
were received.

The term, “Affected Public”, applies to private sector businesses or
other for-profits that manufacture portland cement.  The burden to the
“Affected Public” may be found in Table 1: Annual Respondent Burden
and Cost, NSPS for Portland Cement Plants (attached).  The burden to the
“Federal Government” is attributed entirely to work performed by
federal employees or government contractors, and may be found in Table
2: Annual Agency Burden and Cost, NSPS for Portland Cement Plants
(attached).

2.  Need for and Use of the Collection

2(a)  Need/Authority for the Collection

The EPA is charged under Section 111 of the Clean Air Act (CAA), as
amended, to establish standards of performance for new stationary
sources that reflect: 

. . . application of the best technological system of continuous
emissions reduction which (taking into consideration the cost of
achieving such emissions reduction, or any non-air quality health and
environmental impact and energy requirements) the Administrator
determines has been adequately demonstrated.  Section 111(a)(l).

The Agency refers to this charge as selecting the best demonstrated
technology (BDT).  Section 111 also requires that the Administrator
review and, if appropriate, revise such standards every four years.

In addition, section 114(a) states that the Administrator may require
any owner or operator subject to any requirement of this Act to: 

(A) Establish and maintain such records; (B) make such reports; (C)
install, use, and maintain such monitoring equipment, and use such audit
procedures, or methods; (D) sample such emissions (in accordance with
such procedures or methods, at such locations, at such intervals, during
such periods, and in such manner as the Administrator shall prescribe);
(E) keep records on control equipment parameters, production variables
or other indirect data when direct monitoring of emissions is
impractical; (F) submit compliance certifications in accordance with
Section 114(a)(3); and (G) provide such other information as the
Administrator may reasonably require.

 In the Administrator's judgment, particulate matter emissions from
portland cement plants cause or contribute to air pollution that may
reasonably be anticipated to endanger public health or welfare. 
Therefore, the NSPS were promulgated for this source category at 40 CFR
part 60, subpart F.

2(b)  Practical Utility/Users of the Data

The control of particulate matter emissions from portland cement plants
requires not only the installation of properly designed equipment, but
also the operation and maintenance of that equipment.  Emissions of
particulate matter from portland cement plants are the result of the
operation of the affected facilities.  The subject standards are
achieved by the capture of particulate emissions using a baghouse or
electrostatic precipitator.

The notifications required in the applicable regulations are used to
inform the Agency or delegated authority when a source becomes subject
to the requirements of the regulations.  The reviewing authority may
then inspect the source to check if the pollution control devices are
properly installed and operated and leaks are being detected and
repaired and the regulations are being met.  Performance test reports
are needed, as these are the Agency's record of a source's initial
capability to comply with the emission standards, and serve as a record
of the operating conditions under which compliance was achieved.

The semiannual reports are used for problem identification, as a check
on source operation and maintenance, and for compliance determinations. 
The information generated by the monitoring, recordkeeping and reporting
requirements described in this ICR is used by the Agency to ensure that
facilities affected by the standard continue to operate the control
equipment in compliance with the regulation.  Adequate monitoring,
recordkeeping, and reporting are necessary to ensure compliance with the
applicable regulations, as required by the Clean Air Act.  The
information collected from recordkeeping and reporting requirements is
also used for targeting inspections, and is of sufficient quality to be
used as evidence in court.

3.  Nonduplication, Consultations, and Other Collection Criteria

The requested recordkeeping and reporting are required under 40 CFR part
60, subpart F.

3(a)  Nonduplication

 If the subject standards have not been delegated, the information is
sent directly to the appropriate EPA regional office.  Otherwise, the
information is sent directly to the delegated state or local agency.  If
a state or local agency has adopted its own similar standards to
implement the Federal standards, a copy of the report submitted to the
state or local agency can be sent to the Administrator in lieu of the
report required by the Federal standards.  Therefore, no duplication
exists.

 

3(b)  Public Notice Required Prior to ICR Submission to OMB

An announcement of a public comment period for the renewal of this ICR
was published in the Federal Register (72 FR 10735) on March 9, 2007. 
No comments were received on the burden published in the Federal
Register.

3(c)  Consultations

In estimating the burden associated with this standard, EPA reviewed
economic information available on the Portland Cement Association
website (www.pca.org).  In addition, we conducted a data query of
portland cement plants included in EPA’s Enforcement and Compliance
History Online (ECHO).  Based on the information available from both PCA
and ECHO, we estimate that there are 118 existing sources subject to
this regulation and that no new source will be subject to this standard
over the next three years.  However, we do estimate that two (2)
existing sources will be modified or reconstructed such that the sources
will be required to resubmit initial notifications and retest.  The
estimated increase in the number of existing plants and the estimated
decrease in the growth rate compared to the previous ICR are due to the
availability of more reliable data.

For this ICR renewal, EPA also contacted Mr. Andy O'Hare of the Portland
Cement Association, trade organization for the industry, on July 12,
2007, to request voluntary assistance in providing information related
to the burden associated with this ICR.  However, no comments were
received.

3(d)  Effects of Less Frequent Collection

Less frequent information collection would decrease the margin of
assurance that facilities are continuing to meet the standards. 
Requirements for information gathering and recordkeeping are useful
techniques to ensure that good operation and maintenance practices are
applied and emission limitations are met.  If the information required
by these standards was collected less frequently, the likelihood of
detecting poor operation and maintenance of control equipment and
noncompliance would decrease.

3(e)  General Guidelines

None of these reporting or recordkeeping requirements violate any of the
regulations established by OMB at 5 CFR part 1320, section 1320.5.

3(f)  Confidentiality

 Any information submitted to the Agency for which a claim of
confidentiality is made will be safeguarded according to the Agency
policies set forth in Title 40, Chapter 1, part 2, Subpart B -
Confidentiality of Business Information.  (See 40 CFR 2; 41 FR 36902,
September 1, 1976; amended by 43 FR 40000, September 8, 1978; 43 FR
42251, September 20, 1978; 44 FR 17674, March 23, 1979).

3(g)  Sensitive Questions

None of the reporting or recordkeeping requirements contain sensitive
questions.

4.  The Respondents and the Information Requested

4(a)  Respondents/SIC Codes

The respondents to the recordkeeping and reporting requirements are
portland cement plants.  The United States Standard Industrial
Classification (SIC) code for the respondents affected by the standards
is 3241, which corresponds to the North American Industry Classification
System (NAICS) 327310 for portland cement plants.

4(b)  Information Requested

(i)  Data Items

All data in this ICR that are recorded and/or reported are required by
NSPS for Portland Cement Plants (40 CFR part 60, subpart F).

A source must make the following reports:

Notification Reports

Notification of construction/reconstruction.	60.7(a)(1)

Notification of actual startup.	60.7(a)(3)

Notification of physical or operational change that may increase the
emission rate.	60.7(a)(4)

Notification of demonstration of continuous monitoring system.
60.7(a)(5)

Notification of initial performance tests.	60.8(d)

Reports

Report on initial performance test.	60.8(a)

Semiannual report on excess emissions.	60.7(c)

Semiannual malfunction report	60.65(c)

A source must keep the following records:

Recordkeeping

Startups, shutdowns, malfunctions, periods where the continuous
monitoring system is inoperative.	60.7(b)

Record daily production and kiln feed rates	60.63(a)

Records of exceedance	60.65(a) and (b)

Records are required to be retained for two (2) years.	60.7(f)

Electronic Reporting

Currently, sources are using monitoring equipment that provides
automated parameter data, e.g., continuous opacity monitoring.  Although
personnel at the affected facility must evaluate the data, this type of
monitoring equipment has significantly reduced the burden associated
with monitoring and recordkeeping.  In addition, some regulatory
agencies are setting up electronic reporting systems to allow sources to
report electronically which is reducing the reporting burden.  However,
electronic reporting systems are still not widely used by the regulatory
agencies.  It is estimated that approximately 10 percent of the
respondents use electronic reporting.

(ii)  Respondent Activities

Respondent Activities

Read instructions.

Install, calibrate, maintain, and operate Continuous Monitoring System
(CMS) for opacity.

Perform initial performance test, Reference Methods 5 (particulate
matter concentration) and Method 9 (opacity), and repeat performance
tests if necessary.

Write the notifications and reports listed above.

Enter information required to be recorded above.

Submit the required reports developing, acquiring, installing, and
utilizing technology and systems for the purpose of collecting,
validating, and verifying information.

Develop, acquire, install, and utilize technology and systems for the
purpose of processing and maintaining information.

Develop, acquire, install, and utilize technology and systems for the
purpose of disclosing and providing information.

Adjust the existing ways to comply with any previously applicable
instructions and requirements.

Train personnel to be able to respond to a collection of information.

Transmit, or otherwise disclose the information.

5.  The Information Collected:  Agency Activities, Collection
Methodology, and Information Management

	5(a)  Agency Activities

EPA conducts the following activities in connection with the
acquisition, analysis, storage, and distribution of the required
information.

Agency Activities

Observe initial performance tests and repeat performance tests if
necessary.

Review notifications and reports, including performance test reports,
and excess emissions reports, required to be submitted by industry.

Audit facility records.

Input, analyze, and maintain data in the Air Facility System (AFS).

5(b)  Collection Methodology and Management

Following notification of startup, the reviewing authority might inspect
the source to determine whether the pollution control devices are
properly installed and operated.  Performance test reports are used by
the Agency to discern a source’s initial capability to comply with the
emission standard.  Data and records maintained by the respondents are
tabulated and published for use in compliance and enforcement programs. 
The semiannual reports are used for problem identification, as a check
on source operation and maintenance, and for 

compliance determinations.

Information contained in the reports is entered into the AFS, which is
operated and maintained by EPA's Office of Compliance.  AFS is EPA’s
database for the collection, maintenance, and retrieval of compliance
data for approximately 125,000 industrial and government-owned
facilities.  EPA uses the AFS for tracking air pollution compliance and
enforcement by local and state regulatory agencies, EPA regional offices
and EPA headquarters.  EPA and its delegated Authorities can edit,
store, retrieve and analyze the data.

The records required by this regulation must be retained by the owner or
operator for two (2) years.

5(c)  Small Entity Flexibility

A majority of the affected facilities are large entities (e.g., large
businesses).  However, the impact on small entities (i.e., small
businesses) was taken into consideration during the development of the
regulation.  Due to technical considerations involving the process
operations and the types of control equipment employed, the
recordkeeping and reporting requirements are the same for both small and
large entities.  The Agency considers these requirements the minimum
needed to ensure compliance and, therefore, cannot reduce them further
for small entities.  To the extent that larger businesses can use
economies of scale to reduce their burden, the overall burden will be
reduced.

5(d)  Collection Schedule

The specific frequency for each information collection activity within
this request is shown in Table 1: Annual Respondent Burden and Cost,
NSPS for Portland Cement Plants (40 CFR Part 60, Subpart F).

6.  Estimating the Burden and Cost of the Collection

Table 1 documents the computation of individual burdens for the
recordkeeping and reporting requirements applicable to the industry for
the subpart included in this ICR.  The individual burdens are expressed
under standardized headings believed to be consistent with the concept
of burden under the Paperwork Reduction Act.  Where appropriate,
specific tasks and major assumptions have been identified.  Responses to
this information collection are mandatory.

The Agency may not conduct or sponsor, and a person is not required to
respond to, a collection of information unless it displays a currently
valid OMB Control Number.

6(a)  Estimating Respondent Burden

The average annual burden to industry over the next three years from
these recordkeeping and reporting requirements is estimated to be 13,806
hours [Total Labor Hours from Table 1: Annual Respondent Burden and
Cost, NSPS for Portland Cement Plants (40 CFR Part 60, Subpart F),
attached].  These hours are based on Agency studies and background
documents from the development of the regulation, Agency knowledge and
experience with the NSPS program, the previously approved ICR, and any
comments received.

6(b)  Estimating Respondent Costs

(i)  Estimating Labor Costs 

This ICR uses the following labor rates: 

Managerial	$95.32   ($45.39 + 110%)

Technical	$64.60   ($30.76 + 110%)

Clerical	$40.09   ($19.09 + 110%)

These rates are from the United States Department of Labor, Bureau of
Labor Statistics, December 2003, “Table 10.  Private industry, by
occupational and industry group.”  The rates are from column 1,
“Total compensation.”  The rates have been increased by 110 percent
to account for the benefit packages available to those employed by
private industry.

(ii)  Estimating Capital/Startup and Operation and Maintenance Costs

  The type of industry costs associated with the information collection
activities in the subject standards are both labor costs, which are
addressed elsewhere in this ICR, and the costs associated with
continuous monitoring.  The capital/startup costs are one-time costs
when a facility becomes subject to the regulation.  The annual operation
and maintenance costs are the ongoing costs to maintain the monitors and
other costs such as photocopying and postage.

(iii)  Capital/Startup vs. Operation and Maintenance (O&M) Costs

Capital/Startup vs. Operation and Maintenance (O&M) Costs

(A)

Continuous Monitoring Device	(B)

Capital/Startup Cost for One Respondent1	(C)

Number of New Respondents 	(D)

Total Capital/Startup Cost

(B X C)	(E)

Annual O&M Costs for One Respondent	(F)

Number of Respondents with O&M	(G)

Total O&M,

(E X F)

Continuous Opacity Monitor	$18,500	2	$37,000	$4,200	118	$495,600

1  Cost estimates were obtained from Environmental Monitor Services,
Inc. (EMS), a manufacturer of NSPS compliant continuous opacity monitors
(COMS).  EMS estimates the cost of a COMS to be approximately $18,500
with an average operation and maintenance (O&M) cost of $4,200.

	The total capital/startup costs for this ICR are $37,000.  This is the
total of column D in the above table.

The total operation and maintenance (O&M) costs for this ICR are
$495,600.  This is the total of column G.

The total respondent costs have been calculated as the addition of the
capital/startup costs, and the annual operation and maintenance costs. 
The average annual cost for capital/startup and operation and
maintenance costs to industry over the next three years of the ICR are
estimated to be $533,000 (Rounded).  The continuous monitoring costs
that are included in this section consist only of those capital/startup
and O&M costs that a source incurs as a result of the standard.  Some
continuous monitoring costs may not be included in this section.  For
instance, if a particular industry typically utilizes a control device
that must have a continuous monitor (e.g., temperature, pressure drop,
etc.) to function properly, and the recordation of additional
measurements beyond the minimum are required by the standard, then there
is no capital/startup or O&M cost, but there is a labor cost to record
the additional readings.  Such a cost would not appear in this section,
but in the industry burden Section 6(d) below.

6(c)  Estimating Agency Burden and Cost

The only costs to the Agency are those costs associated with analysis of
the reported information.  EPA's overall compliance and enforcement
program includes activities such as the examination of records
maintained by the respondents, periodic inspection of sources of
emissions, and the publication and distribution of collected
information.

The average annual Agency cost during the three years of the ICR is
estimated to 

be $46,943.

This cost is based on the average hourly labor rate as follows:

Managerial	$54.66   (GS-13, Step 5, $34.16 x 1.6)

Technical	$40.56   (GS-12, Step 1, $25.35 x 1.6)

Clerical	$21.95   (GS-6, Step 3, $13.72 x 1.6)

These rates are from the Office of Personnel Management (OPM) “2004
General Schedule“ which excludes locality rates of pay.  Details upon
which this estimate is based appear in 

Table 2: Annual Agency Burden and Cost, NSPS for Portland Cement Plants
(40 CFR Part 60, 

Subpart F).

6(d)  Estimating the Respondent Universe and Total Burden and Costs

Based on our research for this ICR, approximately 118 existing sources
are currently subject to the standard.  It is estimated that no new
source will become subject to the standard over the next three years. 
However, we do estimate that two (2) existing sources will be modified
or reconstructed such that they will be required to resubmit initial
notifications and retest.

Number of respondents is calculated using the following table, which
addresses the three years covered by this ICR.

Number of Respondents

	Respondents That Submit Reports	Respondents That Do Not Submit Any
Reports

	Year	(A)Number of New Respondents	(B)

Number of Existing Respondents1	(C)

Number of Existing Respondents That Keep Records but Do Not Submit
Reports	(D)

Number of Existing Respondents That Are Also New Respondents	(E)

Number of Respondents

(E=A+B+C-D)

1	2	118	0	2	118

2	2	118	0	2	118

3	2	118	0	2	118

Average	2	118	0	2	118

1 We estimate that two (2) existing sources will undergo a modification
or reconstruction such that they will be required to resubmit initial
notifications and retest.

As shown above, the average Number of Respondents over the three-year
period of this ICR is 118 when rounded.  

The total number of annual responses per year is calculated using the
following table: 

Total Annual Responses

(A)

Information Collection Activity	(B)

Number of Respondents 	(C)

Number of Responses	(D)

Number of Existing Respondents That Keep Records But Do Not Submit
Reports	(E)

Total Annual Responses 

E=(BxC)+D

Notification of construction/reconstruction	2	1	N/A	2

Notification of actual startup	2	1	N/A	2

Notification of physical or operational change	2	1	N/A	2

Notification of demonstration of continuous monitoring system (CMS)	2	1
N/A	2

Notification of initial performance tests	2	1	N/A	2

Report of performance test	2	1	N/A	2

Semiannual report	118	2	N/A	236

	Total	248

The number of Total Annual Responses is 248.  

6(e)  Bottom Line Burden Hours Burden Hours and Cost Tables

The detailed bottom line burden hours and cost calculations for the
respondents and the Agency are shown in the attached Tables 1 and 2,
respectively, and are summarized on the following page.

(i) Respondent Tally

The Total Hours Requested are 13,806 hours.  The total annual labor
costs are $880,911.  Details regarding these estimates may be found in
Table 1: Annual Respondent Burden and Cost, NSPS for Portland Cement
Plants (40 CFR Part 60, Subpart F), attached.  Furthermore, the annual
public reporting and recordkeeping burden for this collection of
information is estimated to average 56 hours per response.

The total annual capital/startup and O&M costs to the regulated entity
are $533,000.  The cost calculations are detailed in Section 6(b)(iii),
Capital/Startup vs. Operation and Maintenance (O&M) Costs.

(ii) The Agency Tally

The average annual Agency burden and cost over next three years is
estimated to be 1,187 labor hours at a cost of $46,943.  See Table 2:
Annual Agency Burden and Cost, NSPS for Portland Cement Plants (40 CFR
Part 60, Subpart F), attached.

6(f)  Reasons for Change in Burden

There is no change in the labor hours or cost in this ICR compared to
the previous ICR.  This is due to two considerations.  First, the
regulations have not changed over the past three years and are not
anticipated to change over the next three years.  Secondly, the growth
rate for the industry is very low, negative or non-existent, so there is
no significant change in the overall burden. 

	Since there are no changes in the regulatory requirements and there is
no significant industry growth, the labor hours and cost figures in the
previous ICR are used in this ICR and there is no change in burden to
industry.

6(g)  Burden Statement

The annual public reporting and recordkeeping burden for this collection
of information is estimated to average 56 hours per response.  Burden
means the total time, effort, or financial resources expended by persons
to generate, maintain, retain, or disclose or provide information to or
for a Federal agency.  This includes the time needed to review
instructions; develop, acquire, install, and utilize technology and
systems for the purposes of collecting, validating, and verifying
information, processing and maintaining information, and disclosing and
providing information; adjust the existing ways to comply with any
previously applicable instructions and requirements; train personnel to
be able to respond to a collection of information; search data sources;
complete and review the collection of information; and transmit or
otherwise disclose the information.

 An agency may not conduct or sponsor, and a person is not required to
respond to, a collection of information unless it displays a valid OMB
Control Number.  The OMB Control Numbers for EPA’s regulations are
listed at 40 CFR part 9 and 48 CFR chapter 15.

	To comment on the Agency's need for this information, the accuracy of
the provided burden estimates, and any suggested methods for minimizing
respondent burden, including the use of automated collection techniques,
EPA has established a public docket for this ICR under Docket ID Number
EPA-HQ-OECA-2007-0032.  An electronic version of the public docket is
available at http://www.regulations.gov/ which may be used to obtain a
copy of the draft collection of information, submit or view public
comments, access the index listing of the contents of the docket, and to
access those documents in the public docket that are available
electronically.  When in the system, select “search,” then key in
the docket ID number identified in this document.  The documents are
also available for public viewing at the Enforcement and Compliance
Docket and Information Center in the EPA Docket Center (EPA/DC), EPA
West, Room 3334, 1301 Constitution Ave., NW, Washington, DC.  The EPA
Docket Center Public Reading Room is open from 8:30 a.m. to 4:30 p.m.,
Monday through Friday, excluding legal holidays.  The telephone number
for the Reading Room is (202) 566-1744, and the telephone number for the
docket center is (202) 566-1752.  Also, you can send comments to the
Office of Information and Regulatory Affairs, Office of Management and
Budget, 725 17th Street, NW, Washington, DC 20503, Attention: Desk
Officer for EPA.  Please include the EPA Docket ID Number
EPA-HQ-OECA-2007-0032 and OMB Control Number 2060-0025 in any
correspondence. 

Part B of the Supporting Statement

This part is not applicable because no statistical methods were used in
collecting this information.

 

 

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