& EPA
United States
Environmental Protection
Agency
Office of Air Quality
Planning and S'uinda~is
Research Triang i ? Pane NC 27711
EPA-452/R-93-007
May 1993
Air
GUIDANCE ON THE
RELATIONSHIP BETWEEN THE
15 PERCENT RATE-OF-PROGRESS
PLANS AND OTHER
PROVISIONS OF THE CLEAN AIR ACT
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Guidance on the Relationship Between the
15 Percent Rate-of-Progress Plans and
Other Provisions of the Clean Air Act
Ozone/Carbon Monoxide Programs Branch
U.S. Environmental Protection Agency
Office of Air Quality Planning and
Standards
Research Triangle Park, NC 27711
U.S. Environmental Protection Agency
Region 5, Library (PL-12J)
//West Jackson Boulevard 12th
Chicago, IL 60604-3590
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CONTENTS
Page
LIST OF TABLES V
ACRONYMS AND ABBREVIATIONS vi
EXECUTIVE SUMMARY 1
1.0 INTRODUCTION 7
1.1 Purpose 9
1.2 Creditability of Emissions Reductions Associated
With RACT Rules and Rule Effectiveness
Improvements Toward the 15 Percent Requirements . . 10
2.0 RELATIONSHIP BETWEEN THE 15 PERCENT VOC EMISSIONS
REDUCTION REQUIREMENTS AND NEW SOURCE REVIEW PROGRAMS . 11
2.1 Core Requirements of the Part D New Source Review
Program 11
2.2 Emissions Offsets 14
Emissions Offset Requirements 15
Creditability of Emissions Reductions 15
Creditability of Banked Emissions Reduction
Credits 17
Minor Source Growth 17
Geographic Location of Offsets 18
Timing of Offsets 19
Offset and Rate-of-Progress Baselines 19
2.3 Creditable Emissions Reductions for Netting .... 21
2.4 Growth Allowances 22
2.5 Construction Bans -. . . . 22
2.6 Tribal Lands 23
2.7 NOX Requirements 24
3.0 RELATIONSHIP BETWEEN THE 15 PERCENT VOC EMISSIONS
REDUCTION REQUIREMENTS AND PROVISIONS FOR CONTROLLING
HAZARDOUS AIR POLLUTANTS 25
3.1 National Emission Standards for Hazardous Air
Pollutants 25
3.2 Maximum Achievable Control Technology Standards . . 26
3.3 Early Reduction Program 28
3.4 Construction, Reconstruction, and Modifications of
Major Sources 29
3.5 Additional Emissions Standards Available under
Section 112 of the Act 30
Standard to Protect Public Health and the
Environment 30
Work Practice Standards and Other Requirements . . 30
Equivalent Emissions Limitation by Permit 31
State and Local Standards 31
iii
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3.6 Other EPA Programs 31
4.0 RELATIONSHIP BETWEEN THE 15 PERCENT VOC EMISSIONS
REDUCTION REQUIREMENTS AND NEW SOURCE PERFORMANCE
STANDARDS 33
5.0 RELATIONSHIP BETWEEN THE 15 PERCENT VOC EMISSIONS
REDUCTION REQUIREMENTS AND MOBILE SOURCE PROVISIONS . . 35
5.1 Federal Motor Vehicle Control Program (FMVCP) ... 35
5.2 Reid Vapor Pressure (RVP) 35
5.3 Reformulated Gasoline 36
5.4 Stage II Vapor Recovery Control ... 36
5.5 Clean Fuel Vehicle Program for Fleets 37
5.6 Inspection and Maintenance (I/M) Program 38
5.7 On-Board Diagnostic Systems 39
5.8 Transportation Control Measures (TCM's) 39
6.0 RELATIONSHIP BETWEEN THE 1993 ATTAINMENT DEMONSTRATION
PLAN AND NOX REQUIREMENTS 41
7.0 RELATIONSHIP BETWEEN THE 15 PERCENT VOC EMISSIONS
REDUCTION REQUIREMENTS AND ECONOMIC INCENTIVE PROGRAMS . 43
7.1 Background 43
7.2 Creditability in SIP's 45
7.3 Baseline Emissions in EIP's 47
7.4 Quantification of Emissions 48
8.0 RELATIONSHIP BETWEEN THE 15 PERCENT VOC EMISSIONS
REDUCTION REQUIREMENTS AND TITLE V (OPERATING PERMITS)
51
8.1 Satisfying SIP Principles with Operating Permits . 52
8.2 Areas Requiring Emissions Reduction's Less Than 15
Percent 53
REFERENCES . . 55
APPENDIX A ' . A-l
IV
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LIST OF TABLES
Number Title Page
1. MAJOR SOURCE THRESHOLDS AND MINIMUM EMISSIONS OFFSET
RATIO REQUIREMENTS FOR OZONE NONATTAINMENT AREA
CLASSIFICATIONS 12
2. MAJOR MODIFICATION THRESHOLDS FOR OZONE NONATTAINMENT
AREA CLASSIFICATIONS 13
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ACRONYMS AND ABBREVIATIONS
Act
BACT
CAAA
CFR
CO
CTG
EIP
EKMA
EPA
ETPS
FMVCP
FR
HAP
HUD
I/M
MACT
MMBtu
NAAQS
NESHAP
NOX
NSPS
NSR
PSD
psi
RACT
RCRA
RVP
SOCMI
SIP
SO2
TCM
tpy
UAM
VMT
VOC
Clean Air Act
Best Available Control Technology
1990 Clean Air Act Amendments
Code of Federal Regulations
Carbon Monoxide
Control Techniques Document
Economic Incentive Program
Empirical Kinetic Modeling Approach
U.S. Environmental Protection Agency
Emissions Trading Policy.Statement
Federal Motor Vehicle Control Program
Federal Register
Hazardous Air Pollutant
U.S. Department of Housing and Urban Development
Inspection and Maintenance
Maximum Achievable Control Technology
Million British Thermal Units
National Ambient Air Quality Standard
National Emission Standard for Hazardous Air
Pollutants
Nitrogen Oxides
New Source Performance Standard
New Source Review
Prevention of Significant Deterioration
pounds per square inch
Reasonably Available Control Technology
Resource Conservation and Recovery Act
Reid Vapor Pressure
Synthetic Organic Chemicals Manufacturing Industry
State Implementation Plan
Sulfur Dioxide
Transportation Control Measures
tons per year
Urban Airshed Model
Vehicle Miles Travelled
Volatile Organic Compound
VI
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EXECUTIVE SUMMARY
Section 182(b)(l) of the Clean Air Act (Act) requires all
ozone nonattainment areas classified as moderate and above to
submit a State implementation plan (SIP) revision by November 15,
1993, which describes, in part, how the areas will achieve an
actual volatile organic compound (VOC) emissions reduction of at
least 15 percent during the first 6 years after enactment of the
Clean Air Act Amendments of 1990 (CAAA) (i.e., up to November 15,
1996). In addition, the SIP revision must describe how any
growth in emissions from 1990 through 1996 will be fully offset.
The portion of the SIP. revision that illustrates the plan for the
achievement of these emissions reductions is subsequently defined
in this document as the "rate-of-progress plan."
It is important to note that section 182(b)(l) also requires
the SIP for moderate areas to provide for reductions in VOC and
nitrogen oxides (NOJ emissions "as necessary to attain the
national primary ambient air quality standard for ozone" by
November 15, 1996. This requirement can be met through the use
of EPA-approved modeling techniques and the adoption of any
additional control measures beyond those needed to meet the
15 percent emissions reduction requirements. States with
intrastate moderate ozone nonattainment areas will generally be
required to submit attainment demonstrations with their SIP
revisions due by November 15, 1993 [such areas choosing to use
the Urban Airshed Model (UAM) to prepare their attainment
demonstrations will be allowed to submit attainment
demonstrations by November 15, 1994]. States choosing to run UAM
for their intrastate moderate areas must submit by November 15,
1993, their rate-of-progress plan and a committal SIP addressing
the attainment demonstration. The committal SIP subject to a
section 110(k)(4) approval would include, at a minimum, evidence
that grid modeling is well under way and a commitment, with
schedule, to complete the modeling and submit it as a SIP
revision by November 1994. The completed attainment
demonstration would include any additional controls needed for
attainment.
The purpose of this document is to provide guidance for
determining the creditability of emissions reductions toward
meeting the 15 percent VOC emissions reduction requirements of
Section 182(b) of the Act. This document provides technical
guidance to support the policy presented in the "General
Preamble: Implementation of Title I of the CAAA of 1990" (57 FR
13498). The document discusses the creditability of emissions
reductions associated with programs implemented both prior to
enactment of the CAAA, and programs that will be implemented to
comply with the requirements of the CAAA. The programs addressed
in this document include the following:
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New source review (NSR).
Hazardous air pollutant (HAP) standards.
New source performance standards (NSPS).
Controls required for mobile sources.
Controls required for stationary sources of oxides of
nitrogen (NOJ .
Economic incentive programs (EIP's).
Operating permit programs.
Sections 182(b)(1)(C) and 182(b)(l)(D) of the Act specify in
general terms .which emissions reductions are creditable toward
the 15 percent VOC emissions reduction requirements and which
reductions are not. Section 182(b)(l)(D) does not specifically
limit the creditability of emissions reductions associated with
the programs discussed in this guidance document toward the
15 percent requirements; therefore, emissions reductions
associated with the programs outlined above are generally
creditable. However, some additional limitations do exist, to
the extent that emissions reductions associated with the programs
outlined above are not quantifiable, real, enforceable,
replicable, accountable, and occur by November 15, 1996.
There is uncertainty inherent in projecting new source
growth, and in determining the amount of the emissions reductions
from offsets that will be needed to offset minor source growth.
Therefore, only additional, actual, permanent, and enforceable
emissions reductions resulting after 1990 from an offset that are
not used to offset minor source growth will be creditable in the
milestone compliance demonstration due in February 1997 for
serious and above areas. States must use caution to avoid the
double-counting of emissions reductions and must be careful to
distinguish between credits toward the 15 percent VOC emissions
reduction requirements, NSR offset credits and netting credits,
and credits used for emissions trading in an EIP. Banked
emissions reduction credits can be used to offset new source
growth, but preenactment banked emissions reductions are not
creditable toward the 15 percent VOC emissions reduction
requirements. Other reductions that are not creditable toward
the 15 percent VOC emissions reduction requirements include those
used to create growth allowances in U.S. Department of Housing
and Urban Development (HUD) zones.
Reductions in VOC emissions associated with requirements for
the control of HAP's under section 112 of the Act are generally
creditable toward the 15 percent VOC emissions reduction
requirements. (Note that not all HAP's are VOC's. See p. A-9
for the definition of VOC.) Most section 112 VOC reductions
credited toward the 15 percent VOC emissions reduction
requirements will occur through the promulgation of maximum
achievable control technology (MACT) standards, national emission
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standards for hazardous air pollutants (NESHAP), and the use of
the early reductions program. Volatile organic compound
reductions from section 112(g) modifications are creditable
toward the 15 percent VOC emissions reduction requirements if a
source demonstrates that an increase in emissions of one
pollutant has been offset by a greater decrease in the same or an
equivalent pollutant. However, a State must adequately account
for the simultaneous growth associated with modified sources that
net out of the section 112(g) requirements because their net
emissions do not exceed de minimis emissions levels. The section
112(f) standards (residual risk standards to protect public
health) are not likely to be promulgated in- time for credit
toward the 15 percent requirements.
Reductions in VOC emissions achieved by stationary sources
that become subject to a section 111 NSPS after 1990 are
creditable toward the 15 percent VOC emissions reduction
requirements. States must use caution to avoid the double-
counting of emissions reductions associated with an NSPS and
those achieved through the emissions offset or netting provisions
of the NSR rules. Additionally, existing sources that are
modified to become subject to an NSPS may already be subject to
reasonably available control technology (RACT) rules. Only the
incremental emissions reduction between the allowable emissions
specified by the two requirements is creditable toward the 15
percent VOC emissions reduction requirements.
States may credit most emissions reductions gained through
mobile source programs toward the 15 percent VOC emissions
reduction requirements. Exceptions include those reductions
achieved under Federal motor vehicle control program (FMVCP)
tailpipe or evaporative regulations promulgated before 1990 and
specified Federal Reid vapor pressure (RVP) limits for gasoline
(55 FR 23666, June 11, 1990). Additionally, improvements
resulting from corrections to deficient inspection and
maintenance (I/M) programs are not creditable. Reductions
obtained through implementation of other mobile source programs
are generally creditable, as long as the reductions are
quantifiable, real, enforceable, replicable, accountable, and
occur by November 15, 1996. States may also secure credit for
RVP limits that are more stringent than the minimum Federal
requirements. States will be able to quantify the future
emissions reductions resulting from the implementation of most
mobile source control measures through the use of the MOBILESa
model.
Nitrogen oxide emissions reductions occurring in the 1990-
1996 period may not be substituted for VOC emissions reductions
for the 15 percent rate-of-progress requirements. However,
section 182(b)(l)(A) states that NOX emissions reductions can be
used in combination with VOC emissions reductions to achieve
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attainment of the ozone national ambient air quality standard
(NAAQS). Additionally, NOX emissions reductions occurring in the
1990-1996 period, in excess of growth, may be considered as
substitutes for VOC emissions reductions for the post-1996 rate-
of-progress requirements. Consequently, States should present
their NOX inventories in their rate-of-progress plan in addition
to their VOC inventories. The EPA expects to issue guidance in
the fall of 1993 covering substitution of NOX for VOC emissions
reductions for the post-1996 period.
On February 23, 1993, EPA published a proposed rulemaking
discussing requirements for EIP's (58 FR 11110). This proposal
also represents EPA's interim policy on EIP's. The proposed
rulemaking anticipates that certain EIP strategies will be based
on a quantifiable emissions limit while others will depend
strictly on marketplace forces to reduce emissions. Thus, the
amount of emissions reductions associated with an EIP program
that will be creditable toward the 15 percent rate-of-progress
plan requirements will vary depending on the nonattainment area
and the form of the EIP proposed. The EPA is presently proposing
the introduction of two factors, rule compliance and program
uncertainty, to address the uncertainty of quantifying creditable
emissions reductions from EIP's. The rule compliance factor is
intended to address the issue of less-than-complete compliance
and the program uncertainty factor is intended to address the
inherent uncertainty in future market response. Additionally,
EPA is considering the requirement of program audit provisions to
track actual emissions reductions from an EIP; if a State employs
a market-response EIP, the program audit provisions would include
reconciliation procedures to compare the projected emissions
reductions credited in the SIP with the actual emissions
reductions. Furthermore, the proposed EIP regulation would
require contingency measures to make up for any shortfall
identified between the actual and the projected emissions
reductions for any market-response EIP. States must take care to
distinguish between the rate-of-progress base year inventory and
the EIP baseline inventory, and must carefully consider the
consistency in emissions quantification procedures used in the
rate-of-progress plan and the EIP. States should consult with
the appropriate EPA Regional Office in determining the amount of
credit from an EIP. The resulting emissions reductions must
occur by November 15, 1996.
A large portion of the rate-of-progress plansand the
attainment planwill be implemented through the Title V
operating permit program. A State may rely on its regulatory
programs alone in its rate-of-progress plan to demonstrate that
sufficient emissions reductions will occur to meet the 15 percent
emissions reductions requirement.
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The EPA recognizes that some of the new Control Techniques
Documents(CTG) documents and Federal regulations for other
programs (e.g., NSPS, NESHAP's, and MACT) may not be promulgated
in time to be used by States to develop and adopt control
measures for their 15 percent rate-of-progress plans. The EPA is
currently investigating whether and under what circumstances a
State may be able to take credit for unadopted control measures
in their 15 percent rate-of-progress plans. Further guidance
from EPA may be forthcoming.
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1.0 INTRODUCTION
Section 182(b)(l) of the Act requires all ozone
nonattainment areas classified as moderate and above to submit a
SIP revision by November 15, 1993, which describes, in part, how
the areas will achieve an actual VOC emissions reduction of at
least 15 percent during the first 6 years after enactment of the
CAAA (i.e., up to November 15, 1996). In addition, the SIP must
describe how any growth in emissions from 1990 through 1996 will
be fully offset. Emissions and emissions reductions shall be
calculated on a typical weekday basis for the "peak" 3-month
ozone period (generally June through August). The 15 percent VOC
emissions reduction, net of growth, required by November 15, 1996
is defined within this document as "rate of progress."1
Furthermore, the portion of the SIP revision that illustrates the
plan for the-achievement of the emissions reductions is
subsequently defined in this document as the "rate-of-progress
plan."
It is important to note that section 182(b)(l) also requires
the SIP for moderate areas to provide for reductions in VOC and
NOX emissions "as necessary to attain the national primary
ambient air quality standard for ozone" by November 15, 1996.
This requirement can be met through the use of EPA-approved
modeling techniques and the adoption of any additional control
measures beyond those needed to meet the 15 percent emissions
reduction requirements. States with intrastate moderate ozone
nonattainment areas will generally be required to submit
attainment demonstrations with their SIP revisions due by
November 15, 1993 (such areas choosing to use UAM to prepare
their attainment demonstrations will be allowed to submit
JThe U.S. Environmental Protection Agency (EPA) recognizes that
the Act terms, for both the 15 percent VOC emissions reduction
requirement of section 182(b)(l) and the section 182(c)(2)(B)
requirement for 3 percent per year VOC emissions reductions
averaged over each consecutive 3-year period from November 15,
1996 until the attainment date, as reasonable further progress
(RFP) requirements. However, because the Act requires SIP
revisions for the 15 percent reduction to be submitted in 1993
and SIP revisions for the 3 percent per year reductions to be
submitted in 1994, EPA believes that it would be clearer, within
the context of both the 15 percent rate-of-progress plan and
post-1996 rate-of-progress plan guidance documents that EPA is
producing, to create distinct labels for these two seemingly
similar reductions. The 1994 SIP revisions describing the
requirement for 3 percent VOC emissions reductions averaged over
each consecutive 3-year period from November 15, 1996 until the
attainment date, constitute the "post-1996 rate-of-progress
plan."
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attainment demonstrations by November 15, 1994). States choosing
to run UAM for their intrastate moderate areas must submit by
November 15, 1993, their rate-of-progress plan and a committal
SIP addressing the attainment demonstration. The committal SIP
subject to a section 110(k)(4) approval would include, at a
minimum, evidence that grid modeling is well under way and a
commitment, with schedule, to complete the modeling and submit it
as a SIP revision by November 1994. The completed attainment
demonstration would include any additional controls needed for
attainment.
Section 182(c)(2) requires all ozone nonattainment areas
classified as serious and above to submit a SIP revision by
November 15, 1994 which describes, in part, how each area will
achieve additional VOC emissions reductions of 3 percent per year
averaged over each consecutive 3-year period from November 15,
1996 until the area's attainment date. It is important to note
that section 182(c)(2)(C) allows for actual NOX emissions
reductions (exceeding growth) that occur after the base year of
1990 to be used to meet post-1996 emissions reduction
requirements for ozone nonattainment areas classified as serious
and above, provided that such NOX reductions meet the criteria
outlined in forthcoming substitution guidance. The portion of
the SIP revision (due in 1994) that illustrates the plan for the
achievement of these post-1996 reductions in VOC or NOX is
subsequently defined in this document as the "post-1996 rate-of-
progress plan." This plan must also contain an attainment
demonstration based on photochemical grid modeling. The EPA
plans to distribute a separate guidance document on the
development of the post-1996 rate-of-progress plan in 1993.
Demonstrating achievement of the 15 percent VOC emissions
reductions by November 15, 1996, and then subsequently
demonstrating achievement of the 3 percent per year VOC emissions
reductions averaged over each consecutive 3-year period from
November 15, 1996 until the attainment date, are termed milestone
demonstrations. Achievement of the milestones must be
demonstrated within 90 days of the milestone date (e.g., the
15 percent VOC emissions reductions must be demonstrated by
February 13, 1997). The EPA is currently developing a rule which
will describe the information and analysis required for the
milestone compliance demonstrations. The rule is scheduled for
promulgation in the summer of 1994. The rule will also address
summary data needs, detailed reporting requirements, and
consequences of submitting an inadequate demonstration (in terms
of documentation) as well as consequences of failure to
demonstrate the 15 percent VOC emissions reduction requirements,
net of growth.
Section 182(a)(3)(A) requires the States to submit periodic
inventories starting 3 years after submission of the base year
8
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inventory required by section 182(a)(1), and every 3 years
thereafter until the area is redesignated to attainment. The EPA
recommends that States synchronize their schedules for developing
the periodic inventories so that the second periodic inventory
(which would be due no later than November 15, 1998) is submitted
by February 13, 1997 and addresses emissions in 1996. By
accelerating preparation and submittal of the 1996 periodic
inventory, the milestone demonstration that is due for serious
and above areas by February 13, 1997 can be based on this
periodic inventory. If similarly accelerated, future periodic
inventories would then also coincide with subsequent milestone
demonstrations. The periodic inventory is to be based on actual
emissions and will cover VOC, NOX, and carbon monoxide (CO)
emissions sources. Like the base year inventory, the periodic
inventory is to be determined using typical peak ozone season
weekday emissions.
1.1 Purpose
The purpose of this document is to provide guidance for
determining the creditability of emissions reductions toward
meeting the 15 percent VOC emissions reduction requirements of
Section 182(b) of the Act. This document provides technical
guidance to support the policy presented in the "General
Preamble: Implementation of Title I of the CAAA of 1990" (57 FR
13498). The document discusses the creditability of emissions
reductions associated with programs implemented both prior to
enactment of the CAAA, and programs that will be implemented to
comply with the requirements of the CAAA. The programs addressed
in this document include the following:
New source review (NSR).
Hazardous air pollutant (HAP) standards.
New source performance standards (NSPS).
Controls required for mobile sources.
Controls required for stationary sources of oxides of
nitrogen (NOX) .
Economic incentive programs (EIP's).
Operating permit program.
This document is intended to assist the States in preparing
the rate-of-progress plans that will demonstrate how the area
will achieve the 15 percent VOC emissions reduction requirements
from November 1990 to November 1996. In order for a State to
comply with the 15 percent requirements, it will need to
demonstrate that it will achieve the necessary emissions
reductions needed to meet its 1996 target level of emissions.
There are three components that-comprise the emissions reductions
to meet the 1996 target level:
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The 15 percent voc emissions reduction calculated from
the adjusted base year inventory.
The noncreditable emissions reductions (i.e., RVP
limits specified in 55 FR 23666, pre-1990 FMVCP, and
corrections to RACT rule and I/M programs).
The offset of 1990-1996 emissions growth.
This document is not intended to directly address either
rate-of-progress tracking or the final milestone compliance
demonstration. Additional guidance to address tracking and the
milestone compliance demonstration will be developed in the
future. Furthermore, this guidance addresses many programs and
procedures that are addressed more fully in other guidance
documents. This guidance is not intended to supersede those
guidance documents; rather, it is intended to pull together the
relative material as it pertains to the development of the rate-
of-progress plan. In addition, this document is not intended to
be a policy statement; rather, it is intended to reiterate the
regulations and policies set forth specifically for those
programs described herein. Readers are referred to rulemakings
and policy statements for details concerning the development of
regulations and policies.
1.2 Creditability of Emissions Reductions Associated With RACT
Rules and Rule Effectiveness Improvements Toward the
15 Percent Requirements
The creditability of emissions reductions associated with
RACT rules and rule effectiveness improvements are not discussed
in this document because they have been previously discussed in
two other documents concerning the 15 percent rate-of-progress
plan requirements. The creditability of emissions reductions
associated with RACT rule fix-ups and catch-ups and rule
effectiveness improvements are discussed in the document entitled
Guidance on the Adjusted Base Year Emissions Inventory and the
1996 Target for the 15 Percent Rate-of-Progress Plans. EPA-452/R-
92-005, October 1992. The creditability of rule effectiveness
improvements associated with non-CTG RACT rules, rule
effectiveness improvements, and the quantification of emissions
reductions from rule effectiveness improvements are discussed in
the document entitled Guidance on Growth Factors. Projections.
and Control Strategies for the 15 Percent Rate-of-Proaress Plans.
EPA-452/R-93-002, March 1993. This document also discusses the
development status of new CTG documents. The EPA recognizes that
some of the new CTG documents may not be promulgated in time to
be used by States to develop new RACT rules for their rate-of-
progress plans. The EPA is currently investigating whether and
under what circumstances a State may be able to take credit for
unadopted RACT rules in its 15 percent rate-of-progress plans.
Further guidance may be forthcoming.
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2.0 RELATIONSHIP BETWEEN THE 15 PERCENT VOC EMISSIONS REDUCTION
REQUIREMENTS AND NEW SOURCE REVIEW PROGRAMS
This section of the document describes the new or revised
NSR nonattainment permit program requirements under Part D of the
Act, and the creditability of emissions reductions associated
with NSR permitting toward the 15 percent VOC emissions reduction
requirements. States should be aware that EPA intends to issue
revisions to the existing Part D regulations setting forth in
more detail the new or revised requirements for an approvable NSR
program.
2.1 Core Requirements of the Part D New source Review Program
The Act requires new major stationary sources and major
modifications to stationary sources to obtain an air pollution
permit before initiating construction. Permits for sources
located in nonattainment areas are known as nonattainment area or
Part D permits, while permits for sources located in attainment
areas are known as prevention of significant deterioration (PSD)
or Part C permits. The NSR program is the program under which
these permit reviews are implemented.
The CAAA contain several provisions that changed the Part D
requirements of Title I of the Act. These provisions mandate
lower emissions thresholds for the definition of a major source
and establish more stringent offset ratios for new major sources
located in ozone nonattainment areas (Table 1). Prior to the
enactment of the CAAA, a new source was considered major if it
emitted, or had the potential to emit, 100 tons per year (tpy) or
more of VOC or NOX However, the CAAA lowered the emissions
thresholds for serious, severe, and extreme nonattainment areas
to the potential to emit 50, 25, or 10 tpy or more of VOC or NOX/
respectively. The amendments also lowered the emissions
threshold for defining major new VOC sources in ozone transport
regions. The emissions thresholds and minimum emissions offset
requirements for major new sources in nonattainment areas and
ozone transport regions are presented in Table 1. The CAAA also
establish special and complex requirements for major
modifications including new thresholds in serious, severe, and
extreme ozone nonattainment areas and ozone transport regions.
The requirements for major modifications in nonattainment areas
and ozone transport regions are presented in Table. 2. The CAAA
also establish new sanctions and provisions that retain existing
construction bans in some cases.
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TABLE 1. MAJOR SOURCE THRESHOLDS AND MINIMUM EMISSIONS OFFSET
RATIO REQUIREMENTS FOR OZONE NONATTAINMENT AREA CLASSIFICATIONS
Nonattainment Area
VOC NO,
(tpy)2 (tpy)2
Minimum
Emissions
Offset Ratio
Required
Extreme
Severe
Serious
Moderate
Moderate, in an ozone
transport region
Marginal
Marginal, in an ozone
transport region
All other nonattainment areas,
outside of an ozone
transport region4
10
25
50
100
50
100
50
100
10
25
50
100
100
100
100
100
1.5 to I3
1.3 to I3
1.2 to 1
1.15 to 1
1.15 to 1
1.1 to 1
1.15 to 1
>1.0 to 1
All other nonattainment areas,
in an ozone transport region4 100 100 1.15 to 1
Attainment, in an ozone
transport region 50 100 1.15 to 1
2 tpy = tons per year
3 The minimum ratio is reduced to 1.2 if the applicable State
implementation plan requires all major sources of VOC and NOX
emissions to use best available control technology (BACT).
4 The other nonattainment areas are submarginal, transitional,
and incomplete/no data.
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TABLE 2. MAJOR MODIFICATION THRESHOLDS FOR OZONE
NONATTAINMENT AREA CLASSIFICATIONS
VOC
Ozone Nonattainment Area (tpy)5 (tpy)5
Extreme 0 0
Severe 256 256
Serious 256 256
Moderate 40 40
Moderate, in an ozone transport region 40 40
Marginal 40 40
»
Marginal, in an ozone transport region 40 40
All other nonattainment areas, outside
of an ozone transport region7 40 40
All other nonattainment areas, in an
ozone transport region7 40 40
Attainment, in an ozone transport region 40 40
5 tpy = tons per year
6 Net increase of 25 tons when aggregated with all other net
increases in emissions from the source over any period of
5 consecutive calendar years, which includes the calendar year
in which such increase occurred.
7 The other nonattainment areas are submarginal, transitional,
and incomplete/no data.
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The core requirements of the revised Part D NSR program are
as follows:
Emissions offsets - ensures more than equivalent
offsetting emissions reductions for proposed emissions
increases.
Lowest achievable emissions rate - ensures emissions
are controlled to the greatest extent possible.
Statewide source compliance - ensures that an applicant
is in compliance, or on a schedule toward compliance,
with the Part D'requirements at all of its sources
owned or operated in the State.
Assurance of adequate plan implementation - ensures the
applicable implementation plan is being adequately
implemented before a permit is issued.
Analysis of alternatives - the evaluation of
alternative locations, sizes, production processes, and
environmental control techniques before a permit is
issued.
Of these core requirements, the emissions offsets requirement is
the most relevant to the discussion in this guidance because it
mandates emissions reductions that are greater in quantity than
the proposed emissions increases. The creditability of these
offsets toward the 15 percent VOC emissions reduction
requirements is discussed along with the creditability of
reductions mandated under other titles of the Act toward the NSR
offsets.
2.2 Emissions Offsets
Emissions offsets are the principal regulatory mechanism for
accommodating major new source growth without jeopardizing the
Act's mandate for progress toward attainment of the ozone NAAQS.
Many of the requirements for emissions offsets are already
included in 40 Code of Federal Regulations (CFR) 51.165 and the
Emissions Trading Policy Statement (ETPS). (See reference 1.)
States should be aware that most of the offset requirements
existed before the CAAA and that 40 CFR 51.165 and ETPS
requirements must still be met. States should also be aware that
the NSR Update Rulemaking and any policy changes to the ETPS will
supersede guidance contained -herein regarding NSR permitting.
Therefore, NSR permitting information contained in this guidance
is for background purposes only, and States should develop and
conduct their NSR permitting programs in accordance with the
guidance and requirements contained in the forthcoming NSR
regulations and the Title I General Preamble. (See reference 2.)
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Emissions Offset Requirements
Major stationary sources seeking to satisfy the requirements of
section 173(a)(1)(A) of the Act must obtain "sufficient
offsetting emissions reductions... so as to represent reasonable
further progress" as part of the requirements to obtain a Part D
NSR permit. Section 182 of the Act prescribes specific minimum
offset ratios for VOC and NOX emissions from sources in ozone
nonattainment areas. The minimum offset ratio requirements are
presented in Table 1. In the case of severe and extreme areas,
section 182(c)(10) allows the minimum offset ratio to be reduced
to a ratio of 1.2 to 1 if the applicable SIP requires all
existing major sources in such nonattainment areas to use best
available control technology (BACT) for the control of VOC and
NOX emissions. Certain criteria must be met for emissions
reductions to be creditable toward the emissions offsets. These
criteria are discussed in detail in the following sections of
this document.
Emissions reductions projected to occur from the offset
requirements are not creditable toward the 15 percent rate-of-
progress plan requirements due to the inherent uncertainty in
projecting new source growth, and in determining the amount of
the emissions reductions from offsets that will be needed to
offset minor source growth. However, any additional, actual,
permanent, and enforceable emissions reductions resulting after
1990 from an offset that is not used to offset minor source
growth will be creditable in the milestone compliance
demonstration due in February 1997 for serious and above areas.
The following example illustrates the creditability of
emissions reductions in a milestone compliance demonstration. If
a new source locating in a serious area proposes an allowable VOC
emissions rate of 120 tpy, the source would be required to obtain
offsets amounting to 144 tpy of actual emissions reductions. The
entire 144 tpy actual emissions reduction will not be creditable
toward the milestone compliance demonstration for the 15 percent
VOC emissions reduction requirements because of the increase in
allowable emissions from the new source. The allowable new
source emissions increase is subtracted from the 144 tpy
reductions obtained through the offset requirement to determine
the amount of credit. Therefore, the State could credit only 24
tpy of reductions toward the 15 percent VOC emissions reduction
requirements in the milestone compliance demonstration.
Creditability of Emissions Reductions
New section 173(c)(2) of the Act prevents emissions
reductions otherwise required by the Act from being credited
toward satisfying the Part D emissions offset requirement. This
stipulation should not be confused with mandated emissions
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reductions that are creditable toward the 15 percent VOC
emissions reduction requirements. For example, RACT "catch-up"
VOC reductions under section 182(b)(2)(B) and (C) are not
creditable toward emissions offset requirements, but are
creditable toward the 15 percent VOC emissions reduction
requirements. Likewise, VOC emissions reductions required under
section 112 of the Act, are not creditable toward emissions
offsets but may be creditable toward the 15 percent VOC emissions
reduction requirements. For example, proposed new or modified
major sources seeking emissions offsets may not use emissions
reductions required by sections 112(d), 112(h), and 112(j) of the
Act. Similarly, an early reductions program that meets the
minimum specifications as described in section 112(i)(5) of the
Act are not creditable toward emissions offsets.
However, emissions reductions which are excess and
incidental to the emissions reductions associated with the
requirements of the Act are creditable toward emissions offsets
as long as the requirements of section 173(c)(l) are met. For
example, any emissions reductions in excess of those required by
section 112 regulations are creditable toward emissions offsets.
In the case of early reductions, any emissions reductions in
excess of 90 percent (for VOC) may be considered surplus and,
therefore, creditable if all other applicable requirements are
met. Additionally, incidental emissions reductions are also
creditable toward emissions offsets. For example, any reductions
in nonhazardous VOC emissions that result from the MACT standards
under section 112(d)(l) are creditable (i.e., if not otherwise
required by the SIP). Incidental emissions reductions also
include any reductions pursuant to a State requirement that is
more stringent than the requirements of the Act. Creditability
of section 112 reductions toward the 15 percent VOC emissions
reduction requirements is discussed in the next section of this
document.
States must use caution to avoid double-counting of
reductions toward the offset requirements (i.e., granting credit
for the same emissions reduction twice). For example, an
emissions reduction already credited toward the 15 percent VOC
emissions reduction requirements in the State's SIP, regardless
of how the reduction was actually obtained, cannot be used for
offsetting purposes. States must keep careful records to avoid
double-counting of reductions toward the 15 percent VOC emissions
reduction requirements. For example, excess emissions reductions
resulting from the section 112(i)(5) early reductions program are
potentially creditable toward the NSR emissions offsets. A
source that reduces the emissions of a hazardous VOC from 10 tpy
to 0.5 tpy would qualify for a section 112 early reduction
exemption because emissions would be reduced by 95 percent.
Because the total reduction exceeds the 90 percent reduction
required by section 112(i)(5), 5 percent of the total reduction
(0.5 tpy) would be available for emissions offset credit. The
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State in this case must be careful not to credit the entire
9.5 tpy early reduction toward the 15 percent VOC emissions
reduction requirements and then credit the 0.5 tpy emissions
offset toward the 15 percent VOC emissions reduction
requirements. This would, in effect, produce a 10 tpy reduction
on paper when only a 9.5 tpy reduction actually occurred. Only
the actual reduction of 9.5 tpy could be credited toward the
15 percent VOC emissions reduction requirements (or
alternatively, 9.0 tpy could be credited toward the 15 percent
VOC emissions reduction, with 0.5 tpy credited toward the
emissions offset requirements).
Creditability of Banked Emissions Reduction Credits
The use of preenactment banked emissions for offsetting must
be treated as growth in the 15 percent rate-of-progress plan. *
States may use the preenactment banked emissions reduction
credits for offsetting purposes as long as the credits meet all
other offset creditability criteria. For VOC and NOX offsets,
such reductions must be used in accordance with the offset
requirements established for the different ozone nonattainment
area classifications. Existing EPA policy [40 CFR
51.165(a)(3)(ii)(C)(1)] prohibits the use of certain preenactment
banked emissions credits in the absence of an EPA-approved
attainment plan. The prohibitions apply to reductions achieved
by shutting down existing sources or permanently curtailing
production or operating hours.
Preenactment banked emissions reductions may be used to
offset new source growth, but these banked emissions are not
creditable toward the 15 percent VOC emissions reduction
requirements. For example, if a State chooses to use banked VOC
emissions reductions to offset new source growth of 200 tpy in a
serious nonattainment area, it must obtain offsetting emissions
of 240 tpy from its bank to meet the offset requirement of
1.2 to 1. Although the bank has been reduced by 240 tpy, the
additional emissions resulting from the new source are 200 tpy.
To ensure that the nonattainment area will meet the 15 percent
VOC emissions reduction requirements, this 200 tpy emissions
increase must be compensated for by reductions from existing
sources.
Minor Source Growth
A State must demonstrate in its 15 percent rate-of-progress
plan that it has achieved the emissions reductions needed to meet
its target level of emissions for each milestone date.
Therefore, a State will need to implement control measures that
will offset new source growth. New source growth not only
results from new or modified major stationary sources, but also
from minor sources. This minor source growth must also be taken
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into account to ensure that the 15 percent rate-of-progress
requirements are achieved. Emissions increases from minor
sources must be offset by emissions reductions at existing
sources. However, EPA has not yet resolved whether the State or
the source should accept the burden of compensating for minor
source growth. Readers are encouraged to review the final NSR
regulations, when published, for guidance regarding minor source
growth.
Geographic Location of Offsets
Section I73(c)(l) of the Act specifies that a proposed major
new or modified source must generally obtain emissions offsets
from the source itself or from other existing sources in the same
nonattainment area. However, sources are allowed to obtain
offsets from other nonattainment areas if two criteria-are
satisfied. First, the other nonattainment area must have an
equal or higher nonattainment classification than the
nonattainment area in which a proposed source is to be
constructed or modified. This criterion is only met in cases
where the other nonattainment area has an equal or higher
nonattainment classification for the same pollutant. For
example, a major new source of VOC or NOX proposing to locate in
a serious ozone nonattainment area could obtain offsets in
another ozone nonattainment area classified as serious, severe,
or extreme. Second, emissions from the other nonattainment area
must contribute to a violation of the NAAQS in the nonattainment
area in which a proposed source would construct or be modified.
The permitting authority should acknowledge and verify any
demonstration made to meet the second criteria.
In cases where offsets are obtained in a nonattainment area
other than the area where a proposed major source would be
constructed or modified, a State may credit the offset emissions
reductions toward the 15 percent VOC. emissions reduction
requirements for the nonattainment area in which the reductions
occurred. However, the emissions increase associated with the
proposed major source must be treated as growth in the
nonattainment area in which the increase occurred, and must be
controlled to meet the 15 percent VOC. emissions reduction
requirements. For example, if a new source proposes allowable
emissions of 120 tpy in serious nonattainment area A and proposes
actual emissions offsets of 144 tpy in serious nonattainment area
B, the State can credit a reduction of 144 tpy toward the 15
percent VOC emissions reduction requirements for area B. The
State must then debit the actual emissions increase of 120 tpy
from the proposed new source against the 15 percent VOC emissions
reduction requirements for area A. .
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Timing of Offsets
New section 173(c)(l) of the Act also specifies that any
offsets obtained by a proposed major new or modified source in
conjunction with the issuance of a permit must be in effect and
enforceable by the time the proposed source commences operation.
This new condition clarifies an existing requirement under
section 173(a) that simply stipulates offsets must be "legally
binding" before a permit may be issued. The new condition
emphasizes that the obtained offsets must be federally
enforceable before the permit can be issued to the proposed
source. The offsets are generally made federally enforceable
through a permit condition made by the permitting authority to
the permit for the source(s) where the offsets are to be
obtained, states should be aware that problems may exist in
making off-site offsets federally enforceable. Additionally,
States must also ensure that the required emissions reductions
actually occur no later than the date on which the proposed
source would commence operation. These conditions must be met
before States can claim offset credits. These conditions must
also be met if emissions reductions associated with an offset are
to be creditable toward the 15 percent emissions reduction
requirements in a milestone compliance demonstration.
Offset and Rate-of-Progress Baselines
Changes in section 173(a)(1) support current EPA
requirements that the calculation of the emissions baseline for
offset credits be consistent with the calculation of the
emissions baseline for the rate-of-progress plan. The EPA's
current policy concerning the baseline for emissions offsets
provides that the offset baseline is the allowable emissions
limit under the applicable SIP in effect at the time the proposed
source files its permit application. However, the offset
baseline is based on actual emissions if the State's rate-of-
progress plan and attainment demonstration are based on actual
emissions, or if the SIP does not contain an allowable emissions
limitation for the proposed source or source category.
States that based their previous rate-of-progress plan and
attainment demonstration on actual emissions should comply with
the new offset provisions with little difficulty. Most States
historically used yearly assessments of net actual emissions
reductions to track rate-of-progress emissions reductions because
actual emissions reductions correlate better with improvements in
ambient air quality than allowable emissions reductions. States
that based their plans on allowable emissions can still obtain
offset credits for reductions in allowable emissions as necessary
to conform with the requirements of section 173(a)(1). However,
such offset credits will be deemed inadequate if, by definition,
a real reduction in actual emissions does not occur at the
offsetting source that equals or exceeds the amount of offset
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provided to the proposed source. Furthermore, States should
realize that if these offsets do not correspond to real emissions
reductions, then States will not be likely to achieve the
necessary emissions reductions for milestone compliance.
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2.3 Creditable Emissions Reductions for Netting
Except for the additions of the provisions of sections
182(c)(6)-(8) to Title I of the Act, the CAAA generally do not
affect EPA's current procedures for netting emissions decreases
and increases. Netting should still be determined in a manner
consistent with EPA's current NSR rules (40 CFR 51.165) and the
ETPS for the purpose of determining whether a proposed source or
modification is subject to the NSR requirements. Netting
preenactment reductions with post-enactment emissions increases
can still be conducted to the extent allowed under State rules.
However, because preenactment emissions reductions represent
emissions that are not included in the 1990 base year inventory,
States must consider such post-enactment increases as growth even
though, for NSR applicability purposes, the-source's net
emissions change is de minimis (note, if netting includes post-
enactment decreases, then growth eguals post-enactment increases
minus post-enactment decreases). States should be aware that
post-enactment net growth from minor modifications to major
sources could significantly affect the rate-of-progress plan and
attainment demonstration. As discussed previously with regard to
minor source growth, EPA has yet to resolve who should accept the
burden of compensating for such growth.
States must use caution to avoid double-counting of
reductions toward the netting requirements. An emissions
reduction is creditable for netting purposes only if the relevant
reviewing authority has not relied on the reduction in issuing a
NSR permit for the source, and the permit is still in effect when
the increase in actual emissions from the proposed major
modification occurs. (See reference 3.) For example, an
emissions reduction obtained through an offset at a modified
source cannot also be used for netting purposes. Additionally,
States must keep careful records to avoid double-counting of
reductions toward the 15 percent VOC emissions reduction
requirements. For example, all reductions resulting from the
section 112 early reductions program are also potentially
creditable toward the NSR netting requirements. A source that
reduces the actual emissions of a hazardous VOC from 10 tpy to
0.5 tpy would qualify for a section 112 early reduction exemption
because emissions would be reduced by 95 percent. Because the
early reduction is creditable for netting purposes, the 9.5 tpy
reduction would be available for either netting credit or as a
credit against the 15 percent VOC emissions reduction
requirements. However, the State in this case must be careful
not to credit the 9.5 tpy section 112 early reduction toward the
15 percent VOC emissions reduction requirements and also allow a
9.5 tpy netting credit. This would, in effect, produce a 19 tpy
reduction on paper when only a 9.5 tpy reduction actually
occurred.
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Emissions reductions creditable to the 15 percent VOC
emissions reduction requirements are not necessarily creditable
for netting purposes, or vice-versa. For example, an offset
previously obtained by a modifying source may be creditable
toward the 15 percent VOC emissions reduction requirements, but
would not be creditable for netting purposes. However, the
restrictions regarding the creditability of reductions for
netting purposes are somewhat more lenient than those for
offsets. For example, early reductions under section 112(i)(5)
may be creditable for netting purposes, whereas such reductions
could not be used for offsetting purposes.
2.4 Growth Allowances
The CAAA sharply limit the opportunities for States to set
up new growth allowances in nonattainment areas and voids certain
existing growth allowances. Sections 172(c)(4) and 173(a)(l)(B)
of the Act limit new growth allowances to only those portions of
a nonattainment area that have been formally targeted for
economic growth by the Administrator, in consultation with the
Secretary of HUD. Emissions reductions used to create growth
allowances in a HUD zone are not creditable toward the 15 percent
VOC emissions reduction requirements because the reductions must
be surplus, enforceable, permanent, and quantifiable to be
creditable toward the 15 percent VOC emissions reduction
requirements. Emissions reductions obtained to create growth
allowances are not surplus or permanent, since the reductions may
be used to offset future growth. In situations where the
emissions reductions exceed the enforceable growth allowances in
absolute quantity, the surplus reductions can be credited toward
the 15 percent VOC emissions reduction requirements.
New section 173(b) of the Act invalidates, by operation of
law, any existing growth allowances in any nonattainment area
that either (1) received a notice that the SIP was substantially
inadequate under section 110(a)(2)(H)(ii) of the Act, or (2)
receives a notice of inadequacy under new section 110(k)(1) of
the Act. Where growth allowances are no longer valid or
established, a proposed major new or modified source in a
nonattainment area is required to obtain emissions offsets on a
case-by-case basis in order to obtain construction approval.
(This was discussed previously in the emissions offsets section
of this document.)
2.5 Construction Bans
The CAAA repeal most of the federally imposed construction
bans established in nonattainment areas prior to November 15,
1990, under section 110(a)(2)(I) of the Act. However, new
section 110(n)(3) of the Act also preserves certain preenactment
construction bans imposed by virtue of a finding that the SIP for
the area did not contain an adequate NSR permitting program as
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required by section 172(b)(6) of the Act. The retained
construction bans remain in effect until the EPA determines that
the SIP meets the new Part D permit requirements.
Construction bans can, in effect, be imposed under section
173(a)(4) of the Act if the Administrator determines that the SIP
for the Part D requirements is not being adequately implemented
for the nonattainment area where new or modified sources are
proposed. Section 173(a)(4) stipulates that a permit cannot be
issued to a new or modified major source in a nonattainment area
if the SIP is not adequately implemented.
Section 113(a)(5) of the Act provides that EPA may prohibit
the construction or modification of any specific major stationary
source in any area, including an attainment area, and may take
other enforcement actions against States as allowed by the Act.
The EPA may apply section 113(a)(5) whenever the Administrator
finds, on the basis of available information, that a State is not
acting in compliance with any requirement or prohibition of the
Act (or approved SIP meeting the requirements of the Act)
relating to construction of new sources or the modification of
existing sources. Upon such a finding, the Administrator has the
option of issuing an order that prohibits the construction or
modification of any major stationary source in any area to which
such requirement applies.
Construction bans do not necessarily prevent minor source
growth and de minimis increases at major sources. Therefore,
States with nonattainment areas subject to construction bans must
still track emissions increases and decreases for the milestone
compliance demonstration.
2.6 Tribal Lands
Section 301(d) of the Act grants EPA the authority to treat
Indian tribes in certain respects as States and specifically to
allow Tribes to develop tribal implementation plans for achieving
the NAAQS on tribal lands. Like SIP's, these plans must include
all implementation requirements specified in the Act including
complete NSR programs for constructing or modifying existing
sources located on tribal lands. Further guidance on the
provisions of the Act, including the 15 percent VOC emissions
reduction requirements, for which Indian tribes are to be treated
as States will be provided as part of a separate rulemaking
required by section 301(d)(2) of the Act.
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2.7 NOX Requirements
Section 182(f) of the Act specifies requirements for NOX
that apply to major new and modified sources in ozone
nonattainment areas and ozone transport regions. This section
reflects a new directive that NOX reductions are required in
ozone nonattainment areas, with certain exceptions. As a result,
States are generally required to apply the same requirements to
major stationary sources of NOX as are applied to major
stationary sources of VOC. However, the emissions threshold at
which a stationary source becomes major does differ for NOX and
VOC sources in marginal and moderate ozone transport regions
(100 tpy NOX rather than 50 tpy VOC). Section 182 (f) also
specifies that the new NOX requirements shall not apply where any
of the following tests is met:
In any area where the net air quality benefits are
greater without NOX reductions from the applicable
sources.
In an ozone transport region where additional NOX
reductions would not produce net ozone benefits in the
transport region.
In nonattainment areas not located within an ozone
transport region where additional NOX reductions would
not contribute to ozone attainment.
If a State wishes to be exempt from some or all of the NOX
requirements of the Act, the State must demonstrate to the
satisfaction of EPA that at least one of the three exemptions
apply. This' demonstration must be based on photochemical
modeling and must consider various control strategies with and
without NOX reductions. Further details on the NOX exemption are
provided in a supplement to the General Preamble for
implementation of the Title I NOX requirements. (See reference
4.) The EPA anticipates releasing guidance on the substitution
of NOX for VOC emissions reductions in the fall of 1993 for the
post-1996 rate-of-progress requirements.
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3.0 RELATIONSHIP BETWEEN THE 15 PERCENT VOC EMISSIONS REDUCTION
REQUIREMENTS AND PROVISIONS FOR CONTROLLING HAZARDOUS AIR
POLLUTANTS
This section of the document describes the creditability of
emissions reductions associated with the new or revised HAP
requirements of section 112 of the Act. The creditability of
emissions reductions associated with Resource Conservation and
Recovery Act (RCRA) air emissions standards and EPA's 33/50
program are also discussed. The purpose of this section is to
provide States with guidance on how emissions reductions that
occur under programs to control HAP's can be used to achieve a
portion of the 15 percent VOC emissions reduction requirements.
3.1 National Emission standards for Hazardous Air Pollutants
Prior to enactment of the CAAA, EPA either promulgated or
initiated development of NESHAP's to control HAP's under section
112 of the Act. The NESHAP's apply to both new and existing
sources that exceed the exemption, criteria specified in an NESHAP
regulation. Some of the HAP emissions for which EPA has
promulgated NESHAP's are also classified as VOC's. (See p. A-9
for the definition of VOC.) The NESHAP's which also control VOC
emissions are as follows:
Vinyl chloride production plants.
Benzene emissions from equipment leaks.
Benzene emissions from benzene storage vessels.
Benzene emissions from coke by-product recovery plants.
Benzene emissions from benzene transfer operations.
Benzene waste operations.
The EPA proposed a NESHAP for coke oven batteries in 1987.
However, on December 4, 1992, EPA withdrew the proposal (57 FR
57403) and proposed a new NESHAP for coke oven batteries (57 FR
57534). The NESHAP is expected to be promulgated in the spring
of 1993. * In addition, EPA proposed an hazardous organic NESHAP
(HON) on December 31, 1992 (57 FR 62608). The final rule is
expected to be promulgated in late 1993 or early 1994. The
proposed rule would regulate the emissions of organic HAP's, all
of which are classified as VOC's, from synthetic organic
chemicals manufacturing industry (SOCMI) processes and from
equipment leaks in non-SOCMI processes. The EPA is also
preparing an NESHAP to control HAP's from ship building and ship
repair operations. The NESHAP is planned for promulgation in
1994.
Reductions in VOC emissions associated with sources that
were in compliance with an NESHAP prior to enactment of the CAAA
are not creditable toward the 15 percent VOC emissions reduction
requirements. Reductions in VOC emissions associated with
existing sources which have complied with an NESHAP promulgated
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after November 15, 1990 and before the deadline for submittal of
the rate-of-progress plans (i.e., November 15, 1993),. are
creditable. However, care must be taken to ensure that emissions
reductions associated with an NESHAP are not double counted. For
example, sources located in ozone nonattainment areas that become
subject to an NESHAP after November 15, 1990 may also be subject
to a RACT rule in existence prior to November 15, 1990. For
these cases, only the incremental emissions reduction between the
allowable emissions required by the NESHAP and RACT rule is the
emissions reduction creditable toward the 15 percent VOC
emissions reduction requirements.
The EPA recognizes that some of the new NESHAP's may not be
promulgated in time to be used by States for their 15 percent
rate-of-progress plans. The EPA is currently investigating
whether and under what circumstances a State may be able to take
credit for unadopted NESHAP's in its 15 percent rate-of-progress
plans. Further guidance may be forthcoming.
The CAAA revised section 112 of the Act which changed
procedures for developing standards for controlling HAP's. The
new programs for controlling HAP's under section 112 are
discussed in sections 3.2 through 3.5 of this document.
3.2 Maximum Achievable Control Technology Standards
Section 112(d)(l) of the amended Act requires the
promulgation of regulations establishing emissions standards for
categories and subcategories of major sources and area sources of
189 HAP's. The emissions standard for a new or existing source
in a particular category or subcategory must be based on the
maximum degree of reduction that the Administrator determines is
achievable through the application of MACT. Maximum achievable
control technologies include, but are not limited to:
Process changes, materials substitution, or other
modifications.
Enclosed systems or processes.
Collection, capture, or treatment systems.
Design, equipment, work practice, or operational
standards.
Combinations of the above.
The determination of MACT considers the cost of achieving such
emissions reductions and any non-air quality health and
environmental impacts and energy requirements. Section 112(d)(3)
states that MACT standards for new sources must not be less
stringent than the control achieved by the best controlled
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similar source. The MACT standards for an existing source cannot
be less stringent than the achievable emissions limitation of the
top 12 percent of existing sources, except in cases where the
source achieves the lowest achievable emissions rate (as defined
under section 171 of the Act) applicable to the source category
for those source categories with more than 30 sources. For
source categories containing less than 30 sources, MACT standards
must be no less stringent than the emissions limitation achieved
by the best performing 5 sources. Where achievable, MACT may
include the prohibition on the emissions of a HAP.
The emissions standards, or MACT standards, must be
promulgated no later than the dates outlined in sections 112(c)
and 112(e) of the Act. The schedule mandated in section
112(e)(l) is as follows:
November 15, 1992: emissions standards for not less
than 40 categories and subcategories (not counting coke
oven batteries) shall be promulgated.
December 31, 1992: emissions standards for coke oven
batteries shall be promulgated.
November 15, 1994: emissions standards for 25 per
centum of the listed source categories and
subcategories shall be promulgated.
November 15, 1997: emissions standards for an
additional 25 per centum of the listed source
categories and subcategories shall be promulgated.
November 15, 2000: emissions standards for all source
categories and subcategories shall be promulgated.
As required under section 112(c), additional schedules are
provided for area sources, previously regulated source
categories, additional source categories not listed under
sections I12(c)(l) or 112(c)(3), and specific HAP's. By November
15, 2000, emissions standards must be promulgated for sufficient
categories and subcategories of area sources to ensure that area
sources representing 90 percent of the area source emissions of
the 30 HAP's that present the greatest threat to public health in
the largest number of urban areas are subject to regulation.
Emissions standards for additional source categories identified
on or before November 15, 1998, must be promulgated by November
15, 2000. Emissions standards for additional source categories
identified after November 15, 1998, must be promulgated within
2 years of identification of the additional source category. By
November 15, 2000, emissions standards must be promulgated for
categories and subcategories of sources that emit alkylated lead
compounds, polycyclic organic matter, hexachlorobenzene, mercury,
polychlorinated biphenyls, 2,3,7,8-tetrachlorodibenzofurans, and
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2,3,7,8-tetrachlorodibenzo-p-dioxin, assuring that sources
accounting for not less than 90 per centum of the aggregate
emissions of each such pollutant are subject to such standards.
Many of the 189 HAP's listed under section 112(b)(l) are
VOC's. Any emissions reduction of a hazardous VOC resulting from
the application of a MACT standard is creditable toward the
15 percent VOC emissions reduction requirements for ozone
nonattainment areas. Any incidental emissions reduction of a
nonhazardous VOC resulting from the application of a MACT
standard is also creditable toward the 15 percent VOC emissions
reduction requirements. Crediting of MACT emissions reductions
toward the 15 percent VOC emissions reduction requirements should
not be confused with crediting such reductions toward NSR
emissions offsets. Discussion regarding the creditability of
MACT reductions toward NSR emissions offsets is discussed earlier
in this document. It is important to note that some sources will
be subject to both MACT and RACT rules. Because only the more
stringent of the two standards will apply in these cases, States
should be aware that double-counting of the VOC reductions from
these two programs must not occur.
The EPA recognizes that some of the new MACT standards may
not be promulgated in time to be used by States for their
15 percent rate-of-progress plans. The EPA is currently
investigating whether and under what circumstances a State may be
able to take credit for unadopted MACT standards in its
15 percent rate-of-progress plans. Further guidance may be
forthcoming.
3.3 Early Reduction Program
As a temporary alternative to complying with an applicable
MACT standard, an existing source may elect to comply with the
early reduction requirements of section 112(i)(5). By electing
to achieve early reductions, an existing source may, under
certain conditions, meet an alternative emissions limit in lieu
of meeting an otherwise applicable MACT standard. The
alternative emissions limit expires 6 years after the otherwise
applicable MACT standard compliance date, at which time the
source must comply with the MACT requirement. Except as follows,
to obtain the MACT compliance extension the reduction must be
achieved before the otherwise applicable MACT standard is first
proposed. A source may also obtain an extension if it makes an
enforceable commitment to achieve such reduction before the
proposal of the MACT standard, and it achieves the early
reduction after the proposal of the applicable MACT standard, but
before January 1, 1994.
The early reduction program requires a source to achieve HAP
emissions reductions of at least 90 percent for VOC. The
emissions reduction must be determined from a comparison of the
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actual post-control emissions with the actual and verifiable
emissions in a base year not earlier than 1987. A base year of
1985 or 1986 can be used by a source if its emissions data are
based on information received by the Administrator prior to
November 15, 1990, pursuant to an information request issued
under section 114 of the Act.
Hazardous VOC emissions reductions under the early reduction
program are creditable toward the 15 percent VOC emissions
reduction requirements if the reductions occur after the 1990
base year. Because a 'source can credit reductions prior to 1990
under the early reduction program, the entire 90 percent early
reduction may not be creditable toward the 15 percent VOC
emissions reduction requirements.
States should be aware that EPA is developing a policy
regarding potential conflicts between the early reduction program
and the RACT requirements. (See reference 5.)* The interaction
between the early reduction program and RACT requirements causes
concern because the prospect of applying RACT requirements to
sources that already made early reductions would effectively
limit the attractiveness of, and therefore participation in, the
early reduction program. Additionally, States should also be
aware that early reductions must be taken prior to November 15,
1996, to be credited toward the 15 percent VOC emissions
reduction requirements. Guidance regarding the creditability of
section 112 early reductions toward the post-1996 reduction
requirements is presently under development within EPA. Readers
interested in further details regarding the section 112 early
reduction program are referred to the final regulations published
in the Federal Register. (See reference 6.)
3.4 Construction, Reconstruction, and Modifications of Major
Sources
Section 112(g)(2) of the Act stipulates that (after the
effective da"te of a permit program under Title V in any State)
the construction, reconstruction, or modification of a major
source cannot commence unless the permitting authority under the
established permit program determines that MACT will be achieved.
Volatile organic compound emissions reductions achieved under
section 112(g)(2) can be credited toward the 15 percent VOC
emissions reduction requirements.
Major sources proposing physical or operational changes
resulting in HAP emissions increases that exceed a de minimis
amount may be exempted under section 112(g)(l) from being
regarded as a modification if the emissions increase will be
offset by an equal or greater emissions reduction of a more
hazardous pollutant. The offset must be an internal offset and
should not be confused with NSR emissions offsets. It should be
noted that the HAP's that account for the increase and offset do
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not have to be VOC's. For example, under Section 112(g)(1) (B),
EPA may determine that mercury compound emissions are relatively
more hazardous than styrene emissions. A hypothetical source
proposing to increase emissions of styrene, which is both a HAP
and a VOC, may propose to offset such an emissions increase with
a reduction in the emissions of mercury compounds, which are
HAP's, but not VOC's. A source proposing such an offset, while
reducing HAP emissions, would actually produce an increase in
total VOC emissions. Thus, States should be aware that offsets
claimed under section 112(g)(l) will not necessarily result in a
reduction in'VOC emissions. In contrast, a hypothetical source
proposing to increase emissions of methyl chloroform, which is
not a VOC, could propose to offset with a reduction in vinyl
chloride emissions, a VOC. Another source may propose to offset
an emissions increase in styrene with a reduction of vinyl
chloride that exceeds the increase in styrene. Net VOC emissions
reductions that are obtained through section 112(g)(l) offsets
can be credited toward the 15 percent VOC emissions reduction
requirements as long as such reductions are real, permanent, and
enforceable. States should be aware that guidance regarding
these offsets is presently being prepared by EPA.
3.5 Additional Emissions Standards Available under Section 112
of the Act
Standard to Protect Public Health and the Environment
Section 112(f) of the Act allows the Administrator to
promulgate more stringent standards than established under
section 112(d) for a source category or subcategory if such
standard is required to provide an ample margin of safety to
protect public health or to prevent an adverse environmental
effect. Sections 112(f)(1)(A)-(D) of the Act describe the
elements that EPA must include in investigating the need for more
stringent standards. The Administrator is required to promulgate
such standards within 8 years of the promulgation of the original
MAGT standard. However, no standards are anticipated under
section 112(f) before November 15, 2000.
Work Practice Standards and Other Requirements
Section 112(h) of the Act allows the Administrator to
promulgate design, equipment, work practice, or operational
standards if the prescription or enforcement of an emissions
standard is not feasible. To the extent that such standards are
adopted and emissions reductions in VOC are required and
quantifiable before November 15, 1996, such reductions are
creditable toward the 15 percent VOC emissions reduction
requirements.
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Equivalent Emissions Limitation bv Permit
In the event the Administrator fails to promulgate MACT
standards by the dates specified in sections 112(e)(l) and (3),
section 112(j) of the Act requires the permitting authority to
issue source operating permits that contain emissions limitations
deemed equivalent to the limitation that would have applied to
the source had the MACT standard been issued. To the extent that
such emissions limitations are adopted in an approved permit and
emissions reductions in VOC are required before November 15,
1996, such reductions are creditable toward the 15 percent VOC
emissions reduction requirements.
State and Local Standards
Section 112(1) allows State and local agencies to request
delegation of section 112 implementation and enforcement
authority from EPA. To the extent that such programs are
approved and emissions reductions in VOC are required before
November 15, 1996, such reductions are creditable toward the
15 percent VOC emissions reduction requirements.
3.6 Other EPA Programs
Hazardous Waste Treatment, Storage, and Disposal facilities
(TSDF's) regulated under Subtitle C of the Solid Waste Disposal
Act may be required to meet Resource Conservation and Recovery
Act (RCRA) air emissions standards. Section 112(n)(7) mandates
that requirements promulgated under section 112 be consistent
with the applicable RCRA rules. Volatile organic compound
emissions reductions achieved under the RCRA rules may be
creditable toward the 15 percent VOC emissions reduction
requirements. Because the VOC emissions reduction may qualify as
a RCRA reduction and a MACT reduction, States should take care to
avoid crediting such an emissions reduction twice. Similarly,
the 33/50 Project (Industrial Toxics Project) is designed to
reduce the emissions of air toxics. Under this program, sources
are encouraged to voluntarily reduce toxics releases. Again,
States should avoid crediting VOC emissions reductions claimed
under this program twice, because such reductions may qualify
under the early reduction requirements of section 112(i)(5).
States should be aware that reductions under voluntary programs
such as the 33/50 Project must be made enforceable and permanent
to be creditable toward the 15 percent VOC emissions reduction
requirements.
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4.0 RELATIONSHIP BETWEEN THE 15 PERCENT VOC EMISSIONS REDUCTION
REQUIREMENTS AND NEW SOURCE PERFORMANCE STANDARDS
Under the authority of Section 111 of the Act, the EPA
Administrator was required to publish a list of categories of
stationary sources that cause or contribute significantly to air
pollution which may reasonably be anticipated to endanger public
health or welfare, and to promulgate standards of performance for
new stationary sources in the listed categories. The standards
are typically called NSPS. The EPA has promulgated NSPS
regulations for several VOC source categories. The purpose of
the NSPS is to require the application of uniform performance
standards for new, modified, or reconstructed sources within a
source category, which commence construction or modification
after the publication of the regulations (or, if applicable,
proposed regulations). The NSPS are based on performance
standards which reflect the best technological system of
continuous emissions reduction which (taking into consideration
the cost of achieving such emissions reduction, and any non-air
quality health and environmental impact and energy requirements)
the Administrator determines has been adequately demonstrated. A
performance standard is based on an emissions limit or control
efficiency that can be achieved by demonstrated control
technology. An NSPS can be based on a design, equipment, work
practice, or operational standard, or a combination thereof, if
it is impractical to enforce a performance standard.
For the categories of major stationary sources that EPA
listed before the date of enactment of the CAAA, EPA is required
to propose NSPS regulations for at least 25 percent of the source
categories by November 15, 1992; 50 percent of the source
categories by November 15, 1994; and for the remaining source
categories by November 15, 1996. The EPA has the authority to
add source categories to the list of categories for which NSPS
may be warranted.
Reductions in VOC emissions associated with stationary
sources that become subject to an NSPS after November 15, 1990
and before November 15, 1996 are creditable toward the 15 percent
VOC emissions reduction requirements. However, care must be
taken to ensure that emissions reductions associated with an NSPS
are not double-counted under the emissions offset or netting
provisions of the NSR rules. In addition, existing sources that
become subject to an NSPS as a result of modification or
reconstruction may already be subject to RACT rules. The
incremental emissions reduction between the allowable emissions
required by the NSPS and RACT rules is the emissions reduction
creditable toward the 15 percent VOC emissions reduction
requirements. The EPA is currently developing guidance on how
much credit states may take in their 15 percent rate-of-progress
plans for NSPS promulgated between the date of their plan
submittals and November 15, 1996.
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The EPA has promulgated NSPS to control VOC emissions from
sources in the following source categories:
Bulk gasoline terminals.
Municipal waste combustors.
On-shore natural gas processing plants: VOC equipment
leaks.
Petroleum dry cleaners.
Petroleum refineries: equipment leaks.
Petroleum refinery wastewater systems.
Polymer manufacturing.
Publication rotogravure printing.
Rubber tire manufacturing.
Storage vessels for petroleum liquids.
Storage vessels for volatile organic liquids.
Synthetic fiber production.
Surface coating operations:
Automobiles and light-duty trucks.
Beverage cans.
Flexible vinyl and urethane coating and printing.
Large appliances.
Magnet tape.
Metal coil.
Metal furniture.
Plastic parts for business machines.
Polymeric coating of supporting substrates.
Pressure sensitive tapes and labels.
SOCMI air oxidation unit processes.
SOCMI distillation unit operations.
SOCMI equipment leaks.
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5.0 RELATIONSHIP BETWEEN THE 15 PERCENT VOC EMISSIONS REDUCTION
REQUIREMENTS AND MOBILE SOURCE PROVISIONS
The CAAA require a combination of national and area-specific
emissions control measures to reduce motor vehicle emissions.
The following sections present the various mobile source programs
and indicate which mobile source reductions qualify as creditable
emissions reductions toward the 15 percent VOC emissions
reduction requirements. In addition, the reader is referred to
the appropriate program development rules and/or guidance.
The majority of the mobile source measures mentioned below
are included in the MOBILE5a emissions factor model. By using
MOBILESa, States will be able to model the future emissions
reductions from specific mobile source programs that they plan to
implement. A MOBILESa user's guide will provide instructions on
how to model the effects of these programs. Where a measure is
not included in the MOBILESa model, it is indicated below.
5.1 Federal Motor Vehicle Control Program (FMVCP)
Tailpipe/extended useful life standards have been
established for certification of light-duty vehicles and light-
duty trucks, which revise previously established standards under
the pre-1990 FMVCP. These standards, known as Tier 1 standards,
are to be implemented in phases, beginning with model year 1994.
The final rules, published in the Federal Register, (see
reference 7), describe new measurement techniques on which to
base the standards. A new Federal evaporative test procedure
will be mandated for hot-soak and diurnal emissions, running
losses, and resting losses. Emissions reductions due to
implementation of pre-1990 FMVCP regulations cannot be credited
toward the 15 percent VOC emissions reduction requirements.
However, emissions reductions resulting from implementation of
post-1990 FMVCP regulations can be creditable toward the
15 percent VOC emissions reduction requirements.
5.2 Reid Vapor Pressure (RVP)
The Act mandates that EPA promulgate regulations pertaining
to the handling of gasoline with an RVP in excess of 9.0 pounds
per square inch (psi) during the peak ozone season. The Phase II
volatility rulemaking, published June 11, 1990 in the Federal
Register (see reference 8), establishes State RVP standards for
1992 and subsequent years. This regulation specifies RVP limits
of 9.0 psi or 7.8 psi for each State. However, a Federal RVP
limit below 9.0 psi cannot be required in the attainment areas
within each State, unless an area is a former nonattainment area,
as stipulated in a December 12, 1991 rulemaking. (See reference
9.)
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Like the pre-1990 FMVCP emissions reductions, the reductions
in emissions that result from implementation of the required RVP
limits cannot be credited toward the 15 percent VOC emissions
reduction requirements. However, if a nonattainment area
establishes an RVP limit below the Federal limit, reductions
resulting from the lowered RVP limit will be creditable. The EPA
guidance document entitled Enforcement of Volatility Regulations
- Questions and Answers, (see reference 10), addresses questions
concerning how the Agency intends to implement and enforce the
gasoline volatility regulations. The EPA is currently developing
guidance on whether emissions reduction credit will be allowed
when a nonattainment area's projected actual RVP in 1996-will be
below its 1996 RVP limit.
5.3 Reformulated Gasoline
Section 211(k) of the Act requires certain ozone
nonattainment areas to use reformulated gasoline beginning
January 1, 1995. This requirement applies to the nine ozone
nonattainment areas having a 1980 population in excess of
250,000, and having the highest ozone design value during the
period 1987 through 1989. This provision also affects any area
that is reclassified to a severe nonattainment area 1 year after
reclassification. States are permitted to opt-in to the
reformulated gasoline program upon formal notice to EPA.
Proposed regulations for the reformulated gasoline program were
published in the Federal Register on April 16, 1992. (See
reference 11.) To the extent that this measure results in
quantifiable VOC emissions reductions before 1996, these
reductions will be creditable toward the 15 percent VOC emissions
reduction requirements.
5.4 Stage II Vapor Recovery Control8
The CAAA require that owners or operators of gasoline
dispensing systems in particular nonattainment areas install
gasoline dispensing pump vapor control devices, or Stage II
controls. These systems control VOC vapor releases, as well as
benzene and other toxics, during motor vehicle refueling. The
CAAA mandate that all moderate and above ozone nonattainment
areas and all areas in an ozone transport region must implement a
Stage II program. According to the CAAA, EPA was directed to
establish regulations mandating the installation of on-board
vapor recovery systems, after consultation with the Department of
Transportation regarding the safety of the systems. In early
1992, EPA published its decision against promulgating on-board
8 Although Stage II vapor recovery control systems for gasoline
service stations are discussed under the heading of mobile source
provisions in this document, the emissions from gasoline service
stations are generally inventoried as an area source.
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vapor recovery standards (57 FR 13220, April 15, 1992). This
decision had the effect of removing the possibility of a Stage II
exemption for moderate areas as provided in the Act. However, on
January 22, 1993, the District of Columbia Circuit of the United
States Court of Appeals ruled that EPA's decision not to require
on-board vapor recovery controls be set aside and on-board vapor
recovery standards be promulgated pursuant to section 202(a)(6)
of the Act. The EPA is currently studying a schedule for
complying with the court's ruling.
When on-board rules are promulgated, a State may withdraw
its Stage II rules for moderate areas fr.om the SIP consistent
with its obligation under sections 182(b)(3) and 202(a)(6), so
long as withdrawal does not interfere with any other applicable
requirement of the Act. A March 9, 1993 memorandum from John S.
Seitz, Director, Office of Air Quality Planning and Standards, to
U.S. Environmental Protection Agency Regional Air Division
Directors, regarding "Impact of the Recent On-Board Decision on
Stage II Requirements in Moderate Nonattainment Areas," notes
that EPA has recently issued findings of failure to submit Stage
II rules covering about 20 moderate ozone nonattainment areas.
This memorandum also discusses the implications if a State does
not submit complete Stage II rules within 18 months of the
findings letter. Furthermore, the memorandum briefly discusses
the consequences of moderate area failures to submit approvable
15 percent rate-of-progress plans or to attain the ozone NAAQS by
1996. Given the significant contribution that Stage II can
provide to achievement of these requirements, and the
consequences of failure to meet these requirements, States have
compelling reasons to submit their Stage II rules and maintain
them even after an on-board rule has been promulgated. Further
guidance on Stage II requirements for moderate nonattainment
areas seeking redesignation will be forthcoming.
Emissions reductions resulting from the post-1990
implementation of a Stage II program will be creditable toward
the 15 percent VOC emissions reduction requirements. Two
documents are available to guide States in developing and
implementing acceptable Stage II programs. Technical information
on Stage II programs is available in a 1991 document entitled,
Technical Guidance - Stage II Vapor Recovery Systems for Control
of Vehicle Refueling Emissions at Gasoline Dispensing Facilities.
(See reference 12.) A second report entitled, Enforcement
Guidance for Stage II Vehicle Refueling Control Programs (see
reference 13), establishes the minimum requirements for an
acceptable Stage II program.
5.5 Clean Fuel Vehicle Program for Fleets
The clean fuel fleet vehicle program requires a specified
percentage of fleet vehicles purchased in model year 1998 to be
clean-fueled vehicles. Thirty percent of new centrally-fueled
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fleet vehicles in serious and above nonattainment areas with a
1980 population of 250,000 or more must meet standards of
0.075 gram of VOC per mile and 0.2 gram of NOxper mile. The
percentages increase to 50 percent in 1999, and 70 percent in
2000. Beginning in model year 1996, California will establish a
pilot test program requiring 150,000 clean fuel cars to be sold
which meet a standard of 0.125 gram of VOC per mile. Other
cities can opt-in to the clean fuel fleet program. In the event
that a nonattainment area implements a clean fuel fleet program
that achieves emissions reductions before 1996, such reductions
may be creditable toward the 15 percent VOC emissions reduction
requirements. The effects of the clean fuel fleet program on
future emissions are presently not modeled in MOBILESa.
The EPA promulgated a final rule entitled, "Clean Fuel Fleet
Credit Programs, Transportation Control Measure Exemptions and
Related Provisions," (58 FR 11888, March 1, 1993). In addition,
a notice of proposed rulemaking on conversion standards is
expected to be released in early summer of 1993.
5.6 Inspection and Maintenance (I/M) Program
Final regulations establishing minimum performance standards
for I/M programs were published on November 5, 1992 in the
Federal Register. (See reference 14.) Marginal ozone
nonattainment areas with current or previously required I/M
programs are required to submit SIP revisions necessary to meet
EPA's basic I/M program standards. Moderate ozone nonattainment
areas must implement a basic I/M program regardless of whether an
I/M program was previously required. For areas classified as
serious and above with a 1980 population of 200,000 or more, an
enhanced I/M program must be implemented. The enhanced I/M
program must meet higher performance standards than the basic I/M
program. Guidance on the costs and benefits of enhanced I/M
programs has been released by EPA in draft form. (See
reference 15.)
Corrections to existing I/M programs are necessary if the
area's I/M program fails to meet the more stringent of: EPA's
performance standard, or the standards of the nonattainment
area's current SIP. Emissions reductions achieved as a result of
corrections to deficiencies in existing I/M programs will not be
creditable toward the 15 percent VOC emissions reduction
requirements. However, any emissions reductions resulting from
additional I/M program requirements of the Act (such as enhanced
I/M), or any improvements not mandated by the Act that a State
chooses to make in its SIP are creditable toward the 15 percent
VOC emissions reduction requirements.
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5.7 On-Board Diagnostic Systems
The EPA has promulgated regulations that will require on-
board diagnostic systems in all light-duty vehicles and light-
duty trucks beginning in model year 1994. These systems monitor
emission-related components for malfunctions or deterioration
before such events cause emissions increases. The final rule,
published February 19, 1993, (see reference 16), discusses EPA's
regulatory approach. Because on-board diagnostic systems are
considered part of a State's I/M program, emissions reductions
resulting from the use of these systems will be accounted for
when modeling the nonattainment area's I/M program in MOBILESa.
These reductions are therefore creditable toward the 15 percent
VOC emissions reduction requirements.
5.8 Transportation Control Measures (TCM's)
Transportation control measures are strategies to both
reduce vehicle miles travelled (VMT), and decrease the amount of
emissions per VMT. According to the Act, TCM's have been
identified as .an essential element of control strategies for many
nonattainment areas. A listing of some of the possible measures
to be implemented is found in section 108(f) of the Act. These
measures describe strategies to reduce vehicle trips, induce
changes in the type of vehicles used, shift travel time, and/or
improve traffic flow.
When a TCM results in a measurable decrease in VMT, the
emissions reductions that result from the reduced VMT can be
calculated by multiplying this lower VMT value by the MOBILESa
emissions factor. The TCM's may also affect other components
that are factored into the MOBILESa model. Further guidance by
EPA is forthcoming describing the methods to quantify the
emissions reductions achieved as a result of TCM's.
Emissions reductions resulting from TCM's are creditable if
the TCM is not already federally mandated (e.g., the employee
trip reduction program required under section 182(d)(l)(B) for
severe and extreme ozone nonattainment areas), or is not part of
an already existing SIP. As with all other emissions reductions,
emissions reductions associated with TCM's are only creditable to
the 15 percent rate-of-progress plan if they are quantifiable,
real, enforceable, replicable, accountable, and occur by
November 15, 1996.
Two EPA documents provide guidance on identifying,
evaluating, implementing, monitoring and enforcing TCM's:
Transportation Control Measures; State Implementation Plan
Guidance, (see reference 17), and Transportation Control Measure
Information Documents. (See reference 18.)
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6.0 RELATIONSHIP BETWEEN THE 1993 ATTAINMENT DEMONSTRATION PLAN
AND NOX REQUIREMENTS
Nitrogen oxide emissions reductions occurring in the period
1990-1996 may not be substituted for VOC emissions reductions for
the rate-of-progress requirements. However, section 182(b)(l)(A)
of the Act stipulates that the revised SIP "shall provide for
such specific annual reductions in emissions of volatile organic
compounds and oxides of nitrogen as necessary to attain the
national primary ambient air quality standard for ozone by the
attainment date applicable under this Act." (Additionally, CO
emissions reductions can also be usjed to facilitate attainment of
the ozone NAAQS.) The purpose of this section is to address the
use of NOX emissions reduction requirements as an option
available to States for achieving attainment of the ozone NAAQS.
Section 407(b) of the Act (under the Acid Rain provisions)
includes NOX emissions limits for coal-fired boilers. The
schedule for issuing regulations that establish the emissions
limitations are as follows:
May 15, 1992: tangentially fired boilers and dry
bottom wall-fired boilers.
January 1, 1997: wet bottom wall-fired boilers,
cyclones, units applying cell burner technology,
and all other types of utility boilers.
The maximum allowable emissions rates for tangentially fired
boilers and dry bottom wall-fired boilers were established by the
Act as 0.45 pounds per million British thermal units (Ib/MMBtu)
and 0.50 Ib/MMBtu, respectively,. The maximum allowable emissions
rates for the remaining boilers will be based on the degree of
reduction achievable through the retrofit application of the best
system of continuous emissions reduction.
As indicated previously, section 182(b)(l)(A) allows NOX
reductions to be used in conjunction with VOC emissions
reductions only for purposes of attaining the ozone NAAQS, not
for meeting the 15 percent rate-of-progress requirement. This is
particularly important for moderate areas, which must attain the
ozone NAAQS by November 15, 1996. Moderate areas proposing to
use NOX reductions to achieve ozone attainment must establish in
their attainment demonstration-with the use of a model-that such
reductions will result in attainment. Intrastate moderate areas
will generally utilize the Empirical Kinetic Modeling Approach
(EKMA) model for the modeling demonstrations; however, moderate
areas may choose to use the UAM. Attainment demonstrations for
moderate areas are due by November 15, 1993,-unless a
photochemical grid model (such as UAM) is employed, in which case
the attainment demonstration is due by November 15, 1994.
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In accordance with section 182(c)(2)(C), substitution of NOX
emissions reductions for VOC reductions is allowable in serious
and above areas for the post-1996 VOC emissions reduction
requirements. Further details regarding NOX substitution will be
addressed in the forthcoming guidance for preparing the post-1996
rate-of-progress plan. States are required to present their NOX
emissions inventories along with their VOC emissions inventories
in their rate-of-progress plan submittals (e.g., base year
inventory, periodic inventories, modeling inventories). Readers
interested in further details regarding the Title I NOX
requirements are referred to the NOX supplement to the General
Preamble. (See reference 19.) The EPA anticipates releasing
guidance on the substitution of NOX for VOC emissions reductions
in the fall of 1993.
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7.0 RELATIONSHIP BETWEEN THE 15 PERCENT VOC EMISSIONS REDUCTION
REQUIREMENTS AND ECONOMIC INCENTIVE PROGRAMS
7.1 Background
Section 182(g)(4)(B) of the Act requires EPA to promulgate
rules for EIP's. A State with an extreme ozone nonattainment
area must submit an EIP if it fails to submit a milestone
compliance demonstration or fails to meet an applicable rate-of-
progress milestone. Such programs are also identified as an
explicit option upon such failures in serious and severe ozone
nonattainment areas. Additionally, the Act explicitly allows the
use of EIP's in the general SIP requirements [section 110(a)(2)],
the general provisions for nonattainment area SIP's [section
172(c)(6)], and in the system of regulations for controlling
emissions from consumer or commercial products [section
183(e)(4)].
On February 23, 1993, EPA proposed a rule for implementing
EIP's (58 FR 11110). The purpose of this section is to discuss
the proposed EIP rule, and to address the creditability of
emissions reductions under EIP's toward the 15 percent VOC
emissions reduction requirements, net of growth, and toward
attainment demonstrations. The proposed EIP rule serves as
interim guidance for both mandated (statutory)'and discretionary
EIP's and addresses some of the general issues associated with
the design and implementation of EIP's. The following discussion
of the proposed rule reflects EPA's interim guidance for EIP's.
The final EIP rule, when promulgated, may differ from this
discussion.
Economic incentive programs are intended to result in the
timely reduction of emissions through the development and
implementation of methods less costly than traditional command-
and-control methods for meeting air pollution goals. The
following three broad types of programs were highlighted in the
Act and discussed in the proposed rule:
Marketable permits or marketable emissions limits -
emissions sources may achieve their permitted emissions
limits either directly or by purchasing emissions
credits from other sources.
Emissions fees - emissions sources have a direct
economic incentive to reduce emissions to the point
where the cost of abating emissions equals the
emissions fees.
Mobile source programs - programs to reduce vehicle
emissions or VMT, including TCM's.
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The Act does not limit EIP's to these three general
categories. Other programs could potentially include public
awareness campaigns, capital grants for technological innovation
or implementation, information programs that encourage consumers
to purchase less polluting products, credit for early reductions,
and adjustments in building codes or zoning ordinances. A
combination of EIP's may enhance the ability of the general
program to reduce emissions on schedule, while reducing the costs
of emissions reductions on individual sources.
The EPA's proposed rule is intended to ensure that EIP's
will result in real and quantifiable emissions reductions, and
that such reductions will be surplus to reductions required by,
and credited to, other SIP provisions to avoid double-counting of
emissions reductions. Additionally, the rules are intended to
provide that such programs contain adequate and appropriate
compliance requirements to ensure that programs are enforceable
and that reductions are permanent. The rules are not intended to
limit the flexibility and innovation of such programs.
The EPA's proposed rule classifies economic incentive
strategies, into"three broad regulatory categories: emissions
limiting, market response, and directionally sound. These
categories, which are discussed in more detail in the following
paragraphs, are based on whether a quantifiable emissions-related
requirement is directly specified as an integral element of the
program, or whether the program depends upon marketplace
decisions, made in response to a programmatic incentive, to
produce the intended emissions-related objective of the program.
Further, the categorization is a function of whether or not the
results of the program are quantifiable.
Emissions limiting strategies directly specify the total
amount of emissions that may be produced by the affected sources,
the. limit on emissions-related parameters such as emissions per
unit of production, or a specified amount of emissions reduction
that must be achieved by affected sources. A marketable
emissions allowance program with aggregate total emissions
limitations is an example of such a program. If every affected
sour.ce in such a program complies with its emissions limit (net
of any traded emissions credits), the program will necessarily
achieve the specified emissions requirement. Emissions limiting
strategies are generally creditable toward the 15 percent rate-
of-progress requirement provided other conditions specified
elsewhere are met.
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Market response strategies create one or more economic
incentives for an affected source to reduce emissions, without
directly specifying a required emissions-related target for
individual sources or for all sources in the aggregate. An
emissions fee program is an example of a market response
strategy. In such a program, each source must pay a fee on each
unit of actual emissions. The response to the incentive, in
terms of actions which affect emissions levels, will be
determined by each source. Thus, each source has flexibility in
determining its level of emissions, but must not exceed any
limitation imposed by other regulatory requirements. In
developing such a program, a State must project the aggregate
response to the incentive, and subsequently compare the projected
emissions with the actual emissions from affected sources.
Inherent in programs based on market response strategies is
the consequence that actual emissions from affected sources may
differ from the projected level even if every affected source is
in full compliance with the EIP requirements. Thus, programs
using a market response strategy must contain reconciliation
procedures that compare projected emissions with actual
emissions. Any shortfall identified by the reconciliation
procedure must be made up through a revision of certain
parameters of the EIP (e.g., increase the fee or include more
sources), or by invoking part of the general SIP contingency plan
or a program-specific contingency. Market response strategies
may be used in some instances to provide credit toward the 15
percent rate-of-progress requirements. The next section contains
additional discussions on the creditability of market response
strategies.
Directionally sound strategies do not yield quantifiable
emissions reductions creditable toward the emissions reductions
required to meet rate-of-progress requirements or for attainment
demonstrations. A public awareness campaign is an example of a
directionally sound strategy. Such strategies may be included in
an area's attainment plan, without credit, or in a maintenance
plan if the approach contributed to the area achieving
attainment. Emissions reductions from such programs are not
creditable because the program lacks one or more of the basic
program elements, such as an emissions baseline or adequate
quantification procedures. However, a State may want to pursue
such a strategy as a part of its overall program to attain and
maintain the NAAQS.
7.2 Creditability in SIP's
The creditability of emissions reductions obtained under
EIP's toward the 15 percent VOC emissions reduction requirements,
net of growth, and attainment demonstrations is a critical issue
for States considering the implementation of such a program. The
SIP credit given for traditional source-specific technology or
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performance standards is based on detailed evaluations of the
emissions reductions that will be achieved by complying sources.
A factor is then used to account for the lower reductions that
will result from an anticipated level of less-than-complete
compliance, such as through the use of a rule effectiveness
factor for stationary sources. Creditability of rule
effectiveness improvements is discussed in sections 5.5 and 5.6
of the document entitled Guidance for Growth Factors.
Projections, and Control Strategies for the 15 Percent Rate-of-
Progress Plans. (See reference 20.) However, for market
response strategies it is inherently not possible to specify,
prior to the implementation of such a strategy, the exact
emissions reductions that will be achieved even if all sources
comply with all relevant requirements of the program.
In its proposed rule for EIP's, EPA addresses the components
that must be included in an EIP if the emissions reductions
projected by a State are to be given credit in a SIP. In order
for projected emissions reductions from EIP's to be creditable in
a SIP, the emissions reductions must be quantifiable (i.e.,
credible, workable, and replicable); consistent with the SIP
rate-of-progress and attainment requirements; surplus to
reductions required by the current SIP requirements, the
attainment demonstration, or any milestone demonstration;
enforceable *at the State and Federal levels; and permanent.
These requirements for creditability are the same as for any
emissions reduction for which a State seeks credit. In addition
to these requirements for creditability, there are also
requirements that are specific to emissions reductions from
EIP's.
If a State is to receive credit for projected emissions
reductions from an EIP program, the State must address the
uncertainties in the projected emissions reductions from its
EIP's. In order to do this, the State must specify, for each of
its EIP's, the following elements: program uncertainty factor;
rule compliance factor; program audit provisions; and, for
market-response EIP's, reconciliation procedures.
*
The rule compliance factor is intended to discount the
amount of emissions reductions credited in an implementation plan
demonstration to account for less-than-complete compliance by the
affected sources in an EIP.9 The program uncertainty factor is
intended to discount the amount of emissions reductions credited
in an implementation plan demonstration to account for any
strategy-specific uncertainties in an EIP. The EPA intends for
these factors to address the issues of less-than-complete
9The rule compliance factor is analogous to the rule
effectiveness factor for stationary sources equipped with control
devices.
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compliance and the inherent uncertainties in future market
response, respectively. Credit would, in certain cases, be taken
at the beginning of an approved EIP, with the level of credit
based on emissions reduction projections which incorporate these
two discounting factors. In the proposed rule on EIP's, States
would be required to develop and submit a justification for the
values of these two discounting factors.
Program audit provisions are used to track actual emissions
reductions from an EIP. If a State uses a market-response EIP,
the program audit provisions must be accompanied by
reconciliation procedures to compare the projected emissions
reductions (which are credited emissions reductions in the SIP)
with the actual emissions reductions. Additionally, market-
response EIP's must have contingency measures developed to make
up for any shortfall between projected and actual emissions
reductions. These measures must be automatically executed if
there is an emissions shortfall; the State may choose a specific
measure(s) from the contingency measures in the EIP, but the
measure must be able to go into effect without further action
from the State. In the proposed rule on EIP's, EPA suggests that
program audits and reconciliations be made at time intervals
consistent with the rate-of-progress milestones and emissions
inventory requirements, which are generally every 3 years.
States should consult with the appropriate EPA Regional
Office concerning the creditability of emissions reductions from
EIP's toward the emissions reductions required for the rate-of-
progress requirements and the attainment demonstration.
Reductions from EIP's must of course occur before the rate-of-
progress milestone date to be creditable toward the 15 percent
VOC emissions reduction requirements, net of growth.
7.3 Baseline Emissions in EIP's
Economic incentive programs incorporated in a SIP pursuant
to section 182(g)(4) are designed to produce emissions
reductions. In most cases, a State will want to credit that part
of the emissions reductions not consumed by minor source growth
(including minor sources increasing to major source size) toward
the rate-of-progress plan requirements, or attainment
demonstration, or both. Emissions reductions from EIP's
creditable for either the rate-of-progress plan requirements and
attainment demonstration must be fully consistent with the
requirements specified by the Act and the EIP rule.
Many types of EIP's require an emissions level as a starting
point for the program. The total emissions level used as a
starting point in an EIP is referred to as the EIP baseline. For
instance, a marketable allowance program with an emissions cap
must initially allocate some level of allowable emissions to
affected sources. After the program begins, affected sources may
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adjust their emissions cap by buying or selling emissions
allowances from other sources. All affected sources must
periodically demonstrate that they are in compliance with their
emissions cap, as adjusted by trading.
The proposed rule on EIP's would allow States flexibility in
determining baseline emissions. The baseline, however, must be
specified within the EIP as it is used as the basis for
initializing the EIP incentive mechanism and projecting program
results. Under certain circumstances, a State may choose to
establish an EIP baseline different than actual 1990 emissions.
In such cases, an EIP baseline may be established as a function
of actual emissions, allowable emissions, a combination of actual
and allowable emissions, or some other basis. A State may want
to-establish the EIP baseline based on a consideration of equity,
economic conditions, or political viability. However, it should
be noted that the State must use the 1990 actual base year
inventory as the baseline for the State's rate-of-progress plan.
This issue is discussed in the guidance document entitled
Guidance on the Adjusted Base Year Emissions Inventory and the
1996 Target for the 15 Percent Rate-of-Progress Plans. (See
reference 21.)
The only emissions reductions that will be creditable toward
the 15 percent rate-of-progress requirements or attainment
demonstration are those fully consistent with the applicable EPA
policy on the demonstrations. If a State uses an EIP baseline
different than the baseline used in its 15 percent rate-of-
progress plan, the State must establish the relationship between
emissions reductions from the EIP and emissions reductions
creditable in its plan. For example, a State may decide to
require a 15 percent reduction, net of growth, in actual
emissions (measured against a 1990 actual emissions baseline)
from a group of sources over the next five years. Alternatively,
the State could choose to implement a marketable allowance
program using an allowable emissions baseline. After
initializing each source's emissions limit at 1990 allowable
emissions, the State could require a 40 percent reduction, for
example, in the emissions cap between 1990 and 1996. In order
for the State to receive a 15 percent reduction creditable toward
the rate-of-progress plan, the State would need to demonstrate
that a 40 percent reduction in allowable emissions for a group of
sources would result in a 15 percent reduction in actual
emissions for those sources.
7.4 Quantification of Emissions
Economic incentive programs require the development and use
of accurate, reliable, and replicable methods to quantify
emissions, including baseline emissions. Such methods should
include:
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Specification of quantification methods.
Specification of averaging times.
Accounting for shutdowns and production curtailments.
Accounting for batch, seasonal, and cyclical
operations.
Determining emissions contribution for periods for
which monitoring data were not gathered, or data are
otherwise missing or have been demonstrated to be
inaccurate.
Accounting for travel mode choice options for TCM's.
The selected approach to emissions quantification should be
the most effective for a particular source type. Potential
approaches include direct measurement of emissions, either
continuously or periodically; equations which are a function of
process or control system parameters, ambient conditions,
activity levels, and throughput or production rates; mass balance
calculations which are a function of inventory, usage, or
disposal records; EPA-approved emissions factors; or any
combination of such approaches. The proposed EIP rule does not
require the use of any particular quantification approach, but
cautions that if emissions reduction credits are to be taken, the
method for quantifying emissions must yield results which can be
shown to have a level of certainty comparable to that for source-
specific standards and traditional methods of control strategy
development.
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8.0 RELATIONSHIP BETWEEN THE 15 PERCENT VOC EMISSIONS REDUCTION
REQUIREMENTS AND TITLE V (OPERATING PERMITS)
Title V of the Act requires States to develop and submit
operating permit programs by November 15, 1993, to EPA for
approval. Sources subject to the program must submit permit
applications within 1 year of EPA's approval of the State program
or, where the State program is not approved, within 1 year of
EPA's promulgation of a permit program. The operating permit
program should more efficiently implement the Act, providing
improved enforcement and enhanced State air program resources.
The operating permit program is designed to streamline
regulation of permitted sources by incorporating the various Act
requirements (including preconstruction permit requirements) to
which a source is subject into a single document. The program
will eventually apply to the following sources, however,
initially only major sources are covered:
Major stationary sources, as defined in Table 1 of this
document.
Any other source, including an area source, subject to
a HAP standard or regulation under section 112.
Any source subject to an NSPS under section 111.
Affected sources under the acid rain provisions of
Title IV.
Any source required to have a preconstruction review
permit pursuant to the requirements of the PSD program
under Title I, Part C, or the NSR program under
Title I, Part D.
Any other stationary source in a category EPA
designates in whole or in part by regulation, after
notice and comment.
Additionally, the operating permit program may be used to
facilitate the use of market-based incentives for emissions
reductions. Consequently, the operating permit program may be
the primary implementing mechanism of EIP's, discussed in Section
7.0 of this document.
Key concepts of the operating permit program should be
understood for States to effectively integrate permit programs
into emissions reduction requirements such as the 15 percent
rate-of-progress requirement. These concepts include:
Operating permits must contain SIP requirements and
reflect terms of preconstruction permits.
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Operating permits must ensure continued compliance by
the source with all applicable requirements of the Act,
which include all SIP requirements and permit limits
necessary to meet a rate-of-progress requirement;
however, meeting the NAAQS is not an applicable
requirement except for "temporary" sources.
States may implement a more extensive operating permit
program than required to comply with the Act's
requirements or schedules.
The EPA must implement a Federal operating permit
program in the event a State fails to satisfactorily
develop or implement its program.
The SIP will continue to be the mechanism for
demonstrating attainment and maintenance of the NAAQS,
and for demonstrating achievement of emissions
reductions.
Thus, States may rely on their regulatory program alone in
their rate-of-progress plan to demonstrate that sufficient
emissions reductions will occur to meet the 15 percent emissions
reduction requirement. That regulatory program will ultimately
be implemented through the permit program at least for sources
for which permits are required. Emissions controls that are not
in a regulatory program but contained in a permit alone will not
be creditable toward the 15 percent rate-of-progress requirement
unless the permit itself is submitted as part of the SIP. Of
course, the emissions reduction must occur prior to November 15,
1996 to be creditable toward the 15 percent emissions reduction
requirements.
Readers interested in further details of the operating
permit program are advised to refer to the final Title V
regulations, published July 21, 1992 in the Federal Register.
(See reference 22.)
8.1 Satisfying SIP Principles with Operating Permits
As stated above, the SIP continues to be the mechanism for
demonstrating the attainment of the NAAQS, maintenance of the
NAAQS once attainment occurs, and prescribed rates of progress.
The SIP, and any implementing instruments, including permits,
must adhere to principles discussed in the Title I General
Preamble. (See reference 23.) These principles are:
quantifiability, enforceability, replicability, and
accountability. These four principles must be adhered to for any
emissions reduction to be creditable toward the 15 percent VOC
emissions reduction requirements.
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State implementation plans generally contain enforceable
emissions limits, recordkeeping, reporting, and testing
requirements adequate to satisfy these principles. The four
principles could be fulfilled by a combination of the SIP and
operating permits. For example, operating permits could satisfy
the principle of quantifiability because they are well suited to
contain source-specific recordkeeping and reporting requirements
and most source-specific measuring and monitoring requirements
(e.g., the permit may specify a test method where one is not
referenced in the SIP). The principle of enforceability and
accountability could be satisfied by stipulating source-specific
emissions limitations and control techniques in the operating
permit. Future permits may be able to satisfy the principle of
replicability, if they implement a replicable procedure by which
a permit requirement is revised. This procedure would have been
approved previously in the SIP.
8.2 Areas Requiring Emissions Reductions Less Than 15 Percent
Section 182(b)(1)(A)(ii) allows moderate, serious, and
severe ozone nonattainment areas to reduce VOC emissions by less
than 15 percent if the following conditions are met. First, the
State must demonstrate that the area has a NSR program equivalent
to the requirement in extreme areas [section 182(e)], except that
a "major source" must include any source that emits, or has the
potential to emit, 5 tpy of VOC. All major sources (down to
those with emissions of 5 tpy of VOC or greater) in the area must
be required to have RACT-level controls. The plan must also
include all measures that can be feasibly implemented in the
area, in light of technological achievability. To qualify for
the lesser percentage, the State must demonstrate that the SIP
includes all measures (both stationary and mobile) that are
achieved in practice by sources in the same source category in
nonattainment areas of the next higher classification.
If a moderate or above ozone nonattainment area chooses to
meet the requirements of section 182(b)(1)(A)(ii) to get a
"waiver" of the 15 percent provision, EPA interprets Title V to
require operating permits for all VOC sources in that area that
are considered major under this new definition of major source
(i.e., new and existing sources that emit or have the potential
to emit 5 tpy of VOC). This is because the definition of "major
source" in Title V expressly refers to "major stationary source"
as defined in Part D of Title I. Since, under the waiver
provision of section 182(b)(1)(A)(ii), "major stationary source"
would be defined as having the potential to emit 5 tons per year
for the purposes of Title I, this would become the definition of
major source for the purposes of Title V.
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REFERENCES
1. 51 FR 43814. "Emissions Trading Policy Statement; General
Principles for Creation, Banking and Use of Emission
Reduction Credits." December 4, 1986.
2. 57 FR 13498. "General Preamble, Implementation of Title I,
Clean Air Act Amendments of 1990." April 16, 1992.
3. New Source Review Workshop Manual, Prevention of Significant
Deterioration and Nonattainment Area Permitting. U.S.
Environmental Protection Agency, Office 'of Air Quality
Planning and Standards. Draft. October 1990.
4. 57 FR 55620. "State Implementation Plans; Nitrogen Oxides
Supplement to the General Preamble for the Implementation of
Title I of the Clean Air Act Amendments of 1990."
November- 25, 1992.
5. "Early Reductions Program/Title I Interface," Memorandum
from John S. Seitz, U.S. Environmental Protection Agency,
Office of Air Quality Planning and Standards, December 20,
1991.
6. 57 FR 61970. "National Emission Standards for Hazardous Air
Pollutants; Compliance Extensions for Early Reductions."
December 29, 1992.
7. 56 FR 25724. "Control of Air Pollution From New Motor
Vehicles and New Motor Vehicle Engines: Gaseous and
Particulate Emission Regulations for 1994 and Later Model
Year Light-Duty Vehicles and Light-Duty Trucks; Final Rule."
June 5, 1991.
8. 55 FR 23666. "Volatility Regulations for Gasoline and
Alcohol Blends Sold in Calendar Years 1992 and Beyond."
June 11, 1990.
9. 56 FR 64704. "Regulation of Fuels and Fuel Additives:
Standards for Gasoline Volatility." December 12,-1991.
10. Enforcement of Volatility Regulations Questions and
Answers. U.S. Environmental Protection Agency, Field
Operations and Support Division of the Office of Mobile
Sources, Ann Arbor, MI. May 1992.
11. 57 FR 13416. "Regulation of Fuels and Fuel Additives;
Standards for Reformulated and Conventional Gasoline."
April 16, 1992.
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12. Technical Guidance - Stage II Vapor Recovery Systems for
Control of Vehicle Refueling Emissions at Gasoline
Dispensing Facilities. U.S. Environmental Protection Agency,
Office of Air Quality Planning and Standards, Research
Triangle Park, NC. 450/3-91-022a. 1991.
13. Enforcement Guidance for Stage II Vehicle Refueling Control
Programsf U.S. Environmental Protection Agency, Office of
Mobile Sources, Ann Arbor, MI. October 1991.
14. 57 FR 52950. "Inspection and Maintenance Program
Requirements." November 5, 1992.
15. I/M Costs, Benefits. Impacts and Analysis. U.S.
Environmental Protection Agency, Office of Mobile Sources,
Ann Arbor, MI. Draft. February 1992.
16. 58 FR 9468. "Control of Air Pollution from New Motor
Vehicles and New Motor Vehicle Engines; Regulations
Requiring On-Board Diagnostic Systems on 1994 and Later
Model Year Light-Duty Vehicles and Light-Duty Trucks."
February 19, 1993.
17. Transportation Control Measures: State Implementation Plan
Guidance. U.S. Environmental Protection Agency, Office of
Air Quality Planning and Standards, Research Triangle Park,
NC. September 1990.
18. Transportation Control Measure Information Documents. U.S.
Environmental Protection Agency, Office of Mobile Sources,
Ann Arbor, MI. March 1992.
19. Reference 4.
20. Guidance for Growth Factors. Projections, and Control
Strategies for the 15 Percent Rate-Of-Progress Plans.* EPA-
452/R-93-002, U.S. Environmental Protection Agency, Office
of Air Quality and Planning Standards, Research Triangle
Park, NC. March 1992.
21. Guidance on the Adjusted Base Year Emissions Inventory and
the 1996 Target for the 15 Percent Rate-of-Progress Plan.
EPA-452/R-92-005, U.S. Environmental Protection Agency,
Office of Air Quality and Planning Standards, Research
Triangle Park, NC. October 1992.
22. 57 FR 32250. "State Operating Permit Program; Final Rules."
July 21, 1992.
23. Reference 2.
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APPENDIX A
DEFINITION OF TERMS
This appendix provides the specific definitions of EPA terms
as they are used in this guidance. Different EPA programs
sometimes use different definitions of the same term (e.g., major
source). This appendix notes where conflicts occur in the
definition of a term used in this guidance. These definitions
are presented for the purposes of this guidance document only;
the reader is advised to refer to specific regulations, policies,
and sections of the Act to obtain complete definitions for the
program or title of interest.
Allowable Emissions The emissions from a source based on either
the maximum rated capacity of the source (unless the source is
subject to a federally enforceable permit which restricts the
operating rate, or hours of operation, or both) and the
applicable emissions standards, or federally enforceable
emissions limit.
Area Source Any stationary and nonroad sources that are too
small and/or too numerous to be included in the stationary point
source emissions inventories. For the purposes of section 112 of
the Act, any stationary source of HAP's that is not a major
source.
Attainment Demonstration Moderate and above ozone nonattainment
areas must demonstrate that the reductions specified in the
revised SIP will result in modeled air quality for the
nonattainment area that achieves attainment by the applicable
attainment date. This requirement can be met through the
application of an EPA-approved model and EPA-approved modeling
techniques described in the current version of the Guidance on
'Air Quality Models.9 which is currently under revision. Two
models are suggested: the UAM or EKMA. The EPA requires the
submittal of attainment demonstrations employing UAM for serious
and above areas and multi-State moderate areas as part of the SIP
revision due by November 15, 1994. Attainment demonstrations
based on EKMA for moderate nonattainment areas within a single
State (intrastate moderate areas) must be submitted as part of
the SIP revision due by November 15, 1993, unless the State
chooses to use UAM, in which case the demonstration must be
submitted as part of the SIP revision due by November 15, 1994.
9Guidance on Ai-r Quality Models (Revised) , EPA-450/2-78-027R,
July 1986 (currently under revision).
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The use of EKMA is described in Guideline for Use of City-
Specific EKMA in Preparing Ozone SIP's.10 as well as the
aforementioned guideline that is under revision. This document,
and the appropriate Regional Office, should be consulted before
an analysis is conducted with this modeling approach. The use of
UAM is described in Guideline for Regulatory Application of the
Urban Airshed Model.11
Attainment Determination The EPA must determine within 6 months
after the applicable attainment date whether an area has attained
the NAAQS for ozone. The attainment dates are as follows:
Marginal areas November 15, 1993.
Moderate areas November 15, 1996.
Serious areas November 15, 1999.
Severe areas November 15, 2005 (severe areas
with a 1986-1988 ozone design value
of 0.190 up to, but not including
0.280 parts per million have until
November 15, 2007).
Extreme areas November 15, 2010.
In making the attainment determination, EPA will use the most
recently available, quality-assured air quality data covering the
3-year period preceding the attainment date. For ozone, the
average number of exceedances per year after adjustment for
missing data are used to determine whether the area has attained.
Basic Inspection and Maintenance (I/M) Programs requiring the
inspection of vehicles including, but not limited to, measurement
of tailpipe emissions, and mandating that vehicles with tailpipe
emissions higher than the program outpoints be repaired to pass a
tailpipe emissions retest. Basic I/M programs must be at least
as stringent as the requirements set out in section 182(a)(2)(B).
Directionally Sound Strategy An economic incentive strategy that
does not specify a program baseline, nor adequate procedures to
quantify emissions reductions.
10Guideline for Use of City-Specific EKMA in Preparing Ozone
SIP's. EPA-450/4-80-027, U.s. Environmental Protection Agency.
1980.
"Guideline for Regulatory Application of the Urban Airshed Modelf
EPA-450/4-91-013, U.S. Environmental Protection Agency, Office of
Air Quality Planning and Standards, Research Triangle Park, NC.
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Economic Incentive Program Allocated Baseline The initial level
of emissions for sources affected by an EIP. The emissions
reduction effect of the EIP's incentive strategy is measured from
the EIP baseline. The EIP baseline year may be different than
the 1990 base year inventory required under Title I. Further,
the EIP baseline may be based on actual emissions, allowable
emissions, a combination of actual and allowable emissions, or
some other alternative.
Emissions Limiting strategy An economic incentive strategy that
directly specifies limits on total mass emissions, emission-
related parameters (e.g., emission rates per unit of production,
product content limits), or levels of emissions reductions
relative to a program baseline that are required to be met by
affected sources, while providing flexibility to sources to
reduce the cost of meeting program requirements.
Enhanced Inspection and Maintenance fl/M) A program including,
at a minimum, computerized emissions analyzers, on-road testing,
denial of waivers for warranted vehicles or repairs related to
tampering, a $450 cost waiver requirement for emissions-related
repairs not covered by warranty, and inspection of the emissions
control diagnostic system (when required by EPA). In addition,
enforcement through registration denial, annual inspections, and
centralized testing are required, unless less stringent measures
can be proven fully effective by the State (or in the case of
enforcement, more effective).
Housing and Urban Development (HUD) Zones A portion of a
nonattainment area targeted for economic growth by the
Administrator, in consultation with the Secretary of HUD.
Growth allowances are restricted to HUD- zones under the Act.
Incidental Emissions Reductions Reductions in the emissions of a
pollutant caused by the mandatory reduction in the emissions of
another pollutant.
Manor Modification The Act has multiple definitions for major
modifications depending on the nonattainment classification and
the pollutant. Major modification thresholds are listed in
Table 2 for both VOC and NOX sources. The term major
modification is used to determine whether the modification of an
existing facility is subject to NSR requirements.
Maior Stationary Source The Act has multiple definitions for
major stationary sources depending upon the nonattainment
classification and the pollutant. Section 302 of the Act defines
a major stationary source as one that directly emits, or has the
potential to emit, 100 tpy or more of any air pollutant. As
exceptions to this rule, major stationary source emissions
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thresholds, as defined in Part D of Title I of the Act, are
listed in Table 1 for both VOC and NOX sources.
Milestone Compliance Demonstration For serious and above
classified nonattainment areas, demonstrating achievement of the
15 percent VOC emissions reduction over the 1990-1996 period, or
demonstrating subsequent 3 percent VOC emissions reductions per
year averaged over each consecutive 3-year period from November
15, 1996 until the attainment date. Section 182(g)(2) requires
that within 90 days of the date on which an applicable milestone
occurs (not including an attainment date on which a milestone
occurs in cases where the standard has been attained), States
with nonattainment areas must submit a demonstration that the
milestone has been met (e.g., the 15 percent VOC emissions
reduction is demonstrated by February 13, 1997). The EPA expects
to release regulations pertaining to the requirements of the
milestone demonstration in the Summer of 1993.
Market Response Strategy An economic incentive strategy that
creates one or more incentives for affected sources to reduce
emissions, without directly specifying limits on emissions or
emission-related parameters that individual sources or even all
sources in the aggregate are required to meet.
Modificatipn With respect to section 112 of the Act, any
physical change in, or change in the method of operation of, a
major source which increases the actual emissions of any HAP
emitted by such source by more than a de minimis amount or which
results in the emissions of any HAP not previously emitted by
more than a de minimis amount.
Netting The procedure of determining the net emissions increase
associated with a modification combined with certain previous and
prospective emissions changes at an existing major stationary
source, if an existing major stationary source proposes a
modification that will result in a significant net emissions
increase, it will be subject to all applicab-le NSR requirements.
Netting must take place at the same stationary source; emissions
reductions used in netting cannot be traded between stationary
sources.
1990 Adjusted Base Year Inventory Section 182(b)(l)(B) and (D)
describes the inventory (hereafter referred to as the adjusted
base year inventory) from which moderate and above ozone
nonattainment areas must achieve a 15 percent reduction in VOC
emissions by 1996. This inventory is equal to "the total amount
of actual VOC or NOX emissions from all anthropogenic (man-made)
sources in the area during the calendar year of enactment,"
excluding the emissions that would be eliminated by FMVCP
regulations promulgated by January 1, 1990, and RVP regulations
(55 FR 23666, June il, 1990), which require specific maximum RVP
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levels for gasoline in particular nonattainment areas during the
peak ozone season. The 1990 rate-of-progress base year inventory
(defined below) removes biogenic emissions and emissions from
sources listed in the base year inventory that are located
outside of the nonattainment area. The adjusted base year
inventory removes the emissions reductions from the FMVCP and RVP
program from the 1990 rate-of-progress base year inventory. The
adjusted base year inventory, which is due by November 15, 1992,
is used to calculate the required 15 percent reductions.
Adjusted Base Year Emissions Inventory = Base Year Emissions
Inventory/ minus the following:
Biogenic source emissions.
Emissions from sources outside of the nonattainment
area boundary.
Emissions reductions from the FMVCP.
Emissions reductions from the RVP rules.
1990 Base Year Inventory The 1990 base year inventory is an
inventory of actual annual and typical weekday peak'ozone season
emissions that States use in calculating their adjusted and
projected inventories, and in developing their control strategy.
The base year inventory comprises emissions for the area during
the peak ozone season, which is generally the summer months. It
includes anthropogenic sources of NOX and CO emissions, and both
anthropogenic and biogenic sources of VOC emissions. Also
included in the inventory are emissions from all stationary point
sources and area sources as well as highway and nonroad mobile
sources located within the nonattainment area, and stationary
sources with emissions of 100 tpy or greater of VOC, NOX/ and CO
emissions within a 25-mile wide buffer zone of the designated
nonattainment area. The base year inventory contains off-shore
sources located within the nonattainment area boundaries and off-
shore stationary sources with emissions of 100 tpy or greater of
VOC, NOX/ or CO emissions within the 25-mile wide buffer area.
For nonattainment areas that will perform photochemical grid
modeling (e.g., serious and above areas and multi-State moderate
areas), emissions for the entire modeling domain, which is
usually larger than the nonattainment area because ozone is an
area-wide problem, are required in the modeling inventory. This
modeling inventory could be submitted with the base year
inventory, or the modeling inventory submittal could be in a
separate package. It is important to note that the 1990 base
year inventory serves as the starting point for all other
inventories.
1990 Rate-of-Progress Base Year Inventory An accounting of all
anthropogenic VOC, CO, and NOX emissions in the nonattainment
area. This emissions inventory is calculated by removing
bidgenic emissions and the emissions from sources that are
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located outside of the nonattainment area from the base year
inventory. This inventory is used in developing the adjusted
base year inventory. It is also used as the basis from which to
calculate the 1996 target level of emissions.
1996 Target Level of Emissions The 1996 target level of
emissions is the maximum amount of ozone season VOC emissions
that can be emitted by an ozone nonattainment area in 1996 for
that nonattainment area to be in compliance with the 15 percent
rate-of-progress requirements.. It is calculated by first taking
15 percent of the adjusted base year inventory emissions. This
emissions value is then added to the expected emissions
reductions due to the FMVCP and RVP program, and from corrections
to any deficient RACT rules and I/M programs. The summation of
the 15 percent, the expected reductions from deficient I/M and
RACT programs, and reductions from the FMVCP and RVP program are
then subtracted from the 1990 rate-of-progress base year
inventory to arrive at the 1996 target level of emissions. This
target is used by States to design their 15 percent VOC emissions
reduction control strategies. The projected control strategy
inventory used in the rate-of-progress plan must be at or below
the 1996 target level of emissions to demonstrate that the
15 percent VOC emissions reduction will be accomplished.
1996 Target Level of Emissions = Rate-of-Progress Base Year
Inventory/ minus the following:
15 percent of the adjusted base year inventory
emissions.
Emissions reductions from corrections to any deficient
RACT rules.
. Emissions reductions from corrections to deficient I/M
programs.
Emissions reductions from the pre-1990 FMVCP.
Emissions reductions from RVP rules.
Offsets Surplus emissions reductions secured from existing
source(s) by a prospective major new stationary source, or a
source planning major modifications, in order for the new or
modified source to obtain a nonattainment area preconstruction
permit. Offsets are generally secured from other sources in the
vicinity of the new source or modification, but can also be
obtained, with limitations, from the source itself in the case of
a modification.
Offset Ratios For the purpose of satisfying the emissions offset
reduction requirements of section 173(a)(1)(A), the emissions
offset ratio is defined as the ratio of total actual emissions
reductions of VOC [and NOX unless exempted under section 182(f)]
obtained as offsets from existing sources to total allowable
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emissions increases of such pollutant from the new source. (See
Table 1 for a list of offset ratios by nonattainment area.)
Point Source Any stationary source that has the potential to
emit more than some specified threshold level of a pollutant or
is identified as an individual source in a State's emissions
inventory. For base year SIP inventory purposes, point sources
are defined as sources emitting 10 tpy or more of VOC or 100 tpy
or more of NOV or CO.
*x
Post-1996 Rate-of-Progress Plan The portion of the SIP revision
due by November 15, 1994, which describes how serious and above
areas plan to achieve the post-1996, 3 percent per year VOC
emissions reductions averaged over each consecutive 3-year period
from November IS, 1996 until the attainment date. This SIP
revision also includes the attainment demonstration for moderate
interstate nonattainment areas and serious and above
nonattainment areas.
Potential to Emit The maximum capacity of a source to emit a
pollutant under its physical or operational design, except as
constrained by federally-enforceable conditions which may include
the effect of installed air pollution control equipment,
restrictions on the hours of operation, and the type or amount of
material combusted, stored, or processed. Potential to emit is
used for major source determinations under NSR [40 CFR
51.165(b)].
Program Uncertainty Factor A factor applied to adjust the amount
of emissions reductions attributed to an EIP and credited in an
implementation plan demonstration to account for strategy-
specific uncertainties inherent in EIP's that are based on
strategies other than emissions limiting strategies.
Rate-of-Progress Plan The portion of the SIP revision due by
November 15, 1993, that describes how moderate and above ozone
nonattainment areas plan to achieve the 15 percent VOC emissions
reduction. All moderate intrastate areas that choose to utilize
the EKMA in their attainment demonstration, are also required to
include their attainment demonstration in this SIP revision.
Reformulated Gasoline A blend of gasoline that is certified as
meeting all the requirements applicable to reformulated gasoline.
These requirements have been proposed as 40 CFR Part 80,
Subpart D, and include:
At least 2.0 percent oxygen by weight.
No more than 1.0 percent benzene by volume.
No heavy metals, absent a waiver by EPA.
No increase in NOX emissions from baseline vehicles.
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Required reductions in emissions of ozone forming
VOC's.
Required reductions in toxics emissions.
Compliance with the emissions requirements is determined by
comparing emissions of baseline vehicles (representative model
year 1990 motor vehicles) using a baseline gasoline (specified in
section 211(k) of the Act) with emissions of baseline vehicles
using the reformulated gasoline. The EPA's proposed regulations
provide for the use of credits to meet the above requirements
under specified circumstances.
Reid Vapor Pressure (RVP) A maximum gasoline volatility level
established to reduce summertime gasoline volatility. Depending
on the area, gasoline RVP may not exceed 9.0 psi or 7.8 psi
between May 1 and September 15, beginning in 1992. Regulations
established by EPA are published in 40 CFR Part 80.
Rule Compliance Factor A factor applied to adjust the amount of
emissions reductions attributed to an EIP and credited in an
implementation plan demonstration to account for less than
complete compliance by sources affected by the EIP.
Rule Effectiveness (RE) For stationary sources, a measure of the
extent to which a regulatory program achieves emissions
reductions. An RE of 100 percent reflects a regulatory program
achieving all the emissions reductions that could be achieved by
full compliance with the applicable regulations at all sources at
all times. However, regulations typically are not 100 percent
effective due to limitations of control techniques or
shortcomings in the implementation and enforcement process. The
EPA allows the use of several different methods for determining
RE including an 80 percent default value; results from EPA
Questionnaires; or results from a Stationary Source Compliance
Division (SSCD) study.
Stage II Gasoline dispensing devices that control VOC vapor
releases during the refueling of motor vehicles. This process
takes the vapors that would otherwise be emitted directly into
the atmosphere during refueling, and redirects them back into the
fuel storage tanks.
Total Actual Emissions The total emissions from a source over a
year or other averaging period that is based on an emissions
unit's actual operating hours, production rates, control
equipment, and types of material processed, stored, or combusted.
The averaging period used depends on the program. For example,
NSR netting baselines are based on 2 years of emissions and
operating permit fees are based on 1 year of emissions. For the
purposes of the 1990 base year inventory for ozone, actual VOC,
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NOX, and CO emissions are based on a typical weekday of the peak
ozone season.
Transportation Control Measure (TCM) Any program that
encompasses elements of transportation system management and/or
transportation demand management. Transportation system
management strategies generally refer to the use of low capital
intensive transportation improvements to increase the efficiency
of transportation facilities and services. Transportation demand
management generally refers to policies, programs, and actions
that are directed toward increasing the'use of high occupancy
vehicles (transit, carpooling, and vanpooling) and the use of
bicycling and walking. Section 108(f) of the Act lists the
following programs as examples of TCM's:
Accelerated retirement of vehicles.
Activity centers.
Area-wide ridesharing.
Bicycling alternatives to motor vehicle travel.
Employer-based transportation management programs.
Limitations on extended vehicle idling.
Control of extreme low-temperature cold starts.
High occupancy vehicle lanes.
Park and ride and fringe parking.
Parking management programs.
Minimization of congestion during special events.
Traffic flow improvements.
Transit improvements.
Trip-reduction ordinances.
Vehicle use limitations/restrictions.
Work schedule changes.
Volatile Organic Compound Any compound of carbon, excluding CO,
carbon dioxide, carbonic acid, metallic carbides or carbonates,
and ammonium carbonate, which participates in atmospheric
photochemical reactions. This includes any organic compound
other than those EPA has determined to have negligible
photochemical reactivity.12
12See 57 Federal Register 3945, February 3, 1992.
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