IMPLEMENTATION PLANS
FOR THE
LEAD NATIONAL AMBIENT
AIR QUALITY STANDARD
NOTICE OF PROPOSED RULEMAKING
[40 CFR PART 51]
[FRL 821-5]
DECEMBER 14, 1977
U.S. ENVIRONMENTAL PROTECTION AGENCY
Office of Air and Waste Management
Office of Air Quality Planning and Standards
Research Triangle Park, North Carolina 27711
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ENVIRONMENTAL PROTECTION AGENCY
[40 CFR Part 51]
[FRL 821-5]
IMPLEMENTATION PLANS FOR LEAD NATIONAL AMBIENT
AIR QUALITY STANDARD
Notice of Proposed Rulemakirig
AGENCY: Environmental Protection Agency.
ACTION: Proposed rulemaking.
SUMMARY: The regulations proposed below, together with the current
requirements of 40 CFR Part 51, set forth the requirements for States
to follow in developing, adopting and submitting acceptable imple-
mentation plans for the lead national ambient air quality starboards
(NAAQS) proposed elsewhere in this FEDERAL REGISTER. The imple-
mentation plans are required under Section 110 of the Clean Air Act.
Amendments to the existing regulations for implementation plans
are necessary because lead differs from other pollutants for which
the existing regulations were designed. The proposed amendments to
40 CFR Part 51 address the following topics:
--Definitions of point sources and control strategy.
--Control strategy requirements.
--Air quality surveillance.
This preamble also discusses other issues concerning the develop-
ment of lead implementation plans, including reporting requirements,
emergency episode plans, and new source review.
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DATES: Comments must be received on or before: February 17, 1978.
Comments submitted in triplicate will facilitate internal distribu-
tion and public availability.
ADDRESSES: Persons may submit written comnents on this proposal to:
U.S. Environmental Protection Agency
Office of Air Quality Planning and Standards
Control Programs Development Division (MD 15)
Research Triangle Park, NC 27711
Attention: Mr. Joseph Sableski.
EPA will make all comnents received on or before February 17, 1978,
available for public inspection during normal business hours at:
EPA Public Information Reference Unit
401 M Street, S.W., Room 2922
Washington, D.C. 20460.
FOR FURTHER INFORMATION CONTACT:
Mr. John Silvasi
U.S. Environmental Protection Agency
Office of Air Quality Planning and Standards
Control Programs Development Division (MD 15)
Research Triangle Park, NC 27711
Telephone: Commerci al —919-541-5437; FTS--629-5437.
SUPPLEMENTARY INFORMATION:
1. STATUTORY REQUIREMENTS
1.1 STATUTORY REQUIREMENTS AND SCHEDULE FOR ACTION
Under section 110 of the Clean Air Act, States must adopt and
submit plans to EPA within nine months after the promulgation of a
primary or secondary national ambient air quality standard. On the
present schedules EPA will promulgate the lead standard in June
1978. States must therefore submit their SIPs by March 1979. EPA
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must approve or disapprove the plan within four months after the date
required for submission of the plan. If a State falls to submit a
plan that complies with section 110, EPA must promulgate a plan for
that State within six months after the date required for submission
of the plan.
1.2 REQUIREMENTS FOR CONTENT OF THE PLAN
Section 110 of the Clean Air Act requires that a SIP provide
for the attainment of primary ambient air quality standards within
three yaars after the date on which EPA approves (or promulgates) the
plan, and maintenance thereafter. EPA can grant an extension of the
attainment date of up to two years under certain conditions. In
addition, EPA cannot approve a plan unless 1t contains a number of
othar provisions; these are detailed in Section 110 of the Act,
It is important to note that the Act requires a plan for each
criteria pollutant (i.e., one that the Administrator designates under
Section 108 and for which he establishes criteria and a standard
under Section 109 of the Clean Air Act). Therefore, the plan for
lead will be a separate plan, not a revision to an existing plan.
Many portions of the existing plans, however, such as those portions
covering legal authority, compliance schedules and source surveil-
lance, may be applicable to the implementation of the lead standard.
The lead plan may incorporate those portions of existing plans by
reference.
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1.3 EXTENSIONS
Under section 110 of the Clean Air Act, the EPA Administrator
may extend up to two years the three-year period for attainment of
a primary standard.
The two-year extension to attain primary standards can be
granted only upon application from the Governor of a State. Detailed
requirements for the extension appear in Section 110 of the Act and
Subpart C (Extensions) of 40 CFR 51.
2. EXISTING REGULATORY REQUIREMENTS AND NEED FOR REVISION
Regulations for the preparations adoption, and submission of
State implernentation plans under Section 110 of the Clean Air Act,
as amended, were published November 25, 1971 (36 FR 22369), codified
as 40 CFR Part 51 and have been modified from time to time since then.
The regulations represent an exercise of the agency's authority under
Section 301 of the Act to prescribe regulations as necessary to carry
out the functions assigned to EPA under the Act. The regulations
incorporate the basic requirements outlined in Section 110 of the Act,
discussed above in Section 1. When EPA first published these regula-
tions,, there were only six criteria pollutants: particulate matter,
sulfur oxides, carbon monoxide, hydrocarbons, photochemical oxidants,
and nitrogen dioxide.
Elsewhere in this FEDERAL REGISTER, EPA is proposing a national
ambient air quality standard for lead. EPA proposes to revise
40 CFR 51 to prescribe the minimum requirements that plans must meet
for EPA approval. Portions of 40 CFR 51 that are not revised are
still applicable to the lead plans as appropriate.
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In addition, EPA will eventually promulgate requirements that
:ount for the Clean Air Act Amendments of 1977. The new require-
rts that may affect lead irnplemenation plans will cover the followinq
)ics:
--Transportation-re la ted provisions.
--Accounting for stack heights.
-•-Prevention of significant deterioration.
--Permit requirements.
--Indirect source review.
--Interstate pollution abatement.
--Consultation with governmental entities at the local and Federal
level.
--Permit fees,
--Composition of State air pollution boards.
--Provisions for public notification of dangers of air pollution.
--Protection of visibility in certain areas.
--Energy or economic emergency authority.
3. DISCUSSION OF PROPOSED REVISIONS
Portions of tnis section and the proposed ruletnaking refer to a
:ument entitled "Supplementary Guidelines for Lead Implementation
in:.," which is now in draft form. Information on availability of that
ift appears in Section 4.3 of this preamble, below.
DEFINITIONS
, 1 Definition of Lead Point Sources
A point source is a facility that emits a significant quantity
air pollutant emissions. EPA, is proposing that a point source of
d be defined as a source that emits five tons per year of lead or
:ater, without regard to the area in which it is located. Factors
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Influencing the proposed point source definition Include the air
quality impact of such sources, and the number of sources that would
be affected. A discussion of the determination of this definition
appears in EPA's draft "Supplementary Guidelines for Lead Implemen-
tation Plans."1
3.1.2 Definition of Control Strategy
The proposal below would amend the definition of "control
strategy" (§ 51.1(n)) to Include regulation of fuels and fuel addi-
tives in the list of measures that could be considered control stra-
tegies.
Section 211(c)(4)(C) of the Clean A1r Act authorizes States
to regulate or prohibit the use of a fuel or fuel additive for motor
vehicles through the State implementation plan. EPA can approve a
State plan that contains such a regulation only if EPA "finds that
the State control or prohibition 1s necessary to achieve the national
primary or secondary antient air quality standard which the plan
implements." Lead in the form of tetramethyl lead or tetraethyl
lead is widely used as an additive to gasolines to increase octalne
rating.
On September 28, 1976, EPA promulgated regulations that control
the amount of lead in gasolines (41 FR 42675 as 40 CFR 80.20). These
regulations require oil refiners to meet a lead in gasoline concen-
tration of 0.8 grams per gallon by January 1, 1978, and 0.5 grams per
gallon by October 1, 1979,
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Also, the Clean Air Act Amendments of 1977 amended Section 211
of the Act to provide less stringent lead-in-gasoline limitations
for small refineries.
In most urban areas without point sources of lead, the federal
program for the reduction of lead in gasoline should sufficiently
reduce lead emissions to the national standard for lead. There may
be a few pi aces, howevers where the automobile emissions are so great
that the federal program will not ensure the attainment of the stand-
ard. In those cases, States may wish to impose their own standards
on the concentration of lead in gasoline under Section 211 of the
Clean Air Act. EPA is proposing to list this as a possible measure
in the definition of control strategy under § 51.1(n).
3.2 PRIORITY CLASSIFICATION SYSTEM
Section 51.3 currently define: a system for placing each air
quality control region (AQCR) into priority classes based on the
magnitude of its air pollution problem for several pollutants. This
section will not apply to lead, since this proposal sets forth another
means of setting priorities in the development of the control strategy.
3.3 REPORTING REQUIREMENTS
The requirements for quarterly air quality reporting specified
In § 51.7(a) will apply to lead as well as the other criteria pollutants
EPA plans to modify the requirements of S 51.7 for periodic
emission reporting in 1978 and will address the reporting of lead
emissions at that time. The following discussion outlines EPA's
current thinking on this topic.
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Currently S 51.7(b) requires that changes to the emission inven-
tory be submitted in accordance with the requirements of the National
Emission Data System (NEDS).2 Data from many point sources of lead
are already in the NEDS system because the lead sources are also
sources of particulate matter.
To minimize lead emission data collection and reporting require-
ments, EPA will use existing NEDS data together with emission factors
from EPA's Hazardous and Trace Emissions System (HATREMS) to calculate
and store lead emissions data. The data from NEDS will be adequate
to calculate emissions for most lead sources; HATREMS will also have
the capability to store additional data for other sources that are
not currently in NEDS (such as tetraethyl lead manufacturing) and to
add new sources as necessary. Therefore, the lead emission reporting
requirements will be based on the use of both NEDS and HATREMS. The
regulation would require reporting on only point sources (i.e., those
greater than five tons per year).
For the initial data submission, the States will be required
(under a new Subpart E to 4Q CFR Part 51 proposed below) to submit
to the EPA Regional Office: (1) NEDS and HATREMS point source forms
for all sources emitting five or more tons of lead per year and (2)
an updated NEDS area source form and a HATREMS form for each county
which must report. This submission should ensure a complete initial
emission inventory.
3.4 CONTROL STRATEGY
A control strategy in an implementation plan is a set of measures
developed to change the amount, timing, or distribution of emissions.
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An implementation plan must demonstrate that the control strategy
Is adequate to attain the standard within three years after EPA approval
and maintain the standard thereafter. (States can receive an exten-
sion of up to two years to attain a primary standard, however.)
The regulations that EPA is proposing below pertaining to lead
control strategies would appear as a separate new Subpart E.
3.4.1 Requirements for Air Quality Maintenance Analyses and Plans
Review of new and modified stationary sources of lead under 40
CFR 51.18 should be adequate to ensure maintenance of the national
standard for lead in most areas. The regulations (40 CFR Part 51,
Subpart D) requiring a detailed emissions projection analysis for the
other criteria pollutants 1n selected areas were designed to require
evaluation of the air quality impact of the growth of area sources
that are not covered by the new source review provisions under § 51.18.
The only area sources for lead are nonpolnt process sources (those
less than five tons per year), stationary fuel combustion sources, and
mobile sources.
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Non-point process sources will not likely jeopardize the main-
tenance of the lead standard. Using lead consumption as an indica-
tor of production - and hence source emission activity - between 1971
and 1975 there was a net decrease in lead consumption of 9.4 percent
for all lead products industries. Most categories had decreases in
consumption. The only categories with increases were weights and
ballast production (12.8 percent) and storage battery components
o
manufacturing (2.8 percent).
The stationary fuel combustion sources emit only minor quantities
of lead.
Mobile sources, particularly automobiles, emit significant quan-
tities of lead as a category, but EPA regulations for reduction of
lead in gasoline have not yet been fully implemented. After the
maximum reduction of lead in gasolines growth in mobile sources will
not jeopardize the proposed lead standard.
§ 51.12(h) requires States to provide for a system for acquiring
information concerning growth in emissions. States must assess all
areas at least every five years to determine if the State needs to
revise the plan for any areas. The information-gathering mechanism
and the periodic reassessments will uncover growth in sources too small
to be reviewed under S 51.18.
The proposed regulations would allow EPA to require an analysis
period beyond the statutory attainment date in those few areas where
growth might jeopardize the national lead standard.
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• 2
EPA will assist the States In developing their Initial lead
emissions inventory by generating inventories based on data in NEDS
and HATREMS described above under the reporting requirements. States
will have to determine the degree of reliability of this data, however,
and obtain additional data as warranted. The EPA-generated inventory
can be supplemented by the State through the calculation of emissions
using a State particulate matter inventory and the emission factors 1n
"Control Techniques for Lead A1r Emissions. Where the State desires
more accurate emission data from a particular source, the State should
measure the lead emissions directly. EPA's recommended technique for
measuring lead emissions appears in Appendix A of "Supplementary Guide-
i
lines for Lead Implementation Plans."
In projecting emissions to 1j;;>2--the year by which the lead stand-
ard must be attained (unless extended)--States will have to account
for the effect of the federal program for the phase-down of lead in
gasoline. EPA's "Supplementary Guidelines for Lead Implementation
Plans' provide a technique for projecting mobile source lead emissions
Detailed procedures for projecting emissions for other source cate-
gories appears in EPA's "Guidelines for Air Quality Maintenance
5
Planning and Analysis,'"
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3.4.3 LeaOiM3uallty_M^
The regulations proposed below are based on the following three-
part approach:
First, the State would determine whether EPA's lead-in-gasoline
limitation is sufficient to provide for attainment of the standard
in areas in which high lead air concentrations have been measured, and
that are affected primarily by mobile source lead emissions. This
analysis would be restricted to those urbanized areas whose lead air
concentrations exceeded 4.0 pg/m , monthly mean, measured since
January ls 1974. EPA derived this criterion from an analysis of the
effects of three federal programs on reducing lead emissions: the
program for the reduction of lead in gasoline under 40 CFR 80.20,
the requirements (40 CFR 80.21 and 80.22) that prohibit the use of
leaded gasoline in vehicles equipped with catalytic converters, and
the requirements that set a lower limit on motor vehicle gasoline
mileage under the Energy Policy and Conservation Act of 1975. EPA's
analysis indicated that the effects of these programs are such that
any area with 1976 lead concentrations that are caused predominantly
by mobile sources and that are not in excess of 5.5 pg/m , monthly mean,
will attain a standard of 1.5 jjg/m maximum monthly means by 1982,
assuming no other changes in emissions. EPA's analysis appears as
Appendix D to EPA's "Supplementary Guidelines for Lead Implementation
1 i
Plans." The criterion of 4.0 jjg/m incorporates a safety factor
applied to the results of the analysis. EPA estimates that about
seven urbanized areas would be covered under this criterion. Table
3 presents the list of these seven areas.
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In the SIP analysis, the State would use a screening *«?chnique
in the form of a modified rollback model6 to determine when the
federal programs for the reduction of lead in gasoline, for the use of
no-lead gasoline in catalyst equipped cars, and for minimizing gaso-
line consumption w'l1 result in attainment of the standard. If the
analysis shows that th? standard will not be attained until after
the statutory attainment dates, the plan would have to contain what-
ever measures are needed to attain the standard by the attainment dates.
Second, the State would then model the following point sources
of lead regardless of measured air quality concentrations in their
vicinities: primary lead smelters, secondary lead smelters, primary
copper smelters, lead gasoline additive plants, lead-acid storage
battery manufacturing olants that produce 1200 or more batteries per
day, and all other sources that emit 25 or more tons per year of lead.
The State would have to use a dispersion model to estimate the impact
of these sources on lead air concentrations. The State would develop
and evaluate control strategies that would cover such sources if
necessary.
These four source categories were selected based upon an analysis
of their air quality impact. That analysis indicated that due to their
fugitive emissions in the case of the smelters and the magnitude of
their stack emissions in the case of lead gasoline additive plants and
battery manufacturing plants, these source categories presented the
potential for the greatest localized stationary source impacts.
Third, for each area in the vicinity of an air quality monitor
that has recorded lead concentrations in excess of the lead national
standard, the State would have to analyze the oroblem using modified
rollback.
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In so doing, the State would investigate sources of lead emissions other
than ones covered in the first two parts above. Other sources include
mobile-sources, smaller lead point sources, or categories of lead
sources such as facilities that burn waste crankcase oil that contains
lead.
The above strategy is in EPA's judgment adequate to quantify lead
air problems for purposes of developing attainment strategies. It does
not require the most sophisticated techniques for quantifying lead air
quality problems, because State resources are at this time severely
limited. If EPA required the most advanced techniques, few States
would be able to submit acceptable analyses in a timely manner. A State
that desires more detail in its analysis, however, sho^d attempt more
sophisticated analyses, such as modeling mobile and non-major sources
using dispersion models and the generation of a lead envision inventory
based upon measured emissions.
There may be source categories other than those specified in the
second part of the above approach that have the potential for causing
violations of the national standard for lead. EPA has Identified
gray iron foundries as one such source category, but this identifica-
tion is based on limited data concerning the amount of fugitive emis-
sions from the facilities. EPA does not feel that the da eree of
confidence in this identification justifies a requirement for States
to analyze all gray iron foundries, of which over 1000 exist. And
because fugitive emissions may vary from facility to facility depen-ding
on factors other than production rate > it is difficult to arrive at
a cutoff below which no such foundry need be analyzed. The State
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would, however, have to analyze those foundries located in areas that
have measured lead concentrations in excess of the proposed standard.
Because of the potential problems from foundries and other sources
not covered by that approach, States are encouraged to consider
analysis of these sources to the extent that time and resources per-
mit.
For stationary sources whose particulate matter emissions are
not normally well controlled and for stationary sources that generate
a substantial amount of large particles, a State may wish to account
for deposition or atmospheric fallout of large particles. States may
use the methods found in Chapter 5 of "Meteorology and Atomic Energy
1968." The pertinent pages of that document are found in Appendix C
of the "Supplementary Guidelines for Lead Implementation Plans."
3.5 PREVENTION OF AIR POLLUTION EMERGENCY EPISODES
Because there is no evidence that exposure to short-term (hourly)
peak lead levels in the ambient air could cause adverse health effects
in any segment of the general population at levels that are ever likely
to be experienced, an "emergency episode" for lead will remain undefined
unless contradictory evidence is uncovered. For this reason, EPA does
not intend to require States to adopt specific procedures to prevent
emergency episodes as part of their lead implementation plans.
3.6 LEAD AIR MONITORING REQUIREMENTS
EPA is currently revising the air quality monitoring requirements
to incorporate the recommendations of EPA's Standing Air Monitoring
Work Group. These new requirements will cover all criteria pollutants--
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those for which EPA has published a criteria document and promulgated
a national ambient air quality standard. So that persons interested
in the requirements that pertain to lead implementation plans can
review the lead monitoring proposal, however, EPA is proposing and
will promulgate the lead monitoring requirements with the remainder
of the lead regulations. These requirements will eventually be incor-
porated into the air quality monitoring requirements that will apply
to all the criteria pollutants.
The regulations proposed below would require ambient monitoring
for lead in urban areas. Lead emissions come predominately from mobile
sources. EPA estimates that emissions from this category account for
approximately 90 percent of total national emissions. Furthermore,
most of these emissions occur in urban areas; hence the requirement
for urban area monitoring.
A limited ambient monitoring program will be sufficient on a
national basis to determine whether the limitation on lead in gasoline
is resulting in the attainment and maintenance of the lead NAAQS. Thus,
only relatively few monitors, compared to the number required for
particulate matter, are needed in the major urban areas across the
country on a permanent basis to develop an air quality trend data base.
3.6.1 Urban Area Monitoring
Permanent lead monitoring will be required only in the following
areas:
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--Any urbanized area with a population greater than 500,000, or
--Any urbanized area with lead concentrations equal to or in
excess of 1.5 ^ig/m , maximum 30-day arithmetic mean, measured
since January 1, 1974.
These criteria were selected to ensure that any area with the
potential for exceeding the lead NMQS, or that has already exceeded
the NAAQS, would have to monitor ambient lead levels. An urbanized
area with a population greater than 500,000 would be expected to have
sufficient traffic density to pose a potential threat to the NAAQS.
Lists of areas that meet the above criteria are presented in
Tables 1 and 2 below.
EPA recommends that States also monitor in smaller urban areas
on an intermittent basis to determine their status with respect to
the NAAQS. Such monitoring would be considered "Special Purpose
Monitoring," in keeping with the terminology of the Standing Air
Monitoring Work Group (SAMWG). States would have discretion in
identifying the additional areas where monitoring will be conducted,
selecting appropriate monitoring sites, and scheduling the time period
over which the sampling will be conducted. EPA suggests several speci-
fied monitoring options: sampling during the course of every other
year for five years until a trend is established, then sampling every
third year, and sampling every year but over a 6 month time interval
during the year. Each of these schemes would allow a State to use one
monitor for at least two locations. If violations of NAAQS are found,
permanent sites could be established. EPA recommends that urbanized
areas greater than 100,000 in population be included in this supple-
mental monitoring program.
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At least two monitors will be required as a minimum for urban
area monitoring. The permanent sites established would be considered
"National Air Quality Trend Stations" (NAQTS), in keeping with the
terminology of the SAMW6. The minimum sampling frequency would be
one sample every six days. Each EPA Regional Administrator would
have the authority to specify more than two monitors, however, if he
found that two monitors are insufficient to determine if the lead
NAAQS were being attained and maintained. These additional monitors
would be considered State and Local Air Monitoring Stations (SLAMS)
in keeping with the terminology of the SAMWG.
The analysis of the 24-hour samples could be performed for either
individual samples or composites of the samples collected over a
calendar month. The sample analysis will use the Federal reference
method, which EPA is proposing in 40 CFR Part 50 along with the NAAQS,
or equivalent methods. The proposed reference method consists of
the collection of the ambient sample using a high volume air sampler
(hi-vol), with analysis for lead by atomic absorption.
Two types of monitoring sites will be needed as a minimum for
urban area ambient lead monitoring—a roadway site and a neighborhood
site. The objective of both site types is to measure in areas where
people are being exposed to maximum lead concentrations in the ambient
air. Both site types are needed to determine exposure of receptors
to lead concentrations arising primarily from automotive sources and
to determine the effect on air quality of the federal program for
the reduction of lead in gasoline.
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The roadway site would be located near residences that are in
the vicinity of a major roadway (arterial, freeway, interstate, etc.)
passing through a residential community or downtown center city area.
The neighborhood site would be located in an area of high density
traffic and population, but not necessarily adjacent to major road-
ways. The preferred location for this site type would be at or near
play areas or schools because of the seriousness of lead exposure
for small children.
EPA's "Supplementary Guidelines for Lead Implementation Plans'
would specify the siting requirements for each of the site types.
Since the lead ambient air sampling method is the same as that
for particulate matter, a State may designate existing particulate
matter sites as lead monitoring sites If the stations meet the siting
criteria of EPA's "Supplementary Guidelines for Lead Implementation
Plans."1
3.6.2 Point Source Monitoring
The regulations would not require ambient monitoring around a
lead source to determine whether the lead NAAQS is being achieved,
but EPA encourages States to perform such monitoring, especially if
the lead emissions are fugitive. A State may require point source owners
and operators to monitor in the vicinity of their sources.
EPA also encourages States to monitor in locations where people
with high blood lead levels work, reside, or play.
3.6.3 Other Monitoring
The proposed regulations would also provide for EPA to require
monitors in areas outside the areas described in Section 3.6.1, above.
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3.7 REVIEW OF NEW SOURCES AND MODIFICATIONS
3.7.1 j^wJ^ltjjjUjyry Sources
EPA is not proposing modifications to the new source review
requirements in the action below. Since this portion of the lead
Implementation plan requirements is part of a much larger issue , EPA
believes that the new source review provisions for lead plans should
be handled in a forthcoming separate action concerning new source
review.
In the FEDERAL REGISTER of December 21, 1976 (41 FR 55558), EPA
gave advance notice of a proposed revision to 40 CFR 51.18 concerning
new source review. The notice indicated that EPA was considering
the establishment of a system for reviewing new sources where the
complexity of the review would depend on the size of the proposed
source. The proposed regulations for new source review would establish
two size criteria for new and modified lead sources. Below the lower
limit, (emission of five tons per year) no new source review would
be needed. Between the lower and higher limit (emissions of 25 tons
per year), a review of the source for conformance with emission
limitations would be needed, but no a1 r quality analysis would be
needed. Above the higher limit, an air quality analysis would be
needed.
Lead point sources that are smaller than major lead sources
(i.e., less than 25 tons per year) would not be subject to public
comment requirements.
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7.2 Lndjrect Sources
The Clean Air Act Amendments of 1977 prohibit EPA from requiring
ite Implementation Plans to contain a new source review program for
iirect sources. Therefore, the proposed regulations would not require
ites to review new indirect sources.
'.3 Significant Deterioration
In the regulations proposed below, EPA has not proposed a defini-
>n of what is meant by significant deterioration with regard to lead.
Under the Clean Air Act Amendments of 1977, however, EPA must
. imulgate regulations for the prevention of significant deterioration
% any pollutant for which EPA promulgates a new national ambient air
tlity standard. EPA must promulgate these regulations within two years
;er promulgation of the standard.
J SOURCE SURVEILLANCE
EPA does not propose any changes to the regulations on source
'veiHance to account for the new lead standard; therefore, States
t follow the same requirements set forth therein for lead as for
other criteria pollutants.
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The requirements for continuous monitoring of emissions will not
be applied at this time to lead SIPss however, because there are no
in-stack lead monitors that measure both particulate and vaporous
lead simultaneously. If such a monitor becomes available, EPA will
then determine whether to require continuous in-stack lead monitors.
3.9 MISCELLANEOUS
In addition to the revisions discussed above, the proposal below
contains several minor revisions that are necessary to differentiate
certain regulations that apply only to lead from regulations that
apply to other criteria pollutants.
4. ADDITIONAL GUIDANCE
4.1 SUPPLEMENTARY GUIDELINES
EPA has prepared a draft guideline, "Supplementary Guidelines for
Lead Implementation Plans," that will cover aspects of the SIP
development process not covered in the revisions to the SIP require-
ments. The items covered in the guideline are—-
--air quality data reporting details,
--emissions data reporting details9
--determining and accounting for background concentrations,
--projecting automotive lead emissions,
--new source review techniques,
--methods for stack testing,
--determination of lead point source definition, and
— a discussion of deposition of particles and gases.
Conrents on this draft are invited as part of this rulemaking. Infor-
mation on how to obtain copies is given in Section 4.3 below.
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The document., "Control Techniques for La ad Air Emissions,
also contains technical information that State;;, can use in develop-
ing their analyses and control scrateqies. Included In the docu-
ment is Information about—
--procasses that produce lead emissions,
--techniques applicable for control of laad emissions from
both stationary and mobile sources and their costs,
--lead emission factors,
--effect of TSP controls on lead emissions, and
--particle size distribution of lead emissions from most source
categories (this information may be needed to operate dis-
persion models that account for particle deposition).
4.2 EXAMPLE LEAD CONTROL STRATEGY
To assist the States in developing implementation plans for
the proposed lead air quality standard, EPA is developing an example
lead control strategy. The example is scheduled for completion in
March 1978 and will be made available through the OAQPS Guideline
Series.
4.3 AVAILABILITY OF REFERENCES
EPA will make the "Supplementary Guidelines for Lead Implementa-
tion Plans" available to the State and local air pollution control
agencies through the EPA Regional Offices. A list of these offices
and appropriate persons to contact are presented below.
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Ms. Ruth Seidrnan, Librarian Ms. Dee Crawford, Librarian
EPA - Region I EPA - Region V!
John F. Kennedy Federal Bldg, First International Bldg.
Room 2302 1201 Elm St.
Boston, MA 02203 Dallas, TX 75201
Mr. H. Luger, Librarian Ms, Connie McKenzie, Librarian
EPA - Region II EPA - Region VII
Federal Office Bldg. 1735 Baltimore Avenue
26 Federal Plaza Kansas City, MO 64108
New York, NY 10007
Ms. Wiley, Librarian Ms, Dianne Grah, Librarian
EPA - Region III EPA - Region VIII
Curtis Bldg. 1860 Lincoln Street
Sixth & Walnut Streets Denver, CO 80203
Philadelphia, PA 19106
Ms. Barbara Fields Ms. Jean Clrciello, Librarian
A1r & Hazardous Materials Div. 'EPA - Region IX
EPA - Region IV 215 Fremont Street
345 Courtland, N.E. San Francisco, CA 94105
At 1 anta, GA 30308
Ms. Lou W. TUley, Librarian Ms. Arvella J. Weir, Librarian
EPA - Region V EPA - Region X
230 S. Dearborn Street 1200 Sixth Avenue
Chicago, IL 60604 Seattle, WA 98101
A copy of most reference material cited herein is available for
public inspection at these Regional Offices. A copy of all reference
material cited herein is available for public inspection at the EPA
Public Information Reference Unit, the address of which is at the
beginning of this preamble. In addition, there will be a number of
additional copies of the draft "Supplementary Guidelines for Lead Imple-
mentation Plans" available for distribution to members of the general
public. Persons who desire a copy may write or call--
24
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U.S. Environmental Protection Agency
Public Information Center (PM 215)
401 M Street, SW
Washington, DC 20460
Telephone: 202-755-0707
5. ENVIRONMENTAL AND ECONOMIC IMPACT
EPA has conducted studies of the environmental and economic
impacts of implementing a national ambient air quality standard for
lead. Copies of EPA's draft environmental and economic impact studies
may be obtained from:
Mr. Joseph Padgett, Director
Strategies and Air Standards Division
U.S. Environmental Protection Agency
Research Triangle Park, NC 27711
Telephone: 919-541-5204
5.1 ENVIRONMENTAL IMPACT
The principal environmental impact of setting and implementing the
lead standard will be the reduction of airborne levels of lead and
reversal over time of the present trend of accumulation of lead in
natural eco-systems, principally soil and sediments. Reduction of lead
emissions will also result in reduction of emissions of particulate mat-
ter and other metals at sources requiring control.
5.2 ECONOMIC AND INFLATION EFFECTS
The Environmental Protection Agency has determined that this
document contains a major proposal requiring preparation of an Economic
Impact Analysis under Executive Orders 11821 and 11949 and OMB Circular
A-107 and certifies that an Economic Impact Analysis has been prepared.
Economic impacts will result primarily from control of lead
emissions from primary lead and copper smelters, secondary lead smelters,
gray iron foundries, gasoline lead additive manufacturers, and lead-
acid storage battery manufacturers.
25
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6. REFERENCES
Supplementary Guidelines for Lead Implementation Plans. Draft,
For Information on availability for review, see section 4.3S
AEROS Users Manual, Vol. II. U.S., Environmental Protection
Agency, Office of Air and Waste (Management, Office of Air Quality
Planning and Standards, Research Triangle Parks NC 27711.
EPA 450/2-76-029 (OAQPS No. 1.2-039). December 197.6.
Lead Industry in May 1976, Mineral Industry Surveys. U.S.
Department of Interior. Bureau of Mines. Washington, DC,
5, 1976.
Control Techniques for Lead A1r Emissions. U.S. Environmental
Protection Agency, Office of Air Quality Planning and Standards ,
Research Triangle Park$ NC. November 1977.
delines for Air Quality Maintenance Planning and Analysis >
Volume 7: Projecting County Emission. Second Edition. EPA 450/
4-74-008. U.S. Environmental Protection Agency , Research Triangle
Park, NC 27711, January 1975.
6. deNevers, N.H., and J.R. Morris. Rollback Modeling—Basic and
Modified. Reprint 73-139. Presented at the A1r Pollution Control
Association Annual Meeting, Chicago, June 1973.
26
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TABLE
URBANIZED AREAS* GREATER THAN 500,000 POPULATION
(1970 Census**)
043
024
067
045
123
030
119
047
174
070
197
131
216
115
215
239
229
050
029
056
079
094
162
York ,N.Y,-Northeastern
New Jersey
Los Angeles-Long Beach,
Calif,
Chi cage ,111.-Northwestern
Indiana
Philadelphia, Pa.-N.J.
Detroit, M1ch.
San Francisco-Oakland,
Calif,
Boston, Mass.
D.C.-Md.-Va.
Ohio
Mo.-111.
Pa.
Paul, Minn.
Washington
Cleveland,
St. Louis,
Pittsburgh,
M1nneapolis-St.
Houston, Texas
Baltimore, Md.
Dallas , Texas
Milwaukee, Wise.
Seattle-Everett, Wash.
Miami, Fla.
San Diego, Calif.
Atlanta, Ga.
Cincinnati , Qhio-Ky.
Kansas City, Mo.
Buffalo, N.Y.
AQCR£ _AR£A
036 Denver, Colo.
030 San Jose, Calif.
106 New Orleans, La.
015 Phoenix, Ariz.
193 Portland, Ore.-Wash.
080 Indianapolis-, IncL
120 Providence-Pawtucket-
Warwlck, R.I.-Mass.
176 Columbus, Ohio
217 San Antonio, Texas
078 Louisville, Ky.-Ind.
173 Dayton, Ohio
215 Fort Worth, Texas
223 Norfolk-Portsmouth, Va.
018 Memphis, Tenn.-Miss.
028 Sacramento, Calif.
050 Ft. Lauderdale -
Hollywood, Fla.
160 Rochester, N.Y.
033 San Bernardino-Riverside,
Calif.
184 Oklahoma City, Okla.
004 Birmingham, Ala.
174 Akron, Ohio
049 Jacksonville, Fla.
042 Springfield-Chicopee-
Holyoke, Mass.-Conn.
*As defined in U.S. Bureau of the Census, "1970 Census Users' Guide;"
U.S. Government Printing Office, Washington, D.C., 1970 (p. 82).
**U.S. Bureau of Census, "U.S. Census of Population:
Inhabitants; Final Report PC (1)-A1; United States
Government Printing Office, Washington, D.C. 1971.
1970; Number of
Summary. U.S.
27
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TABLE 2
URBANIZED AREAS WITH LEAD AIR CONCENTRATIONS
EXCEEDING OR EQUAL TO 1.5 jjg/m3, MAXIMUM MONTHLY MEAN
(1975)
AQCR # AREA
004 Birmingham9 Ala.
003 Gads den, Ala.
007 Huntsville, Ala.
005 Mobile, Ala.
005 Jackson, Miss.
002 Montgomery, Ala.
009 Fairbanks, Alaska
015 Phoenix, Ariz.
015 Tucson, Ariz.
031 Fresno, Calif.
024 Los Angeles, Calif.
028 Sacramento, Calif.
033 San Bernardino, Calif.
029 Dan Diego, Calif.
030 San Francisco, Calif.
030 San Jose, Calif.
036 Denver, Colo.
043 Bridgeport, Conn.
043 Paterson, N.J.
043 New York City, N.Y.
042 New Haven, Conn.
042 Waterbury, Conn.
042 Springfield, Mass.
045 Wilmington, Del.
045 Trenton, N.J.
045 Philadelphia, Pa.
047 Washington, D.C.
049 Jacksonville, Fla.
052 Tampa-St. Petersburg, Fla.
067 Chicago, 111.
067 Gary, Ind.
065 Peoria, 111.
076 Muncie, Ind.
069 Davenport, la.
092 Des Moines, la.
103 Huntington, Ky.
102 Lexington, Ky.
078 Louisville, Ky.
120 Providence , R. I.
123 Detroit, Mich.
28
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Grand Rapids, i'iich,
131 Minneapolis , Minn.
094 Kansas City, Mo.
070 Si, Louis," Mo,
085 Omaha, Neb
013 Las Veqas , Nev.
148 Reno, Nev.
158 Utlca, N.Y.
167 Charlotte, N.C.
166 Durham, N.C.
165 Wlnston-Salenij N.C.
176 Columbus , Ohio
184 Oklahoma City, Okla.
193 Portland, Ore.
151 Allentown, Pa.
151 Scranton, Pa.
196 Lancaster, Pa.
244 San Juan, P.R.
200 Columbia, S.C.
202 Greenville, S.C.
055 Chattanooga, Tenn.
207 Knoxville, Tenn.
018 Memphis, Tenn.
214 Corpus Christi , Tex.
215 Dallas, Tex.
153 El Paso, Tex.
216 Houston, Tex.
222 Lynchburg, Va.
223 Norfolk, Va.
229 Seattle, Wash.
234 Charleston, M.Va.
Source: Data from EPA's Environmental Monitoring Support Laboratory,
Statistical and Technical Analysis Branch
29
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TABLE 3
URBANIZED AREAS WITH LEAD AIR CONCENTRATIONS
EQUAL TO OR EXCEEDING 4.0 pg/m3, MAXIMUM MONTHLY MEAN
(1975)
\2CR£ AREA
15 Phoenixs Ariz.
24 Los Angeles , Calif.
29 San Diego, Calif.
57 Chicago, 111.
115 Baltimore, Md.
197 Pittsburgh, Pa.
218 San Antonio , Tex.
Source: Data from EPA's Environmental Monitoring Support Laboratory,
Statistical and Technical Analysis Branch
Date Administrator
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It is proposed to amend 40 CFR Part 51 as follows:
1. In section 51.1, paragraph (k) is revised and paragraph (n)
is amended by adding subdivision (11) as follows:
§51,1 Definitions,
* * * A •>
(k) "Point source" means the following:
(1) For participate matter, sulfur oxides, carbon monoxide,
hydrocarbons, and nitrogen dioxide--
(1) Any stationary source causing emissions in excess of
90.7 metric tons (100 tons) per year of the pollutant in a region
containing an area whose 1970 "urban place" population, as defined
by the U.S. Bureau of the Census, was equal to or greater than one
mi 11i on ;
(11) Any stationary saurce causing emissions in excess of
22.7 metric tons (25 tons) per year of the pollutant in a region
containing an area whose 1970 "urban place" population, as defined
by the U.S. Bureau of the Census was less than one million; or
(111) Without regard to amount of emissions, stationary
sources such as those listed in Appendix C to this part.
(2) For lead, any stationary source causing emissions in
excess of 4.54 metric tons (five tons) per year.
* * * * *
(n) * * *
(11) Control or prohibition of a fuel or fuel additive used
in motor vehicles.
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2. Section 51.12, paragraph (e) is amended by adding subdivision
(3) as follows:
S 51.12 Control Strategy: General.
* * * * *
(e) * * *
(3) This paragraph covers only plans to attain and maintain
the national standards for participate matter, sulfur oxides, carbon
rnonoxides photochemical ox1dantss hydrocarbons, and nitrogen dioxide.
* * * * *
3. Section 51.17 is amended by (1) revising the heading to read
"Air quality surveillance: Particulate matter, sulfur oxides,
carbon monoxide, photochemical oxidantSj, hydrocarbons, and nitrogen
dioxide," and (2) adding paragraph (d) as follows:
S 51.17 Air quality surveillance: Particulate matter, sulfur oxides,
carbon monoxide, photochemical oxidants9 hydrocarbons, and
nitrogen dioxide.
* * * * *
(d) This section covers only plans to attain and maintain the
national standards for parti culate matter, sulfur oxides, carbon
monoxide, photochemical oxidants* hydrocarbons, and nitrogen dioxide.
32
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4, A new section 51.17b Is welded as follows'
S 51.175 Air quality surveillance: lead,
(a) The plan must provide Tor the establishment of at least
two permanent lead ambient air quality monitors in each 'jrbani^ed
area (as defined by the U.S. Bureau of the Census)--
(1) That has a 1970 population greater than 500,000; or
(2) Where lead air quality levels currently exceed or have
•3
exceeded 1.5 ,ug/m monthly arithmetic mean measured since January
1, 1974.
(b) The monitors must be operated on a minimum sampling
frequency of one 24-hour sample every six days.
(c) The sampling network described in the plan must contain
at least one roadway type monitoring site and at least one neigh-
borhood site and be sited in accordance with the procedures speci-
fied in EPA's "Supplementary Guidelines for Lead Implementation
Plans."
(d) The two sites will be part of the "National Air Quality
Trends Stations" (NAQTS).
(e) The Regional Administrator may specify more than two monitors
if he finds that two monitors are Insufficient to adequately determine
if the lead standard is being attained and maintained. He may also
specify monitors in areas outside the areas covered in paragraph (a)
of this section. These additional monitors will be part of the "State
and Local Air Monitoring Stations" (SLAMS).
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(f) The plan must include a description of the proposed sampling
sites.
(g) The following elements of the monitoring system must
follow 40 CFR Part 50:
(1) The type of monitor,
(2) The procedures for operating the monitor.
(3) The procedures for analysis of the samples collected
from the monitors.
(h) Existing sampling sites being used for sampling parti-
culate matter may be designated as sites for sampling lead if they
meet the siting criteria of "Supplementary Guidelines for Lead Imple-
mentation Plans",
(1) The plan must provide that all lead air quality samplers
will be established and operational as expeditiously as practicable
but no later than two years after the date of the Administrator's
approval of the plan.
(j) The analysis of the 24-hour samples may be performed for
either individual samples or composites of the samples collected
over a calendar month.
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5. A new subpart E is added as follows:
Subpart E—Control Strategy: Lead
S 51.80 Demonstration of attainment.
S 51.81 Emissions data
S 51.82 A1r quality data.
S 51.83 Certain urbanized areas.
S 51.84 Areas around significant point sources.
§ 51.85 Other areas.
§ 51.36 Data bases.
S 51.87 Measures.
S 51.88 Data availability.
5 51.80 Demonstration of attainment.
(a) Each plan must contain a demonstration that the standard
will be attained and maintained in the following areas:
(1) Areas in the vicinity of the following point sources of lead:
— Primary lead smelters.
—Secondary lead smelters.
—Primary copper smelters.
—Lead gasoline additive plants.
—Lead-acid storage battery manufacturing plants that
produce 1200 or more batteries per day.
___/\ny other stationary source that emits 25 or more tons
per year of lead or lead compounds.
(2} Any other area that has lead air concentrations in excess of
the national standard for lead, measured since January 1, 1974.
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The plan must demonstrate that the measures, rules, and
regulations contained 1n the plan are adequate to provide for the
attainment of the national standard for lead within the time prescribed
by the Act and for the maintenance of that standard for a reasonable
period thereafter.
(c) The plan must include the following:
(1) A summary of the computation, assumptions, and judgments used
to determine the reduction of emissions or reduction of the growth in
emissions that will result from the application of the control
strategy.
(2) A presentation of emission levels expected to result from
application of each measure of the control strategy.
(3) A presentation of the air quality levels expected to result
from application of the overall control strategy presented either in
tabular form or as an isopleth map showing expected maximum concen-
trations.
§ 51.81 Emissions data.
(a) The plan must contain a summary of the baseline lead emission
Inventory based upon measured emissions or, where measured emissions
are not available,, documented emission factors. The point source
inventory on which the summary is based must contain all sources that
emit five or more tons of lead per year. The inventory must be
summarized in a form similar to that shown in Appendix -D_
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(t>) The plan must contain a surrmary of projected lead emissions
for--
(1) at least three years from the date by which EPA must approve or
disapprove the plan if no extension under section 110(e) of the Clean
Air Act is granted;
(2) at least five years from the date by which EPA must approve or
disapprove the plan if an extension is requested under section HC(e)
of the Clean Air Act; or
(3) any other longer period if required by the Administrator.
(c) The plan must contain a description of the method used to
project emissions.
(d) The plan must contain an identification of the sources of
the data used in the projection of emissions.
S 51.82 Air quality data.
(a) The plan must contain a summary of all lead air quality data
measured since January 1974. The plan must include an evaluation of
the data for reliability, suitability for calibrating dispersion models
(when such models will be used), and representativeness. Where possible,
the air quality data used must be for the same baseline year as for the
emission inventory.
(b) If additional lead air quality data are desired to determine
lead air concentrations in areas suspected of exceeding the lead
national ambient air quality standard, the plan may include data from
any previously collected filters from particulate matter high volume
samplers. In determining the lead content of the filters for control
strategy demonstration purposes, a State may use methods other than
the reference method, such as x-ray fluorescence.
37
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(c) The plan must also contain a tabulation of, or isopleth map
showing, maximum air quality concentrations based upon projected emis-
sions.
S 51.83 Certain urbanized areas.
For urbanized areas with measured lead concentrations in excess
of 4.0 yg/m , monthly mean measured since January 1 , 1974, the plan
must employ the modified rollback model for the demonstration of
attainment as a minimum, but may use an atmospheric dispersion node!
if desired.
S 51.84 Areas around significant point sources.
(a) The plan must contain a calculation of the maximum lead
air quality concentrations and the location of those concentrations
resulting from the following point sources for the demonstration of
attainment:
— Primary lead smelters.
--Secondary lead smelters.
--Primary copper smelters.
--Lead gasoline additive plans.
--Any other stationary source that emits 25 or more tons per
year of lead or lead compounds.
(b) In performing this analysis, the State shall use an atmos-
pheric dispersion model.
38
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S 51.85 Other areas.
For each area in the vicinity of an air quality monitor that
has recorded lead concentrations in excess of the lead national
standard, the plan must employ the modified rollback model as a
minimum, but may use an atmospheric dispersion model if desired for
the demonstration of attainment.
S 51.86 Data bases.
(a) For Interstate areas, the analysis from each constituent
State must, where practicable, be based upon the same regional
emission inventory and air quality baseline.
(b) Each State shall submit to the appropriate Regional Office
with the plan, but not as part of the plan, emissions data and infor-
mation related to emissions as Identified by the following:
(1) The National Emission Data System (NEDS) point source
coding forms for all lead point sources, and area source coding forms
for all lead sources that are not lead point sources.
(2) The Hazardous and Trace Emissions System (HATREMS) point
source coding forms for all lead point sources, and area source
coding forms for all lead sources that are not lead point sources.
(c) Air quality data.
Each State shall submit to the appropriate Regional Office with
the plan, but not as part of the plan, all lead air quality data measured
since January 1, 1974, in accordance with the procedures and data
forms specified in chapter 3.4.0 of the "AEROS User's Manual" con-
cerning Storage and Retrieval of Aerometric Data (SAROAD).
39
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S 51.87 Measures.
The lead control strategy must Include the following:
(a) A description of each control measure that is incorporated
into the lead plan.
(b) Copies of or citations to the enforceable laws and regulations
to implement the measures adopted in the lead plan.
(c) A description of the administrative procedures to be used in
implementing each selected control measure.
(d) A description of enforcement methods including, but not limited
to, procedures for monitoring compliance with each of the selected con-
trol measures, procedures for handling violations, and a designation of
agency responsibility for enforcement or implementation.
S 51.88 Data availability.
(a) The State shall retain all detailed data and calculations used
in the preparation of lead analyses and plan, make them available for
public inspection, and submit them to the Administrator at his request.
(b) The detailed data and calculations used in the preparation
of the lead analyses and control strategies is not considered a part
of the lead plan.
(Sections 110 and 301(a) of the Clean Air Act as amended (42 USC 7410,
7601))
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