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)™   ÔÝ  ÝÔ_ÔѰXÑѰ8ÑñÊ)ñÒTÒñÊ)ñÒ°(ÒñÊ)ñÒ°TÒñÊ)ñÑ  ÑÓ€ÓÔ€  7   )™ÔÔ€ X\ùX  7Ôà€ppV(#à[Billing€Code€6560„50]ˆÐ ° ÐñÊ)ññÉ)ñÒ°ÒñÉ)ññÊ)ñÌÑ7€\ùXXdæ  dÔ7Ñà@  .ìàENVIRONMENTAL€PROTECTION€AGENCYˆÐ b² Ðà@^^0ìà40€Ô_ÔCFRÔ_Ô€PARTS€64,€70,€AND€71ˆÌà@GG1ìà[IL„64„2„5807;€FRL„_____]ˆÌà@õ õ .ìàCompliance€Assurance€MonitoringˆÌAGENCY:€€Environmental€Protection€Agency€(EPA).ÌACTION:€€€Final€rule;€Final€rule€revisions.ÌSUMMARY:€€Pursuant€to€requirements€concerning€enhanced€monitoring€andÏcompliance€certification€under€the€Clean€Air€Act€(the€Act),€EPA€is€promulgating€newÏregulations€at€40€Ô_ÔCFRÔ_Ô€part€64€and€revised€regulations€at€40€Ô_ÔCFRÔ_Ô€parts€70€and€71€toÏimplement€compliance€assurance€monitoring€(CAM)€for€major€stationary€sources€of€airÏpollution€that€are€required€to€obtain€operating€permits€under€title€V€of€the€Act.€€SubjectÏto€certain€exemptions,€the€new€regulations€require€owners€or€operators€of€such€sourcesÏto€conduct€monitoring€that€satisfies€particular€criteria€established€in€the€rule€to€provide€aÏreasonable€assurance€of€compliance€with€applicable€requirements€under€the€Act.€ÏMonitoring€will€focus€on€emissions€units€that€rely€on€pollution€control€device€equipmentÏto€achieve€compliance€with€applicable€standards.€€The€regulations€also€provideÏprocedures€for€coordinating€these€new€requirements€with€EPA's€operating€permitsÏprogram€regulations€under€40€Ô_ÔCFRÔ_Ô€parts€70€and€71.€€Revisions€to€the€operating€permitsÏprogram€regulations€clarify€the€relationship€between€the€64€requirements€and€periodicÏmonitoring€and€compliance€certification€requirements€in€parts€70€and€71.€€TheÏÔ_ÔrulemakingÔ_Ô€is€estimated€to€improve€compliance€with€existing€regulations€which€willÏpotentially€reduce€the€need€for€further€regulation€to€achieve€clean€air€goals€at€a€costÏsignificantly€less€than€that€of€the€1993€proposed€rule.ÌDATES:€€The€effective€date€of€this€rule€is€[òò€insert€date€30€days€after€publication€in€theÐ a&±!2 ÐFederal€Registeróó].Ð º' #4 ÐADDRESSES:€€òòDocketóó.€€Supporting€information€used€in€developing€the€regulations€isÐ )c$6 Ðcontained€in€Docket€No.€A„91„52.€€This€docket€is€available€for€Ô_Ôpublic€inspection€andÏcopying€between€8:00€a.m.€and€5:30€p.m.€Monday€through€Friday,€excludingÏÔ_Ôgovernment€holidays,€and€is€located€at:€€EPA€Air€Docket€(LE-131),€Room€M„1500,Ð -n(<e ÐWaterside€Mall,€401€M€Street€S.W.,€Washington,€D.C.€20460.€€A€reasonable€fee€may€beÏcharged€for€copying.ÌFOR€FURTHER€INFORMATION€CONTACT:€€Peter€Westlin,€U.S.€EnvironmentalÏProtection€Agency,€Office€of€Air€Quality€Planning€and€Standards,€at€(919)541„1058.ÌSUPPLEMENTARY€INFORMATION:€€The€contents€of€the€preamble€are€listed€in€theÏfollowing€outline:ÌÓo[°X°ü¸ hÀpÈ xÐ (#€%Ø'0*ˆ,à.813è5@8˜:ð<H? A°œXoÓI.€€Background€and€Summary€of€the€RulemakingÌà  àA.€€Statutory€AuthorityÌà0  àB.€€Rulemaking€HistoryÐ (#(# Ðà  àC.€€Overview€of€the€CAM€ApproachÌà  àD.€€Benefits€of€a€CAM€ñÊ)ñœñÊ)ñApproach€and€Potential€Control€CostsñÊ)ñ›ñÊ)ñÌà  àE.€€The€Relationship€of€Part€64€to€Credible€Evidence€and€Enforcement€IssuesÌII.€€Detailed€Discussion€of€Regulatory€ProvisionsÌà0  àA.€€Section€64.1€„€DefinitionsÐ (#(# Ðà  àB.€€Section€64.2€„€ApplicabilityÌà  àC.€€Section€64.3€„€Monitoring€Design€CriteriaÌà  àD.€€Section€64.4€„€Submittal€RequirementsÌà  àE.€€Section€64.5€„€Deadlines€for€SubmittalsÌà0  àF.€€Section€64.6€„€Approval€of€MonitoringÐ (#(# Ðà  àG.€€Section€64.7€„€Operation€of€Approved€MonitoringÌà  àH.€€Section€64.8€„€Quality€Improvement€Plans€(QIPs)Ìà  àI.€€€Section€64.9€„€Reporting€and€RecordkeepingÌà0  àJ.€€Section€64.10€„€Savings€ProvisionsÐ (#(# Ðà  àK.€€Revisions€to€40€CFR€Parts€70€and€71ÌIII.€€Administrative€Requirements€Ìà  àA.€€DocketÌà  àB.€€Executive€Order€12866Ìà  àC.€€Unfunded€Mandates€ActÌà  àD.€€Paperwork€Reduction€ActÌà  àE.€€Regulatory€Flexibility€ActÐ Å+': Ðà  àF.€€Submission€to€Congress€and€the€General€Accounting€OfficeÌà  àThe€first€section€of€this€preamble€provides€an€introduction€to€the€principlesÏunderlying€EPA's€CAM€approach,€the€benefits€of€the€part€64€rulemaking,€andÏbackground€on€the€statutory€provisions€and€key€issues€involved€with€developing€theÏrule.€€This€section€also€summarizes€the€public's€participation€in€the€development€of€theÏrulemaking.€€The€second€section€of€the€preamble€presents€a€more€detailed€summary€ofÏthe€regulations.€€This€section€includes€a€description€of€the€provisions€and€the€basicÏpurpose€of€each€provision.€€This€section€also€describes€the€Agency's€response€to€theÏcomments€received€on€the€original€proposal,€as€supplemented€by€additional€commentsÏduring€subsequent€periods€in€which€public€input€was€requested€and€obtained.€TheÏpreamble€describes€how€the€final€rule€has€been€changed€from€the€proposal€in€responseÏto€the€input€received.€€The€final€section€of€the€preamble€addresses€administrativeÏrequirements€for€Federal€regulatory€actions.€Ìà  àThe€preamble€includes€many€citations€which€refer€the€reader€to€more€detailedÏdiscussions€of€a€topic€or€to€the€origin€of€certain€requirements.€€These€citation€sectionsÏgenerally€will€not€be€followed€by€their€source,€such€as€"of€this€preamble"€or€"of€the€Act."€ÏRather,€the€reader€can€recognize€the€origins€of€the€sections€by€their€nature:€€sections€ofÏthe€preamble€begin€with€a€Roman€numeral;€sections€of€the€regulations€in€40€CFR€partÏ64€range€from€ðððð€64.1€to€64.11;€sections€of€the€regulations€in€40€CFR€part€70€rangeÏfrom€ðððð70.1€to€70.11;€sections€of€other€existing€EPA€regulations€are€preceded€by€40ÏCFR;€and€sections€of€the€Act€are€referenced€by€a€three„digit€number,€such€as€114€orÏ504.Ìà  àThis€preamble€often€refers€to€"State"€or€"permitting€authority."€€The€reader€shouldÏassume€that€where€the€preamble€refers€to€a€"Stateðð,€such€term€also€includes€local€airÏpollution€agencies,€Indian€tribes,€and€territories€of€the€United€States€to€the€extent€theyÏare€or€will€be€the€permitting€authority€for€their€area,€or€have€been€or€will€be€delegatedÏpermitting€responsibilities€under€the€Act.€€In€addition,€the€term€"permitting€authority"Ïwould€also€include€EPA€to€the€extent€EPA€is€the€permitting€authority€of€record.Ìà  àFinally,€this€preamble€often€refers€to€40€CFR€part€70,€the€regulationsÏpromulgated€July€21,€1992,€implementing€the€operating€permits€program€under€title€V€ofÐ Å+': Ðthe€Act€(57€FR€32250).€€The€EPA€has€proposed€revisions€to€those€regulations€onÏAugust€29,€1994€(59€FR€44460),€and€August€31,€1995€(60€FR€45530).€€ThoseÏregulations,€including€the€proposed€revisions,€provide€requirements€applicable€toÏfederally„approved,€State„administered€operating€permits€programs.€€Where€a€StateÏfails€to€submit€an€approvable€program€or€to€adequately€administer€and€enforce€anÏapproved€program,€EPA€will€have€to€promulgate,€administer€and€enforce€a€FederalÏprogram€for€title€V€permits€in€that€State.€€The€reader€should€assume€that€where€theÏpreamble€refers€to€40€CFR€part€70,€such€term€may€also€refer€to€an€EPA„administeredÏ(Federal)€operating€permits€program,€which€EPA€has€promulgated€under€40€CFR€partÏ71€(see€July€1,€1996,€61€FR€34202).ÌI.€€òòBackground€and€Summary€of€the€Rulemakingóó€Ð *z  Ðà  àA.€€òòStatutory€AuthorityóóÐ ƒÓ Ðà  àThe€part€64€regulations€respond€to€the€statutory€mandate€in€the€Clean€Air€ActÏAmendments€of€1990.€€The€1990€Amendments€contain€several€provisions€directing€theÏAgency€to€require€owners€or€operators€to€conduct€monitoring€and€to€make€complianceÏcertifications.€€These€provisions€are€set€forth€in€both€title€V€(operating€permitsÏprovisions)€and€title€VII€(enforcement€provisions)€of€the€1990€Amendments.Ìà  àTitle€V€directs€the€Agency€to€implement€monitoring€and€compliance€certificationÏrequirements€through€the€operating€permits€program.€€Section€503(b)(2)€requires€atÏleast€annual€certifications€of€compliance€with€permit€requirements€and€prompt€reportingÏof€deviations€from€permit€requirements.€€Section€504(a)€mandates€that€owners€orÏoperators€submit€to€the€permitting€authority€the€results€of€any€required€monitoring€atÏleast€every€six€months.€€This€section€also€requires€permits€to€include€"such€otherÏconditions€as€are€necessary€to€assure€compliance€with€applicable€requirements"€of€theÏAct.€€Section€504(b)€of€the€Act€also€allows€the€Agency€to€prescribe,€by€rule,€methodsÏand€procedures€for€determining€compliance,€and€states€that€continuous€emissionÏmonitoring€systems€need€not€be€required€if€other€methods€or€procedures€provideÏsufficiently€reliable€and€timely€information€for€determining€compliance.€€UnderÏsection504(c),€each€operating€permit€must€"set€forth€inspection,€entry,€monitoring,Ïcompliance€certification,€and€reporting€requirements€to€assure€compliance€with€theÐ Å+': Ðpermit€terms€and€conditions."Ìà  àTitle€VII€of€the€1990€Amendments€added€a€new€section114(a)(3)€that€requiresÏEPA€to€promulgate€rules€on€enhanced€monitoring€and€compliance€certifications.€€ThisÏparagraph€provides,€in€part:ÌÓ€Óà8  àThe€Administrator€shall€in€the€case€of€any€person€which€is€the€owner€orÏoperator€of€a€major€stationary€source,€and€may,€in€the€case€of€any€otherÏperson,€require€enhanced€monitoring€and€submission€of€complianceÏcertifications.€€Compliance€certifications€shall€include€(A)€identification€ofÏthe€applicable€requirement€that€is€the€basis€of€the€certification,€(B)€theÏmethod€used€for€determining€the€compliance€status€of€the€source,€(C)€theÏcompliance€status,€(D)€whether€compliance€is€continuous€or€intermittent,Ï(E)€such€other€facts€as€the€Administrator€may€require.Ð Ð Ð  ÐÌÓ€g&Óà  àThe€1990€Amendments€also€revised€section€114(a)(1)€of€the€Act€to€provideÏadditional€authority€concerning€monitoring,€reporting,€and€recordkeeping€requirements.€ÏAs€amended,€that€section€provides€the€Administrator€with€the€authority€to€require€anyÏowner€or€operator€of€a€source:ÌÓ€Óà0  àon€a€one„time,€periodic€or€continuous€basis€to€„€Ð (#(# Ðà0  à(A)€€establish€and€maintain€such€records;Ð (#(# Ðà0  à(B)€€make€such€reports;Ð (#(# Ðà0  à(C)€€install,€use,€and€maintain€such€monitoring€equipment;Ð (#(# Ðà0  à(D)€€sample€such€emissions€(in€accordance€with€such€procedures€or€methods,€atÏsuch€locations,€at€such€intervals,€during€such€periods€and€in€such€manner€as€theÏAdministrator€shall€prescribe);Ð (#(# Ðà0  à(E)€€keep€records€on€control€equipment€parameters,€production€variables,€orÏother€indirect€data€when€direct€monitoring€of€emissions€is€impractical;Ð (#(# Ðà0  à(F)€€submit€compliance€certifications€in€accordance€with€section€114(a)(3);€andÐ (#(# Ðà0  à(G)€€provide€such€other€information€as€the€Administrator€may€reasonably€require.Ð (#(# ÐÌÓ€Óà  àB.€€òòRulemaking€HistoryóóÐ V"¦% Ðà  àThe€EPA€has€acted€to€implement€the€statutory€provisions€discussed€above€in€twoÏseparate€ways.€€First,€the€part€70€operating€permits€program€includes€basic€monitoringÏand€compliance€certification€requirements.€€Section€70.6(a)(3)(i)€requires€that€permitsÏinclude€all€existing€monitoring€and€testing€requirements€set€forth€in€applicableÏrequirements.€€In€many€cases,€the€monitoring€requirements€in€the€underlyingÏregulations€will€suffice€for€assessing€compliance.€€However,€if€particular€applicableÏrequirements€do€not€include€periodic€testing€or€monitoring,€then€ðð70.6(a)(3)(i)(B)Ð Å+'3 Ðrequires€the€permit€to€include€"periodic€monitoring"€to€fill€that€gap.€€Section€70.6(c)(5)(iii)Ïrequires€the€submittal€of€compliance€certifications€no€less€frequently€than€annually,€andÏgenerally€incorporates€the€language€on€compliance€certifications€included€in€sectionÏ114(a)(3)€of€the€Act.Ìà  àTo€implement€the€statutory€requirement€for€enhanced€monitoring,€EPA€hasÏdeveloped€through€this€rulemaking€a€general€monitoring€rule€in€40€CFR€part€64€to€beÏimplemented€through€the€part€70€operating€permits€program.€€The€Agency€first€providedÏnotice€in€the€òòFederal€Registeróó€of€an€opportunity€for€public€review€and€comment€on€thisÐ o  Ðconcept€in€August€1991€(see€56€FR€37700).€€A€public€information€document€was€madeÏavailable,€a€public€meeting€was€held,€and€written€comments€were€received€after€theÏmeeting.€€A€subsequent€public€meeting€was€held€in€August€1993,€and€a€proposed€ruleÏwas€published€on€October€22,€1993€(58€FR€54648).€€This€proposed€rule€is€referred€to€asÏthe€"1993€EM€proposal"€throughout€the€remainder€of€this€preamble.€€Ìà  àThe€Agency€received€approximately€2000€comment€letters€during€the€publicÏcomment€period.€€These€letters€contained€several€thousand€individual€comments€onÏmore€than€500€major€and€minor€issue€topics.€€Because€of€some€of€the€complex€andÏdifficult€issues€raised,€the€Agency€held€a€series€of€stakeholder€meetings€in€the€fall€ofÏ1994,€released€draft€sections€of€a€possible€final€rule,€and€then€officially€reopened€theÏpublic€comment€period€on€specific€issues€on€December€28,€1994€(59€FR€66844).€€AnÏadditional€stakeholder€meeting€was€held€near€the€close€of€that€reopened€commentÏperiod,€and€more€than€200€additional€comment€letters€were€received.Ìà  àIn€April€1995,€EPA€decided€to€shift€the€emphasis€of€part€64.€€The€Agency€issuedÏa€press€release€in€early€April€1995€that€indicated€EPA's€intent€to€hold€a€public€meetingÏto€discuss€the€potential€changes€to€the€proposed€enhanced€monitoring€rule,€and€thenÏcontacted€various€stakeholder€groups€so€that€they€would€have€the€opportunity€toÏparticipate.€€A€formal€notice€of€the€meeting€was€also€published€in€the€òòFederalóó€òòRegisteróóÐ a&±!2 Ðon€May€26,€1995€(60€FR€27943).€€Approximately€200€people€attended€the€meeting€onÏMay€31,€1995,€and€many€additional€people€attended€the€follow„up€meetings€held€inÏJune€1995€in€Washington,€D.C.,€Cincinnati,€Austin,€and€Portland,€Oregon.€€The€AgencyÏthen€drafted€a€preamble€and€rule€for€public€discussion€and€comment,€and€held€anotherÐ Å+': Ðpublic€meeting€in€September€1995.€€(See€60€FR€48679,€September€20,€1995,€for€theÏformal€òòFederalóó€òòRegisteróó€notice€of€that€meeting€and€request€for€comment.)€Ð  Y ÐApproximately€150€people€attended€that€meeting,€and€EPA€received€more€than€60Ïwritten€comment€letters€on€the€draft€rule€package.€€The€Agency€subsequently€issued€aÏdraft€final€part€64€and€discussion€document€in€August€1996€(see€61€FR€41991,€AugustÏ13,€1996)€and€held€another€public€meeting€in€September€1996.€€The€1995€and€1996Ïdraft€rules€are€referred€to€as€the€"1995€part€64€Draft"€and€"1996€part€64€Draft,"Ïrespectively,€throughout€the€remainder€of€this€preamble.€€Approximately€200€peopleÏattended€and€120€written€comment€letters€were€submitted€during€the€comment€period.€ÏThe€Agency€also€has€held€numerous€informal€stakeholder€discussions€with€interestedÏparties€to€discuss€the€CAM€approach,€and€received€additional€written€comments€duringÏthe€period€since€April€1995.€€(See€the€items€in€sections€II„D,€II„E,€IV„D,€IV„E,€IV„F,€VI„D,ÏVI„E,€and€VI„F€of€Docket€A„91„52€for€a€complete€record€of€written€comments€submittedÏby€stakeholders,€and€discussions€between€EPA€and€interested€parties€concerning€theÏrulemaking.)Ìà  àThis€preamble€addresses€the€changes€to€part€64€that€have€been€made€inÏresponse€to€the€significant€public€comment€received€during€the€course€of€theÏrulemaking.€€The€focus€is€on€documenting€the€changes€made€in€response€to€theÏcomments€received€on€the€formal€1993€proposed€rule,€as€well€as€specific€changesÏmade€in€response€to€comments€received€on€the€draft€rule€materials€made€available€inÏ1995€and€1996.€€The€Agency€has€also€prepared€a€detailed,€three„part€Response€toÏComments€Document€which€includes€a€response€to€all€material€comments€on€the€rule.€ÏSee€Docket€Items€A„91„52„VII„C„1€through€VII„C„3.Ìà  àC.€€òòOverview€of€the€CAM€ApproachóóÐ ¯#ÿ. Ðà  à1.€€òòGeneral€Approachóó€€Ð %X 0 Ðà  àThe€CAM€approach€as€defined€in€part€64€is€intended€to€address€the€requirementÏin€title€VII€of€the€1990€Amendments€that€EPA€promulgate€enhanced€monitoring€andÏcompliance€certification€requirements€for€major€sources,€and€the€related€requirement€inÏtitle€V€that€operating€permits€include€monitoring,€compliance€certification,€reporting€andÏrecordkeeping€provisions€to€assure€compliance.€€The€EPA€has€long€recognized€thatÐ Å+': Ðobtaining€ongoing€compliance€is€a€two„step€process.€€First,€the€Agency€must€determineÏwhether€properly€designed€control€measures€„„€including,€as€applicable,€control€devices,Ïprocess€modifications,€operating€limitations€or€other€control€measures€„„€are€installed€orÏotherwise€employed,€and€that€those€control€measures€are€proven€to€be€capable€ofÏachieving€applicable€requirements.€€In€the€past,€this€step€has€been€addressed€throughÏnew€source€review€permitting,€initial€stack€testing,€compliance€inspections€and€similarÏmechanisms.€€The€title€V€permit€application€and€review€process,€including€theÏapplicant's€initial€compliance€certification€and€compliance€plan€obligations,€will€addÏanother€tool€for€assuring€that€source€owners€or€operators€have€adopted€the€properÏcontrol€measures€for€achieving€compliance.€€The€second€step€is€to€monitor€to€determineÏthat€the€source€continues€to€meet€applicable€requirements.€€An€important€aspect€of€thisÏsecond€step€is€to€assure€that€the€control€measures,€once€installed€or€otherwiseÏemployed,€are€properly€operated€and€maintained€so€that€they€do€not€deteriorate€to€theÏpoint€where€the€owner€or€operator€fails€to€remain€in€compliance€with€applicableÏrequirements.€€The€Agency€believes€that€monitoring,€reporting,€recordkeeping€andÏongoing€or€recurring€compliance€certification€requirements€under€title€VII€should€beÏdesigned€so€that€owners€or€operators€carry€out€this€second€step€in€assuring€ongoingÏcompliance.Ìà  àThere€are€two€basic€approaches€to€assuring€that€control€measures€taken€by€theÏowner€or€operator€to€achieve€compliance€are€properly€operated€and€maintained€so€thatÏthe€owner€or€operator€continues€to€achieve€compliance€with€applicable€requirements.€ÏOne€method€is€to€establish€monitoring€as€a€method€for€directly€determining€continuousÏcompliance€with€applicable€requirements.€€The€Agency€has€adopted€this€approach€inÏsome€rulemakings€and,€as€discussed€below,€is€committed€to€following€this€approachÏwhenever€appropriate€in€future€rulemakings.€€Another€approach€is€to€establishÏmonitoring€for€the€purpose€of:€(1)€documenting€continued€operation€of€the€controlÏmeasures€within€ranges€of€specified€indicators€of€performance€(such€as€emissions,Ïcontrol€device€parameters€and€process€parameters)€that€are€designed€to€provide€aÏreasonable€assurance€of€compliance€with€applicable€requirements;€(2)€indicating€anyÏexcursions€from€these€ranges;€and€(3)€responding€to€the€data€so€that€excursions€areÐ Å+': Ðcorrected.€€The€part€64€published€today€adopts€this€second€approach€as€an€appropriateÏapproach€to€enhancing€monitoring€in€the€context€of€title€V€permitting€for€significantÏemission€units€that€use€control€devices€to€achieve€compliance€with€emission€limits.€€ForÏunits€not€covered€by€part€64,€a€similar€but€less€detailed€approach€is€provided€for€in€theÏmonitoring€and€related€recordkeeping€and€reporting€provisions€of€part€70€(see€ððÏ70.6(a)(3)).Ìà  à€The€rule€defines€"control€devices"€to€mean€equipment€that€removes€pollutants€orÏtransforms€pollutants€to€passive€emissions€(see€ðð64.1),€as€opposed€to€other€controlÏmeasures,€such€as€process€modifications,€material€substitution,€and€other€controlÏoptions.€€For€significant€units€that€use€control€devices€to€achieve€compliance,€the€ownerÏor€operator€will€have€to€develop€and€propose,€through€the€part€70€permit€process,Ïmonitoring€that€meets€specified€criteria€for€selecting€appropriate€indicators€of€controlÏperformance,€establishing€ranges€for€those€indicators,€and€for€responding€to€anyÏexcursions€from€those€ranges.€€The€final€rule€also€includes€performance€and€operatingÏcriteria€that€must€be€achieved,€as€well€as€documentation€requirements€for€theÏmonitoring€proposed€by€the€owner€or€operator.€€Ìà  àThe€final€element€of€part€64€is€the€concept€of€a€quality€improvement€plan€(QIP).€ÏUnder€the€final€rule,€a€QIP€may€be€required€where€the€owner€or€operator€has€failed€toÏsatisfy€the€general€duty€to€properly€operate€and€maintain€an€emissions€unit€(includingÏthe€applicable€control€device)€or€the€owner€or€operator€has€evidence€of€a€failure€toÏcomply€with€an€applicable€requirement,€as€determined€through€part€64€monitoring€dataÏand/or€other€appropriate€information€(such€as€inspections).€€The€rule€allows€for€theÏpermit€to€establish€a€"bright€line"€test€for€implementing€a€QIP,€but€does€not€require€suchÏa€test.€€Ìà  àThe€QIP€would€include€both€an€initial€"problem€investigation"€phase€and€aÏ"corrective€action"€phase.€€The€rule€provides€for€the€QIP€mechanism€so€that€permittingÏauthorities€have€a€specific€regulatory€tool€to€address€situations€in€which€an€owner€orÏoperator€operates€in€a€manner€that€involves€excursions€followed€by€ineffective€actionsÏto€bring€the€monitored€indicators€back€into€the€acceptable€ranges€established€in€theÏpermit.€€Thus,€the€QIP€will€help€assure€that€the€owner€or€operator€pays€attention€to€theÐ Å+': Ðdata€and,€if€necessary,€improves€performance€to€the€point€where€ongoing€complianceÏwith€applicable€requirements€is€reasonably€assured.€€See€Section€II.H.€for€furtherÏdiscussion€of€QIP€issues.Ìà0  à2.€€òòImplementation€through€Permitsóóà  àл (#(# Ðà  àa.€€òòBurdens€to€the€Permitting€Processóó.€€Many€commenters,€including€State€andÐ  d Ðlocal€agencies,€industry,€and€environmental€groups€raised€concerns€in€their€commentsÏthat€the€part€64€process€of€selecting€the€appropriate€monitoring€for€a€particular€sourceÏwould€overburden€the€permitting€process€and€lead€to€poor€implementation.€€The€AgencyÏis€very€sensitive€to€these€concerns;€however,€the€Agency€continues€to€believe€that,Ïconsistent€with€the€preamble€to€the€1993€EM€proposal,€the€permit€implementationÏapproach€provides€the€greatest€amount€of€flexibility€to€the€regulated€community€andÏStates€while€at€the€same€time€ensuring€that€enhanced€monitoring€will€be€implementedÏfor€all€major€sources€in€a€reasonably€expeditious€time€frame.€€In€addition,€the€AgencyÏhas€taken€several€significant€steps€in€the€final€rule€to€reduce€the€potential€burden€to€theÏpermitting€process,€including€the€actions€discussed€below.Ìà  ài.€€òòApplicabilityóó.€€The€focus€of€applicability€on€those€pollutant„specific€emissionsÐ ç7 Ðunits€that€rely€on€control€devices€to€achieve€compliance€has€reduced€the€estimatedÏnumber€of€units€that€will€be€subject€to€part€64€and€also€has€reduced€the€variety€ofÏemissions€unit€types€that€will€be€affected€by€part€64.€€This€reduction€in€the€volume€andÏbreadth€of€units€covered€by€part€64€will€reduce€the€overall€burdens€on€the€permitÏprocess.Ìà  àii.€€òòExtended€Implementation€Periodóó.€€As€discussed€in€Section€II.E.,€the€final€ruleÐ ý M* Ðprovides€for€a€new€extended€implementation€schedule.€€Only€those€units€which€areÏmajor€units€based€on€their€potential€to€emit€will€be€subject€to€part€64€requirements€priorÏto€the€renewal€of€an€initial€part€ñË)ñ64ñË)ññÌ)ñ70ñÌ)ñ€permit.€€In€addition,€in€many€cases,€implementationÏwill€not€be€required€for€these€large€units€until€permit€renewal.€€For€the€smaller€unitsÏcovered€by€part€64,€implementation€will€not€occur€until€permit€renewal.€This€extendedÏimplementation€schedule€will€relieve€much€of€the€burden€on€source€owners€or€operatorsÏto€develop€and€prepare€proposed€monitoring€during€the€initial€part€70€permitting€processÏand€will€similarly€relieve€the€burdens€of€the€approval€process€on€permitting€authorities.Ð Å+': Ðà  àiii.€€òòGuidance€Development€Processóó.€€The€Agency€is€committed€to€developingÐ ° Ðnon„prescriptive€examples€of€the€types€of€monitoring€that€can€be€used€to€satisfy€part€64Ïfor€various€types€of€control€devices€and€emissions€units.€The€guidance€developmentÏprocess€will€provide€an€opportunity€for€source€owners€or€operators€and€other€interestedÏparties€to€submit€suggestions,€review€drafts€and€generally€clarify€the€part€64Ïrequirements.€€The€Agency€emphasizes€that€the€development€of€example€monitoringÏapproaches€is€intended€to€assist€both€regulated€industry€and€permitting€authorities€toÏstreamline€permit€review€in€those€instances€where€a€source€owner€or€operator€proposesÏmonitoring€based€on€one€of€the€examples.€€These€examples€should€not€be€consideredÏas€an€implied€limitation€on€the€owner€or€operator's€ability€to€propose€a€differentÏapproach€that€the€owner€or€operator€can€demonstrate€satisfies€the€part€64€requirementsÏor€on€the€permitting€authorityððs€authority€to€require€additional€monitoring.Ìà  àiv.€€òòGeneral€Clarificationsóó.€€Finally,€the€potential€implementation€burdens€haveÐ  #ð, Ðbeen€reduced€by€adopting€many€general€clarifications€in€the€final€rule.€€For€instance,€theÏfinal€rule€clearly€states€that€emissions€units€that€are€not€subject€to€applicableÏrequirements€are€not€required€to€conduct€part€64€monitoring.€€A€second€example€is€theÏstreamlined€performance€and€operating€design€criteria€in€the€final€rule,€which€areÏsubstantially€less€complex€and€burdensome€than€the€comparable€requirements€in€theÏappendices€to€the€1993€EM€proposal.Ð ,`'8 Ðà  àb.€€òòCreation€of€New€Substantive€Standardsóó.€€Many€commenters€argued€that€theÐ ° Ðrequirements€in€part€64€were€inconsistent€with€EPA's€stated€position€that€the€part€70Ïoperating€permits€program€was€intended€solely€to€collect€existing€requirements€in€oneÏdocument,€without€creating€new€substantive€obligations€for€source€owners€or€operators.€ÏThe€Agency€disagrees€with€these€arguments.€€As€mentioned€in€section€I.A.,€the€part€64Ïregulations€respond€to€the€statutory€mandate€in€the€Clean€Air€Act€Amendments€of€1990Ïand€the€part€70€regulations€implement€title€V€of€the€Clean€Air€Act€Amendments€of€1990,Ïwhich€directs€the€Agency€to€implement€monitoring€and€compliance€certificationÏrequirements€through€the€operating€permits€program.€€The€part€64€requirements€areÏindependently€applicable,€substantive€requirements€that€an€owner€or€operator€mustÏachieve.€€The€fundamental€requirements€of€part€64€are€to:€(a)€monitor€compliance€in€aÏmanner€that€is€sufficient€to€yield€data€that€provide€a€reasonable€assurance€ofÏcompliance€and€allow€an€owner€or€operator€to€make€an€informed€certification€ofÏcompliance;€(b)€take€necessary€corrective€actions€in€response€to€the€monitoring€data;Ï(c)€report€on€the€results€of€such€monitoring;€and€(d)€maintain€records€of€suchÏmonitoring.€€None€of€these€fundamental€obligations€under€part€64€will€be€added€as€partÏof€a€part€70€permit€independently€of€part€64.€€What€will€be€added€as€part€of€the€permitÏprocess€are€the€particulars€as€to€how€a€specific€source€owner€or€operator€will€satisfyÏthese€general€part€64€requirements.€€This€type€of€regulatory€structure€is€entirelyÏconsistent€with€the€purpose€of€a€permit€process€which€is€to€specify€how€generalÏobligations€will€be€achieved€in€particular€circumstances.Ìà  àc.€€òòConsistency€of€Implementationóó.€€Implementation€of€part€64€through€the€partÐ 8"ˆ* Ð70€permits€program€means€that€part€64€will€be€implemented€on€a€case„by„case€basis.€ÏMany€industry€and€State€and€local€agencies€supported€EPA's€proposal€to€allow€for€aÏflexible€implementation€approach€that€allows€for€adopting€monitoring€that€is€mostÏappropriate€to€a€particular€emission€unit's€circumstances.€€However,€many€industry,Ïenvironmental€and€State€and€local€agency€commenters€also€raised€concerns€that€theÏcase„by„case€implementation€process€in€part€64€may€not€be€implemented€in€aÏreasonably€consistent€manner€by€different€permitting€authorities.Ð ,`'8 Ðà  àThe€EPA€acknowledges€the€potential€significance€of€these€concerns;€however,ÏEPA€believes€that€they€have€been€overstated€by€the€commenters.€€As€discussed€inÏSection€II.€below,€EPA€has€taken€steps€to€minimize€potential€inconsistencies€byÏsimplifying€and€clarifying€the€final€rule.€€Also,€EPA€must€weigh€these€concerns€againstÏthe€significant€policy€concerns€that€would€exist€if€the€Agency€attempted€to€developÏspecific€enhanced€monitoring€requirements€for€each€NSPS€and€NESHAP€standard,€asÏwell€as€the€burdens€on€States€to€revisit€each€SIP€regulation,€as€well€as€individual€StateÏpreconstruction€and€operating€permits.€€The€administrative€burdens€associated€with€thatÏapproach€would€severely€hinder€the€effective€and€timely€implementation€of€enhancedÏmonitoring€for€most€sources€for€many€years.€€In€addition,€such€an€approach€fails€toÏacknowledge€the€new€benefits€of€the€operating€permits€program€to€tailor€generalÏrequirements€in€a€manner€that€is€most€appropriate€to€the€circumstances€at€a€particularÏsource.€€For€these€reasons,€EPA€believes€that€the€benefits€of€the€permit€implementationÏapproach€far€outweigh€the€concerns€over€consistency€in€implementation.Ìà  àd.€€òòProgrammatic€Optionsóó.€€Some€stakeholders€have€suggested€alternativeÐ `° Ðmeans€of€implementing€part€64€requirements.€€One€alternative€suggested€was€to€allowÏa€State€the€option€of€implementing€part€64€monitoring€requirements€throughÏprogrammatic€rule€changes€instead€of€implementing€CAM€through€source„specific€partÏ64€requirements.€€One€potential€method€for€allowing€this€option€is€to€exempt€from€partÏ64€monitoring€any€emissions€units€for€which€a€State€has€developed€requirementsÏspecifically€designed€to€satisfy€part€64€in€a€rule€that€has€been€submitted€and€approvedÏas€part€of€the€SIP.€€Another€would€be€to€delay€implementation€of€part€64€to€provide€anÏopportunity€for€a€State€to€devise€a€competitive€monitoring€program€for€submittal€to€andÏapproval€by€EPA.Ìà  à€The€final€rule€will€allow€states€to€implement€CAM€through€rulemaking€pertainingÏto€categories€of€sources.€€The€EPA€encourages€States€to€consider€adding€monitoringÏrequirements€to€existing€and€new€rules€that€are€consistent€with€part€64€requirements.€€InÏthis€manner,€the€burdens€associated€with€source„specific€monitoring€development€couldÏbe€reduced.€€To€provide€an€incentive€for€this€type€of€rule,€the€final€rule€includes€aÐ ,`'8 Ðprovision€(see€ðð64.4(b))€that€allows€the€owner€or€operator€to€rely€upon€this€type€ofÏprogrammatic€rule€as€the€primary€documentation€of€the€appropriateness€of€itsÏmonitoring.€€This€approach€would€reduce€the€number€of€case„by„case€reviewsÏnecessary€to€implement€part€64.Ìà  àOn€the€other€hand,€EPA€does€not€agree€with€commenters€who€suggest€thatÏstates€that€choose€to€use€programmatic€rulemaking€should€be€allowed€to€apply€differentÏcriteria€in€determining€monitoring€and€to€have€additional€time€to€implement€such€anÏapproach.€€The€EPA€believes€monitoring€decisions€should€be€made€on€the€same€basisÏwhether€done€on€a€programmatic€or€case„by„case€basis.€€Second,€EPA€questions€bothÏthe€need€for€a€substantial€delay€for€programmatic€rulemaking€and€whether€theÏpurported€advantages€of€a€programmatic€approach€justify€any€substantial€delay.€€TheÏfinal€part€64€does€not€include€an€option€for€permitting€authorities€to€delayÏimplementation€of€part€64€through€use€of€a€programmatic€approach.Ìà  àBecause€of€the€implementation€schedule€for€part€64€(see€Section€II.E.),€ownersÏor€operators€will€not€have€to€implement€part€64€for€many€emissions€units€until€renewal€ofÏinitial€part€70€permits.€€These€include€both€large€units€that€are€at€sources€which€haveÏalready€received€or€are€in€the€process€of€receiving€part€70€permits,€and€smaller€units€forÏwhich€the€rule€explicitly€delays€implementation€until€permit€renewal.€€This€scheduleÏprovides€substantial€time€for€States€to€adopt€SIP€regulations,€as€discussed€above,€thatÏare€consistent€with€part€64,€especially€for€smaller€units€that€could€most€benefit€fromÏgeneric€monitoring€requirements€that€could€be€developed€through€programmatic€SIPÏrule€changes.Ìà  à3.€€òòLimited€Purpose€of€Part€64óóÐ  #ð, Ðà  àPart€64€is€intended€to€provide€a€reasonable€means€of€supplementing€existingÏregulatory€provisions€that€are€not€consistent€with€the€statutory€requirements€of€titles€VÏand€VII€of€the€1990€Amendments€to€the€Act.€€The€EPA€believes€that€the€CAM€approachÏis€a€reasonable€approach€commensurate€with€this€role.€€The€Agency€does€not€believeÏthat€existing€monitoring€requirements€that€are€more€rigorous€than€part€64€should€beÏreduced€or€that€monitoring€imposed€in€future€regulatory€actions€necessarily€should€beÐ ,`'8 Ðguided€by€part€64.€€Ìà  àIf€existing€requirements€are€more€rigorous€than€part€64,€those€requirementsÏshould€continue€to€exist€unaffected€by€part€64.€€This€point€is€made€explicitly€in€severalÏinstances€in€the€final€rule.€€In€addition,€EPA€is€committed€to€developing€new€emissionÏstandards€subsequent€to€the€1990€Amendments€with€methods€specified€for€directlyÏdetermining€continuous€compliance€whenever€possible,€taking€into€account€technicalÏand€economic€feasibility,€and€other€pertinent€factors.€€In€recognition€of€this€EPAÏcommitment,€the€rule€exempts€New€Source€Performance€Standards€(NSPS)€andÏNational€Emission€Standards€for€Hazardous€Air€Pollutants€(NESHAP)€rules€that€areÏproposed€after€the€1990€Amendments€to€the€Act€from€part€64€requirements.€€TheÏAgency€believes€that€States€should€approach€their€regulatory€actions€from€the€sameÏperspective€and€thus€the€Agency€does€not€believe€that€part€64€will€have€a€significantÏimpact€on€requirements€imposed€subsequent€to€the€1990€Amendments.€Ìà  àComments€on€the€1996€part€64€Draft€received€from€environmental,€public€healthÏand€labor€organizations€emphasized€the€publicððs€right€to€information€about€air€pollutionÏfrom€major€stationary€sources.€€These€commenters€argued€that€the€CAM€approachÏprovides€insufficient€information€about€actual€emissions€and€thus€will€frustrate€theÏpublic's€right€to€know€about€actual€emissions€from€a€source.€Their€comments€alsoÏasserted€that€source€owners€should€not€be€allowed€to€use€information€gathered€underÏthe€CAM€approach,€including€information€on€pollution€control€operations€and€practices,Ïto€certify€compliance€with€applicable€standards.Ìà  àThe€Agency€responded€to€those€comments€(see€letter€from€Mary€Nichols€toÏvarious€environmental€and€other€organizations€dated€December€19,€1996,€docket€itemÏA„91„52„VI„C„18)€and€summarizes€its€response€here.€€The€Agency€agrees€withÏincorporating€direct€emissions€and€compliance€monitoring€where€the€technology€isÏavailable€and€feasible,€and€promoting€public€disclosure€of€air€pollution€emissionsÏinformation.€€On€the€other€hand,€the€Agency€does€not€believe€that€such€a€broad,Ïexpensive,€and€technically€complex€objective€can€be€accomplished€through€a€singleÏrulemaking€at€this€time.€€Not€only€would€trying€to€impose€such€monitoring€requirementsÐ ,`'8 Ðacross€the€board€in€the€short€term€be€technically€unrealistic,€doing€so€would€put€inÏjeopardy€the€possibility€of€advancing€monitoring€of€existing€emissions€sources€throughÏpart€70€operating€permits€program€already€in€progress.Ìà  àThe€Agency€notes€that€current€requirements€for€submission€of€emissionÏstatements€prepared€by€owners€of€industrial€air€pollution€sources€continuesÏindependent€of€part€64€(such€as€statements€required€under€section€182(a)(3)€of€the€Act)Ïand€such€statements€will€be€based€on€the€most€currently€available€information,€includingÏnew€monitoring€data€produced€under€part€64.€Ìà  àAs€described€above,€the€Agency€firmly€believes€that€continued€proper€operationÏand€maintenance€of€process€operations€and€air€pollution€controls€demonstrated€capableÏof€achieving€applicable€standards€is€vital€to€ongoing€compliance.€€By€providing€theÏnecessary€data€and€requiring€appropriate€corrective€action,€part€64€will€result€in€ownersÏand€operators€being€more€conscientious€in€the€attention€paid€to€the€operation€andÏmaintenance€of€air€pollution€control€equipment€and€practices€than€has€been€the€case€inÏthe€past.€€This€approach€has€proven€effective€in€reducing€air€pollution€emissions€andÏimproving€compliance€performance€in€the€implementation€of€many€existing€regulationsÏwith€similar€requirements.€€See€further€discussion€on€the€use€of€part€64€data€forÏpurposes€of€part€70€compliance€certifications€in€Section€I.C.5.,€below.Ìà  à4.€€òòRelationship€to€Part€70€MonitoringóóÐ P$ Ðà  àPart€70€currently€requires€all€title€V€operating€permits€to€include€monitoring€toÏassure€compliance€with€the€permit.€€This€includes€all€existing€monitoring€requirementsÏas€well€as€additional€monitoring€(generally€referred€to€as€"periodic€monitoring")€if€currentÏrequirements€fail€to€specify€appropriate€monitoring.€€As€noted€in€the€1993€EM€proposal,Ïbecause€part€64€contains€applicable€monitoring€requirements€sufficient€to€demonstrateÏcompliance€with€applicable€emission€limitations€or€standards,€the€part€70€periodicÏmonitoring€requirements€will€not€apply€to€the€emissions€units€and€applicableÏrequirements€covered€by€part€64.€€This€conclusion€is€equally€applicable€under€the€finalÏpart€64€rule.€€However,€during€the€course€of€the€rulemaking,€two€other€issues€have€beenÏraised€that€concern€the€relationship€of€the€final€part€64€rule€to€the€existing€part€70Ð ,`'8 Ðperiodic€monitoring€requirements:€€(1)€the€extent€to€which€periodic€monitoring€should€beÏrelied€on€as€"enhanced€monitoring"€and€(2)€timing€concerns€where€periodic€monitoringÏmay€be€required€prior€to€implementation€of€part€64.Ìà  àWith€respect€to€relying€on€part€70€periodic€monitoring€as€"enhanced€monitoring"Ïfor€at€least€some€units,€EPA€suggested€this€option€in€both€the€1993€EM€proposal€andÏthe€December€1994€notice€reopening€the€comment€period€on€that€proposal€(see€58€FRÏ54648,€54653€and€59€FR€66844,€66849).€€Industry€commenters€generally€supportedÏthis€option;€although,€many€suggested€that€EPA€rely€completely€on€periodic€monitoringÏas€"enhanced€monitoring."€€Some€environmental€groups,€however,€argued€against€thisÏoption.€€They€asserted€further€that€EPA's€part€64€applicability€provisions€would€not€meetÏthe€statutory€requirement€that€all€major€stationary€sources€conduct€enhancedÏmonitoring.€€The€EPA€considered€including€in€part€64€requirements€analogous€to€theÏexisting€part€70€provisions€(see€Subpart€C€of€part€64€in€the€1996€part€64€Draft).€€ThisÏapproach€would€clearly€indicate€EPA's€position€that€the€part€70€monitoring€requirementsÏincluding€periodic€monitoring€if€necessary,€constitute€the€appropriate€"enhancedÏmonitoring"€for€units€not€covered€by€part€64.€€However,€in€the€final€rule,€EPA€hasÏdetermined€to€rely€on€the€position€originally€discussed€in€the€1993€EM€proposal€thatÏexisting€monitoring€when€supplemented€as€necessary€by€periodic€monitoring€isÏsufficiently€enhanced€for€emissions€units€not€subject€to€part€64.€€The€Agency€decidedÏnot€to€pursue€the€Subpart€C€option€included€in€the€1996€part€64€Draft€based€on€theÏcomments€received€(see€Section€II.B.,€below)€and€also€because€of€concerns€aboutÏdisrupting€the€ongoing€implementation€of€part€70.Ìà  àBecause€of€the€delays€in€finalizing€part€64€and€the€delayed€implementationÏschedule€included€in€the€final€rule€(see€Section€II.E.,€below),€many€part€70€permits€willÏaddress€periodic€monitoring€issues€prior€to€implementation€of€part€64.€€To€addressÏconcerns€about€the€potential€duplication€and€disruption€that€this€situation€could€cause,ÏEPA€has€taken€certain€steps.€€First,€the€"Subpart€C"€option€has€been€rejected€and€theÏexisting€part€70€monitoring,€including€periodic€monitoring,€requirements€will€continue€toÏapply.€€Because€the€majority€of€emissions€units€do€not€use€control€devices,€this€decisionÐ ,`'8 Ðwill€result€in€part€64€creating€no€duplication€or€disruption€for€the€majority€of€emissionsÏunits.€€As€discussed€in€the€Regulatory€Impact€Analysis€(RIA)€for€this€rulemaking,€EPAÏestimates€that€the€final€part€64€rule€will€affect€less€than€27,000€emissions€units,€while€anÏadditional€54,000€units€that€could€have€been€affected€by€Subpart€C€will€remain€affectedÏby€part€70€monitoring€requirements.Ìà  àSecond,€for€units€with€control€devices,€EPA€has€adopted€a€phasedÏimplementation€schedule€under€which€part€64€will€apply€only€to€the€largest€units€prior€toÏthe€first€renewal€of€a€part€70€permit.€€To€the€extent€part€64€and€periodic€monitoring€mayÏhave€some€overlap€for€these€largest€units,€any€overlap€should€be€minimal€becauseÏthese€units€are€most€likely€to€have€existing€monitoring€that€would€make€the€periodicÏmonitoring€provisions€in€part€70€unnecessary.€€For€the€smaller€units€that€will€not€beÏrequired€to€implement€part€64€until€part€70€permit€renewal,€the€periodic€monitoringÏprovisions€of€part€70€may€apply.€€While€there€may€be€some€concern€that€this€will€resultÏin€installation€of€monitoring€that€could€later€be€found€inappropriate€for€part€64,€EPA€doesÏnot€believe€this€would€generally€be€the€case.€€In€many€instances,€such€periodicÏmonitoring€would€likely€serve€as€the€basis,€in€whole€or€in€part,€for€compliance€with€partÏ64.€€For€instance,€a€source€owner€or€operator€may€conduct€intermittent€monitoring€ofÏvisible€emissions€or€certain€parameters€to€satisfy€part€70€periodic€monitoring.€€To€theÏextent€successful,€the€experience€with€that€monitoring€could€be€used€to€justify€its€useÏunder€part€64.€€At€the€least,€the€experience€gained€under€periodic€monitoring€could€beÏused€to€develop€data€to€support€proposed€part€64€monitoring€at€permit€renewal.€€SuchÏdata€could€be€used,€for€example,€to€justify€appropriate€indicator€ranges,€qualityÏassurance€procedures,€monitoring€frequency€and€similar€part€64€requirements.€€Just€asÏimportantly,€the€continued€presence€of€part€70€monitoring€requirements€during€the€initialÏpermit€term€is€essential€to€provide€the€minimum€level€of€assurance€that€a€sourceÏremains€in€compliance€with€a€part€70€permit€as€required€under€title€V€of€the€Act.€€Thus,ÏEPA€rejects€the€position€suggested€by€some€commenters€that€it€should€immediatelyÏsuspend€the€part€70€periodic€monitoring€requirements€pending€implementation€of€partÏ64.Ð ,`'8 Ðà  à5.€€òòRelationship€to€part€70€Compliance€CertificationsóóÐ ° Ðà  àIn€developing€an€implementation€approach€in€the€1993€EM€proposal,€EPAÏindicated€that€owners€or€operators€must€rely€on€methods€for€determining€continuousÏcompliance€to€submit€a€certification€of€whether€compliance€is€continuous€or€intermittent.€ÏMany€industry€representatives€and€State€and€local€agencies€objected€to€the€burdensÏassociated€with€the€1993€proposal.€€A€large€part€of€those€burdens€would€have€occurredÏas€a€result€of€having€to€develop€monitoring€that€could€produce€data€of€sufficientÏreliability€to€make€determinations€of€continuous€compliance€with€a€degree€ofÏrepresentativeness,€accuracy,€precision,€and€reliability€equivalent€to€that€provided€byÏconducting€the€test€method€established€for€a€particular€requirement.€€In€response€toÏthose€concerns,€the€Agency€opted€to€pursue€the€CAM€approach€which€provides€aÏreasonable€assurance€of€compliance€through€monitoring€of€control€operations.€€TheÏEPA€believes€that€the€CAM€approach€does€enhance€existing€monitoring€requirementsÏand€provides€sufficient€information€for€an€owner€or€operator€to€reach€a€conclusion€aboutÏthe€compliance€status€of€the€owner€or€operator's€source€that€is€adequate€to€satisfy€theÏcompliance€certification€obligations€in€the€Act.€€Such€monitoring€also€provides€dataÏsufficient€for€EPA,€permitting€authorities,€and€the€public€to€evaluate€a€source'sÏcompliance€and€to€take€appropriate€action€where€potential€compliance€problems€areÏdiscovered.Ìà  àThe€part€64€rulemaking€also€clarifies€the€Agency's€interpretation€of€the€phraseÏ"continuous€or€intermittent"€as€used€in€section€114(a)(3)€of€the€Act.€€The€1993€EMÏproposal€interpreted€the€requirement€that€source€owners€or€operators€certify€"whetherÏcompliance€is€continuous€or€intermittent"€to€require€monitoring€sufficient€to€determine€ifÏcompliance€was€continuous.€€(58€FR€54654,€54658)€€Thus€the€term€"continuous"€wasÏread€as€meaning€that€compliance€was€achieved€during€all€averaging€periods€for€aÏstandard€and€"intermittent"€was€read€generally€as€meaning€that€one€or€more€deviationsÏoccurred€during€the€certification€period.€€(58€FR€54665).€€This€proposed€interpretationÏwas€consistent€with€the€Agency's€position€in€the€preamble€to€proposed€part€70€as€wellÏ(see€56€FR€21737,€May€10,€1991€("The€compliance€certification€must€document€.€.€.Ð ,`'8 Ðwhether€compliance€was€continuous€or€intermittent€(i.e.,€whether€there€were€periods€ofÏnoncompliance).").Ìà  àThe€Agency€reconsidered€this€interpretation€in€reopening€the€public€commentÏperiod€on€the€1993€EM€proposal€and€noted€that€"intermittent"€could€mean€either€thatÏnoncompliance€had€occurred€or€that€the€owner€or€operator€has€data€sufficient€to€certifyÏcompliance€only€on€an€intermittent€basis.€€(See€59€FR€66848,€col.€2€("nothing€in€sectionÏ114(a)(3)€dictates€that€all€source€owners€or€operators€must€certify€to€being€in€eitherÏcontinuous€compliance€or€else€be€considered€in€noncompliance;€source€owners€orÏoperators€may€also€certify€to€being€in€compliance€as€demonstrated€on€an€intermittentÏbasis.")).€€The€EPA€believes€that€the€statutory€interpretation€discussed€in€the€preambleÏto€the€1993€EM€proposal€and€this€alternative€interpretation€are€both€reasonable,€andÏthat€EPA€has€discretion€to€clarify€the€meaning€of€this€statutory€provision€given€theÏambiguity€in€the€legislation.€€As€outlined€below,€today's€rulemaking€(see€the€revisions€toÏðð70.6(c)(5))€is€derived€from€the€interpretation€contained€in€the€December€1994€noticeÏreopening€the€comment€period€on€the€1993€EM€proposal.Ìà  à6.€€òòConsistency€with€Regulatory€Reinvention€Effortsóó€Ð È Ðà  àThe€approach€in€this€rule€lays€out€broad€principles€and€performance€criteria€forÏappropriate€monitoring,€but€does€not€mandate€the€use€of€a€particular€technology.€€TheÏproposal€is€intended€to€reflect€the€principles€articulated€in€President€Clinton's€and€ViceÏPresident€Gore's€March€16,€1995€report,€"Reinventing€Environmental€Regulation."€€ThatÏreport€established€as€goals€for€environmental€regulation€building€partnerships€betweenÏEPA€and€State€and€local€agencies,€minimizing€costs,€providing€flexibility€inÏimplementing€programs,€tailoring€solutions€to€the€problem,€and€shifting€responsibilitiesÏto€State€and€local€agencies.€€The€Agency€believes€that€part€64€meets€the€goals€of€theÏreport.Ìà  àThis€approach€also€is€consistent€with€President€Clinton's€regulatory€reformÏinitiatives€and€EPA's€Common€Sense€Initiative€in€that€it€focuses€on€steps€to€preventÏpollution€rather€than€to€impose€unnecessary€command€and€control€regulations€onÏregulated€sources.€€The€approach€is€based€on€the€assumption€that€pollution€control€isÐ ,`'8 Ðan€integral€part€of€doing€business€and€that€owners€or€operators€should€pay€attention€toÏtheir€pollution€control€operations€with€the€same€care€they€do€their€product€operations.€ÏThe€CAM€approach€emphasizes€the€role€of€the€owner€or€operator€in€developing€a€planÏto€achieve€this€goal€for€specific€circumstances.Ìà  àD.€€òòBenefits€of€a€CAM€ñÊ)ñœñÊ)ñApproach€and€Potential€Control€CostsñÊ)ñ›ñÊ)ñÐ P   Ðóóà  àThe€EPA€believes€that€monitoring€under€part€64€can€in€some€situations,€reduceÐ ¸   Ðoperating€costs.€€For€example,€monitoring€data€can€be€used€to€increase€combustionÏefficiency€in€an€industrial€boiler€or€to€increase€capture€and€reuse€of€solvents€at€a€coatingÏplant.€€A€1990€study€by€the€General€Accounting€Office€entitled€"Air€Pollution:€ÏImprovements€Needed€in€Detecting€and€Preventing€Violations"€(see€docket€item€A„91„¼52„VI„I„12)€noted€several€instances€in€which€companies€have€achieved€such€operatingÏcost€reductions.€€The€CAM€approach€also€alerts€owners€or€operators€that€potentialÏcontrol€device€problems€may€exist.€€The€owner€or€operator€can€use€this€information€toÏtarget€control€devices€for€routine€maintenance€and€repair,€and€reduce€the€potential€forÏcostly€breakdowns.€€While€benefits€may€occur€to€some€facilities€as€the€result€of€betterÏawareness€of€equipment€operation,€changes€in€equipment€operation€are€not€required€byÏpart€64.€€Ìà  àPart€64€does€not€itself€have€emissions€reductions€benefits,€EPA€does€expect,Ïhowever,€that€some€sources€may€have€to€reduce€emissions€in€order€to€comply€with€theirÏunderlying€emissions€standards€in€response€to€monitoring€under€part€64.€€EPA€expectsÏthat€some€emissions€reductions€may€result€from€sources€having€to€reduce€emissionsÏoverall,€and/or€to€respond€to€periods€of€excess€emissions€more€quickly,€thus€reducingÏtheir€frequency€and€duration.€€EPA€has€not€estimated€the€emissions€reductions€thatÏmay€result€from€this;€EPA€believes€these€reductions€and€any€associated€health€andÏwelfare€benefits€are€not€attributable€to€part€64€„„€but€to€the€underlying€emissionsÏstandards.Ìà  àThe€Agency€believes€that€there€is€adequate€evidence€that€monitoring€controlÏperformance€will€assure€continuing€compliance€with€applicable€requirements.€€StudiesÏconducted€by€the€Agency€have€shown€that€control€device€operation€and€maintenanceÐ ,`'8 Ðproblems€are€a€significant€factor€in€creating€excess€emissions€(see€docket€items€II„A„22Ïand€VI„A„2).€€In€addition,€these€studies€have€documented€that€assumptions€aboutÏcompliance€status€are€often€inaccurate€when€detailed€inspections€of€control€devices€areÏconducted€(see,€for€example,€docket€item€VI„A„2).€€Moreover,€information€included€inÏthe€Regulatory€Impact€ñÊ)ñ¢ñÊ)ñAnalysesñÊ)ñ£ñÊ)ñ€(ñÊ)ñ¢ñÊ)ñRIAñÊ)ñ£ñÊ)ñ)€documents€that,€based€on€data€sheets€compiledÏfor€all€major€sources€by€State€agency€inspectors€in€fifteen€States,€approximately€20Ïpercent€of€all€major€sources€have€significant€compliance€problems€and€there€is€aÏsignificant€corollary€between€the€adequacy€of€a€source's€operation€and€maintenanceÏprocedures€and€compliance€risk.€€Ìà  àThere€will€be€real€costs€associated€with€measures€sources€may€take€to€reduceÏemissions€in€order€to€comply€with€their€underlying€emissions€standards€in€response€toÏmonitoring€under€part€64.€€Costs€as€well€as€emissions€reductions€benefits€will€resultÏfrom€sources€having€to€reduce€emissions€overall,€and/or€to€respond€to€periods€ofÏexcess€emissions€more€quickly,€thus€reducing€their€frequency€and€duration.€€Such€costsÏwould€be€due€to€increase€expenditures€for€operation€and€maintenance€and€capitalÏequipment.€ñÊ)ñœñÊ)ñ€The€EPAñÊ)ñ›ñÊ)ñ€has€not€estimated€the€cost€associated€with€emissions€reductionsÏthat€may€result;€ñÊ)ñœñÊ)ñEPAñÊ)ñ›ñÊ)ñ€believes€such€costs€are€not€attributable€to€part€64€„„€but€to€theÏunderlying€emissions€ñÊ)ñœñÊ)ñstandard.ñÊ)ñ›ñÊ)ñÌñÊ)ñœñÊ)ñà  àE.ñÊ)ñ›ñÊ)ñ€€òòThe€Relationship€of€Part€64€To€Credible€Evidence€and€Enforcement€Issuesóó.Ð P$ Ðà  à1.€€òòGeneral€CAM€Enforcement€Policyóó.€Ð h¸& Ðà  àAs€a€general€matter,€the€Agency€expects€that€source€owners€or€operators€will€beÏin€compliance€with€all€applicable€emission€requirements€if€they€conform€to€theÏrequirements€of€part€64.€€Further,€the€Agency€expects€that€there€will€be€relatively€limitedÏinformation€available€to€override€the€information€provided€by€the€owner€or€operator€onÏan€emissions€unitððs€compliance€status€beyond€that€provided€through€monitoring€thatÏsatisfies€part€64€or€part€70.€€However,€neither€these€expectations€nor€completeÏcompliance€with€part€64€will€prohibit€the€Agency€from€undertaking€enforcementÏinvestigations€when€appropriate€under€the€circumstances,€such€as€when€informationÏindicates€there€are€conditions€that€may€threaten€or€result€in€harm€to€public€health€or€theÐ ,`'8 Ðenvironment,€indicates€a€pattern€of€noncompliance,€indicates€serious€misconduct,€orÏpresents€other€circumstances€warranting€enforcement.Ìà  à2.€€òòThe€Credible€Evidence€Revisions€to€40€CFR€Parts€51,€52,€60,€and€61€(ð ðTheÐ €Ð ÐCE€Revisionsðð)óóÐ è8 Ðà  àSee€the€CE€Revisions€as€published€in€the€òòFederal€Registeróó€on€February€24,€1997Ð P   Ð(62€FR€8314)€for€discussion€of€that€rulemaking€history.€€During€the€many€publicÏcomment€periods€for€the€CE€Revisions€and€the€CAM€proposal,€the€Agency€receivedÏnumerous€comments€stating€that€the€two€rules€are€inextricably€connected,€impact€eachÏother,€and€should€be€proposed€together€in€order€for€meaningful€public€comment€fromÏinterested€stakeholders.€€The€Agency€reviewed€these€comments€but€decided€toÏproceed€with€the€CE€rulemaking€separately€from€this€rulemaking€for€several€reasons.€ÏFirst,€the€Agency€believes€that€there€was€sufficient€opportunity€for€all€interested€partiesÏto€comment€on€any€perceived€relationship€or€any€substantive€issues€regarding€theÏproposed€credible€evidence€revisions€and€the€CAM€proposal€before€the€promulgation€ofÏthe€CE€Revisions€in€February,€1997.€€The€Agency€released€a€public€draft€of€the€CAMÏapproach€in€September,€1995,€and€then€conducted€a€public€meeting€in€April,€1996,€onÏthe€credible€evidence€revisions.€€The€Agency€also€accepted€public€comments€on€theÏcredible€evidence€rulemaking€and€the€CAM€proposals€between€September,€1995,€andÏthe€promulgation€of€the€CE€Revisions.€€Thus,€all€interested€parties€had€the€opportunityÏto€comment€on€the€two€rulemakings€and€the€Agency€received€numerous€comments€onÏthis€topic€before€the€CE€Revisions€were€promulgated.€€In€addition,€there€was€also€ampleÏopportunity€for€public€comment€on€any€perceived€relationship€after€promulgation€of€theÏCE€Revisions€and€before€the€finalization€of€part€64.€€The€Agency€released€a€public€draftÏof€the€CAM€approach€in€August,€1996,€and€held€a€public€meeting€regarding€the€1996Ïpart€64€Draft.€€The€Agency€also€reopened€the€comment€period€on€part€64€on€April€25,Ï1997,€(€62€FR€20147)€to€allow€for€comments€on€the€relationship€between€part€64€andÏthe€CE€Revisions.€€See€the€Response€to€Comments€Document€(Part€III)€at€section€14Ïfor€the€Agencyððs€response€to€these€comments.€€Thus,€all€interested€parties€had€theÏopportunity€to€comment€on€the€relationship€between€part€64€and€the€CE€RevisionsÐ ,`'8 Ðbefore€each€of€these€rulemakings€was€promulgated.Ìà  àSecond,€the€Agency€decided€to€promulgate€the€CE€Revisions€separate€from€partÏ64€because€the€two€programs€are€different€in€scope.€€The€CE€Revisions€are€not€limitedÏto€part€64€data€or€information€collected€pursuant€to€a€part€70€permit€generally.€€OtherÏtypes€of€CE€could€include€information€from€monitoring€that€is€not€required€by€regulationÏ(such€as€monitoring€conducted€pursuant€to€a€consent€agreement€or€a€specific€sectionÏ114€request)€or€information€from€inspections€by€the€permitting€authority.€€In€addition,€theÏCE€Revisions€affect€all€sources€regulated€by€40€CFR€parts€51,€52,€60,€and€61,€not€justÏsources€who€will€be€covered€by€part€64.€€Thus,€although€sources€covered€by€thisÏrulemaking€ñÊ)ñœñÊ)ñareñÊ)ñ›ñÊ)ñ€regulated€under€the€provisions€amended€by€the€CE€Revisions,€both€theÏsources€covered€by€this€rulemaking€and€the€data€generated€by€this€rulemaking€areÏsubsets€of€the€sources€and€potential€credible€evidence€addressed€in€the€CE€Revisions.€ÏTherefore,€it€was€appropriate€for€the€Agency€to€promulgate€these€two€rulemakingsÏseparately.€€See€63€FR€8314€for€a€discussion€of€the€scope€of€the€CE€Revisions.Ìà  àEven€though€the€CE€Revisions€and€part€64€rulemakings€are€distinct€regulatoryÏactions,€there€are€complementary€aspects€to€the€two€rules.€€As€noted€above,€consistentÏwith€the€existing€provisions€of€part€70,€the€CE€revisions€reiterate€that€data€other€thanÏcompliance€test€data€can€be€used€as€a€basis€for€title€V€compliance€certifications.€€MostÏimportantly,€the€CE€rulemaking€affects€the€potential€consequences€of€identifyingÏdeviations,€exceedances€or€excursions€in€a€compliance€certification€based€on€data,Ïsuch€as€part€64€data,€that€are€from€sources€other€than€the€compliance€or€reference€testÏmethod.€€The€CE€revisions€clarify€the€authority€to€rely€on€these€data€to€prove€that€aÏsource€is€in€compliance€or€that€a€violation€has€occurred.Ìà  àFinally,€the€CE€Revisions€and€this€rulemaking€did€not€need€to€be€promulgatedÏtogether€because€these€regulations€have€different€statutory€bases.€€The€AgencyÏpromulgated€the€CE€Revisions€based€primarily€on€section€113(a)€of€the€Act,€whichÏauthorizes€the€Agency€to€bring€an€administrative,€civil€or€criminal€action€ð ðon€the€basis€ofÏany€information€available€to€the€Administrator.ðð€€See€62€FR€at€8320„23.€€The€part€64Ïregulations,€however,€respond€to€the€statutory€mandates€of€the€CAA€Amendments€ofÐ ,`'8 Ð1990,€including€but€not€limited€to€section€114(a)(3).Ìà  à3.€€òòPotential€Enforcement€Consequences€Related€to€CAM€and€CEóóÐ h Ðà  àAs€a€general€matter,€the€Agency€notes€that€it€intends€to€apply€its€currentÏenforcement€policies€in€instances€where€the€Agency€believes,€based€on€a€review€ofÏCAM€data,€that€a€source€has€violated€underlying€emission€limits.€€During€the€publicÏcomment€period,€commenters€raised€several€issues€about€the€relationship€between€theÏproposed€part€64€monitoring€information,€the€CE€Revisions,€and€enforcement€ofÏviolations€of€the€Act.€€The€following€discussion€generally€addresses€those€concerns.€ÏSee€section€14.2€(Part€III)€of€the€Response€to€Comments€Document€(A„91„53„VII„C„3)Ïfor€responses€to€specific€issues€raised.Ìà  àFirst,€these€commenters€suggested€that€compliance€with€indicator€ranges€underÏpart€64€should€act€as€a€shield€to€enforcement€actions.€€The€Agency€disagrees.€ÏComplete€compliance€with€an€approved€part€64€monitoring€plan€does€not€shield€aÏsource€from€enforcement€actions€for€violations€of€applicable€requirements€of€the€Act€ifÏother€credible€evidence€proves€violations€of€applicable€emission€limitations€orÏstandards.€€The€Agency€expects€that€a€unit€that€is€operating€within€appropriatelyÏestablished€indicator€ranges€as€part€of€approved€monitoring€will,€in€fact,€be€inÏcompliance€with€its€applicable€limits.€€Part€64€does€not€prohibit€the€Agency,€however,Ïfrom€undertaking€enforcement€where€appropriate€(such€as€cases€where€the€part€64Ïindicator€ranges€may€have€been€set€improperly€and€other€data€such€as€informationÏcollected€during€an€inspection€provides€clear€evidence€that€enforcement€is€warranted).€€Ìà  àSimilarly,€several€commenters€stated€that€if€a€source€owner€or€operator€identifiedÏexcursions€or€exceedances€of€the€applicable€indicator€ranges€and€conducted€a€promptÏcorrection,€with€or€without€a€QIP,€then€there€should€be€a€shield€from€enforcement€forÏany€potential€violation€of€an€underlying€emissions€limitation.€€This€is€also€incorrect.€€If€aÏsource€owner€or€operator€identifies€one€or€more€excursions€or€exceedances€of€itsÏindicator€ranges€established€under€part€64,€prompt€correction€of€the€condition€does€notÏestablish€a€shield.€€At€the€same€time,€the€CAM€excursions€do€not€necessarily€give€riseÏto€liability€under€part€64€or€the€Act€(unless€an€excursion€is€specifically€made€anÐ ,`'8 Ðenforceable€permit€term).€€The€Agency€understands€that€many€sources€operate€wellÏwithin€permitted€limits€over€a€range€of€process€and€pollution€control€device€operatingÏparameters.€€Depending€on€the€nature€of€pollution€control€devices€installed€and€theÏspecific€compliance€strategy€adopted€by€the€source€or€the€permitting€authority,€part€64Ïindicator€ranges€may€be€established€that€generally€represent€emission€levelsÏsignificantly€below€the€applicable€underlying€emission€limit.€€For€this€reason,€andÏbecause€the€Agency€anticipates€a€wide€variance€in€CAM€indicator€range€settingÏpractices,€the€Agency€intends€to€draw€no€firm€inferences€as€to€whether€excursions€fromÏCAM€parameter€levels€warrant€enforcement€of€underlying€emission€levels€withoutÏfurther€investigation€into€the€particular€circumstances€at€the€source.€€Thus,€althoughÏstaying€within€appropriately€established€indicator€ranges€gives€a€reasonable€assuranceÏof€compliance,€excursions€from€indicator€ranges€do€not€necessarily€indicateÏnoncompliance.€€The€Agency€may€investigate€such€excursions€for€possible€violationsÏbased€on€the€general€enforcement€criteria€identified€above.€€A€proper€and€promptÏcorrection€of€the€problem€causing€the€excursion€or€exceedance,€with€or€without€a€QIP,Ïwill€factor€into€the€Agencyððs€decision€on€whether€to€investigate€a€source€for€potentialÏviolations€but€does€not€shield€the€source€from€an€enforcement€action€by€the€Agency.Ìà  àSecond,€several€comments€have€stated€that€the€use€of€CAM€monitoring€data€asÏcredible€evidence€to€demonstrate€the€existence€of€a€violation€would€increase€theÏstringency€of€many€standards.€€Although€it€is€correct€that€the€Agency,€as€well€as€states,Ïpublic€citizens,€and€sources,€could€potentially€use€CAM€monitoring€data€as€credibleÏevidence€of€either€compliance€or€noncompliance€with€an€emission€standard,€theÏevidence€could€only€be€used€if,€as€stated€in€the€CE€Revisions,€the€information€isÏrelevant€to€whether€the€source€would€have€been€in€compliance€with€applicableÏrequirements€if€the€appropriate€performance€or€compliance€test€had€been€performed.€ÏThe€CE€Revisions€and€the€use€of€CAM€data€as€potential€credible€evidence€do€notÏchange€the€stringency€of€any€emission€standard€for€the€reasons€set€forth€in€theÏpreamble€to€the€CE€Revisions.€€See€63€FR€8314.Ìà  àFinally,€it€has€been€suggested€during€the€part€64€and€credible€evidenceÐ ,`'8 Ðrulemakings€that€a€Title€V€permit€may€be€written€to€limit€the€types€of€evidence€used€toÏprove€violations€of€emissions€standards.€€As€mentioned€in€the€CE€Revisions,€even€if€aÏTitle€V€permit€specifies€that€certain€monitoring,€CAM€or€other€monitoring,€be€performedÏand€that€this€monitoring€is€the€sole€or€exclusive€means€of€establishing€compliance€orÏnon„compliance,€EPA€views€such€provisions€as€null€and€void.€€Such€an€attempt€toÏeliminate€the€possible€use€of€credible€evidence€other€than€the€monitoring€specified€in€aÏTitle€V€permit€is€antithetical€to€the€credible€evidence€rule€and€to€section€113(e)(1).€€IfÏsuch€a€provision€is€nonetheless€included€in€a€permit,€the€permit€should€be€vetoed€toÏavoid€any€ambiguity.€€If€the€provision€is€not€vetoed,€the€provision€is€without€meaning,€asÏit€is€òòultraóó€òòviresóó,€that€is,€beyond€the€authority€of€the€permit€writer€to€limit€what€evidenceÐ X¨  Ðmay€be€used€to€prove€violations,€just€as€if€a€permit€writer€were€to€attempt€to€write€in€aÏprovision€that€a€source€may€not€be€assessed€a€penalty€of€$25,000€per€day€of€violationÏfor€each€violation.€€Evidence€that€is€permitted€by€statute€to€be€used€for€enforcementÏpurposes,€fines€that€may€be€levied,€and€any€other€statutory€provisions,€may€not€beÏaltered€by€a€permit.ÌII.€€òòDetailed€Discussion€of€Regulatory€ProvisionsóóÐ È Ðà  àòòA.€€Section€64.1€„€Definitionsóó€Ð 0€  Ðà  àSection€64.1€defines€most€of€the€key€terms€and€phrases€used€in€part€64.€€CertainÏdefinitions€which€were€contained€in€ðð€64.2€of€the€1993€EM€proposal€have€been€deletedÏfrom€the€final€rule,€while€other€definitions€from€the€proposed€rule€have€beenÏconsiderably€revised.€€In€addition,€a€number€of€new€definitions€have€been€added€to€theÏfinal€rule.€€The€Agency€believes€these€deletions,€revisions,€and€additions€accomplishÏthe€following€goals:€they€reflect€changes€to€the€objectives€and€substantive€provisions€ofÏpart€64;€they€respond€to€concerns€and€comments€made€about€the€definitions€in€theÏ1993€EM€proposal;€and€they€bring€part€64€more€closely€into€accord€with€the€regulatoryÏlanguage€of€part€70.€€The€final€definitions€also€reflect€changes€made€in€response€toÏcomments€received€on€the€1995€and€1996€part€64€Drafts.€€These€are€discussed€below.ÌÓ3°,X‚X` ˜X°ƒXü¸ —X3Óà  à1.€€òòDefinitions€Deleted€from€the€Final€RuleóóÐ ¨*ø%6 Ðà  àThe€revisions€to€the€substantive€provisions€of€part€64€in€the€final€rule€haveÐ ,`'8 Ðnecessitated€the€deletion€of€certain€definitions€set€forth€in€ðð€64.2€of€the€1993€EMÏproposal.€€In€some€instances,€these€definitions€have€been€superseded€by€newÏterminology€relating€to€the€same€or€similar€concepts.€€In€other€cases,€the€deletedÏdefinitions€related€to€matters€which€are€inapplicable€to€the€final€rule.€€The€eliminatedÏdefinitions€are€as€follows:Ìà  àa.à  àòòContinuous€Compliance€and€Intermittent€Complianceóó.€€The€1993€EMÐ ¸   Ðproposal€would€have€required€the€use€of€data€from€an€enhanced€monitoring€protocol€toÏdetermine€and€certify€whether€an€affected€source€or€emissions€unit€complied€withÏapplicable€emission€limitations€or€standards€and€whether€such€compliance€wasÏ"continuous"€or€"intermittent."€€Section€64.2€of€the€1993€EM€proposal€defined€the€termÏ"continuous€compliance"€as€requiring€the€attainment€of€quality„assured€data€from€anÏenhanced€monitoring€protocol€for€all€required€periods,€the€demonstration€by€such€dataÏthat€an€owner€or€operator€has€complied€with€the€applicable€emission€limitation€orÏstandard€during€all€monitored€periods,€and€a€demonstration€of€compliance€by€any€otherÏdata€collected€for€the€purpose€of€determining€compliance€during€the€monitored€periodsÏif€such€other€data€were€collected.€€The€1993€EM€proposal€stated€that€a€source€orÏemissions€unit€was€in€"intermittent€compliance"€if,€during€the€reporting€period,€either€theÏdata€availability€requirement€was€not€satisfied€because€insufficient€data€was€obtainedÏfrom€the€enhanced€monitoring€protocol,€or€the€owner€or€operator€violated€the€applicableÏemission€limitation€or€standard€because€a€deviation€occurred€during€a€period€for€whichÏno€federally„approved€or€federally„promulgated€excused€period€applied.Ìà  àMany€commenters€objected€to€these€definitions€for€various€reasons,€including€aÏcontention€that€EPA€had€merged€the€concept€of€achieving€continuous€compliance€withÏthe€concept€of€demonstrating€compliance.€€The€definitions€of€continuous€complianceÏand€intermittent€compliance€in€the€proposed€rule€were€also€closely€tied€to€the€Agency'sÏinterpretation€of€section€114(a)(3)€of€the€Act€under€the€1993€EM€proposal.€€SectionÏ114(a)(3)€directs€the€Administrator€to€require€certification€of€"whether€compliance€isÏcontinuous€or€intermittent."€€Under€the€1993€EM€proposal,€this€language€was€interpretedÏas€requiring€a€certification€that€compliance€was€achieved€during€all€averaging€periodsÐ ,`'8 Ðfor€a€standard,€and€"intermittent"€meant€that€one€or€more€unexcused€deviationsÏoccurred€during€the€certification€period.€€This€interpretation€was€also€the€subject€ofÏmuch€public€comment.€€As€described€in€greater€detail€above,€the€Agency€hasÏresponded€to€these€comments€by€adopting€an€alternative€interpretation€of€sectionÏ114(a)(3).€€The€Agency€has€therefore€deleted€the€EM€proposed€definitions€ofÏcontinuous€and€intermittent€compliance€from€the€final€rule.€€(See€Section€II.K.2.€forÏadditional€discussion€of€the€interpretation€of€compliance€certifications.)Ìà  àb.à  àòòDeviationóó.€€The€proposed€rule€stated€that€a€"deviation"€included€anyÐ ˆØ  Ðcondition€determined€by€enhanced€monitoring€or€other€collected€data€which€identifiesÏthat€an€emissions€unit€has€failed€to€meet€an€applicable€emission€limitation€or€standard.€ÏThis€definition€included€any€conditions€that€either€violated€an€applicable€emissionÏlimitation€or€standard€or€would€have€violated€such€limitation€or€standard€but€for€aÏfederally„promulgated€exemption.Ìà  àA€number€of€commenters€raised€concerns€about€the€proposed€definition€ofÏdeviation.€€Some€argued€that€the€proposed€definition€was€too€closely€tied€to€theÏviolation€of€an€emission€limitation€or€standard.€€These€commenters€requestedÏclarification€that€a€deviation€is€not€necessarily€a€violation€of€an€emission€limitation€orÏstandard.€€Other€commenters€objected€to€portions€of€the€definition€which€would€haveÏallowed€a€deviation€to€be€based€on€"data€collected€that€can€be€used€to€certifyÏcompliance,"€such€as€the€data€obtained€through€a€voluntary€audit.€€These€commentersÏargued€that€such€a€definition€created€a€disincentive€for€owners€and€operators€to€engageÏin€certain€types€of€self„monitoring.Ìà  àThe€final€rule€does€not€refer€to€"deviations"€in€part€64€and€thus€does€not€include€aÏdefinition€of€"deviation."€€The€1996€part€64€Draft€did€contain€a€revised€definition€ofÏ"deviation"€to€be€included€in€the€part€71€provisions€covering€the€federal€operatingÏpermits€program.€€This€definition€would€have€clarified€that€a€deviation€is€not€always€aÏviolation€and€that€types€of€events€that€were€to€be€considered€deviations€includedÏ"exceedances"€and€"excursions"€as€defined€under€part€64.€€The€state€operating€permitÏprograms€authorized€by€part€70€of€this€chapter€allow€permitting€authorities€to€define€theÐ ,`'8 Ðterm€"deviation"€in€the€context€of€their€individual€programs.€€The€1996€part€64€Draft€didÏnot€include€a€definition€of€"deviation"€to€be€included€in€part€70€because€the€Agency€didÏnot€want€to€restrict€the€power€of€permitting€authorities€to€define€this€term.Ìà  àPublic€comments€on€the€1996€part€64€Draft€pointed€out€that€there€are€permittingÏauthorities€which€define€a€"deviation"€as€a€violation€of€the€underlying€emission€limitationÏor€standard.€€The€provisions€in€the€1996€part€64€Draft€which€stated€that€exceedancesÏand€excursions€are€to€be€considered€deviations€without€necessarily€being€violationsÏarguably€conflict€with€those€definitions€of€"deviation."€€In€response€to€these€concerns,Ïthe€Agency€has€eliminated€all€references€to€"deviations"€from€part€64.€€Ìà  àc.à  àòòOther€Deleted€Definitionsóó.€€The€proposed€rule€contained€a€definition€forÐ X¨  Ð"established€monitoring."€€This€definition€applied€to€certain€types€of€monitoringÏmethodologies€which€had€been€demonstrated€to€be€a€feasible€means€of€assessingÏcompliance€with€emissions€limitations€or€standards.€€The€concept€of€"establishedÏmonitoring"€was€used€in€the€monitoring€selection€process€under€the€1993€EM€proposal.€ÏAs€discussed€below€in€Section€II.D.,€these€provisions€have€been€eliminated€in€part€64.€ÏBecause€the€concept€of€"established€monitoring"€serves€no€function€in€the€final€rule,€thisÏdefinition€has€been€deleted.Ìà  àThe€proposed€rule€defined€"fugitive€emissions"€as€those€emissions€which€couldÏnot€reasonably€pass€through€a€stack,€chimney,€vent,€or€other€functionally„equivalentÏopening.€€This€definition€was€necessary€because€ðð€64.4(d)€of€the€proposed€rule€wouldÏhave€established€separate€monitoring€protocol€requirements€for€fugitive€emissionsÏmonitoring.€€As€discussed€below€in€Section€II.B.,€fugitive€emissions€are€not€subject€toÏany€specific€part€64€monitoring€requirements.€€The€Agency€has€therefore€deleted€thisÏdefinition€from€the€final€rule.Ìà  àSection€64.4(c)€of€the€1993€EM€proposal€established€certain€requirements€forÏowners€or€operators€who€sought€to€use€the€monitoring€of€process€or€control€deviceÏparameters€as€part€of€an€enhanced€monitoring€protocol.€€In€certain€instances,€theÏproposed€rule€required€the€establishment€of€a€"demonstrated€compliance€parameterÏlevel"€(DCPL)€to€determine€which€levels€of€the€parameter€being€monitored€correlatedÐ ,`'8 Ðwith€a€demonstration€of€compliance€with€the€applicable€emission€limitation€or€standard.€ÏUnder€the€requirements€in€the€final€rule,€the€Agency€has€modified€its€approach€toÏparameter€monitoring€(see€Section€II.C.€for€a€more€detailed€discussion).€€Accordingly,Ïthe€definition€of€"demonstrated€compliance€parameter€level"€or€DCPL€has€been€deletedÏfrom€the€final€rule.Ìà  àBoth€the€terms€"enhanced€monitoring"€and€"enhanced€monitoring€protocol"€haveÏbeen€eliminated€in€the€final€rule.€€The€1993€EM€proposal€defined€"enhanced€monitoring"Ïas€the€methodology€used€by€an€owner€or€operator€to€detect€deviations€with€sufficientÏrepresentativeness,€accuracy,€precision,€reliability,€frequency,€and€timeliness€in€order€toÏdetermine€if€compliance€is€continuous€during€a€reporting€period.€€An€"enhancedÏmonitoring€protocol"€was€defined€as€the€monitoring€methodology€and€all€installation,Ïequipment,€performance,€operation,€and€quality€assurance€requirements€applicable€toÏthat€methodology.€€The€final€part€64€establishes€monitoring€performance€criteria€in€theÏbody€of€the€rule€rather€than€in€a€definition;€thus,€the€definitions€of€ð ðenhanced€monitoringððÏand€ð ðenhanced€monitoring€protocolðð€have€been€deleted.€€The€1996€part€64€DraftÏincluded€a€related€concept,€the€"compliance€assurance€monitoring€(CAM)€plan,"€whichÏdistinguished€monitoring€for€units€with€control€devices€subject€to€Subpart€B€of€that€draftÏrule€and€monitoring€for€other€units€under€Subpart€C€of€that€draft€rule.€€Because€the€finalÏrule€does€not€include€Subpart€C,€this€term€is€not€used€in€the€final€rule.€Ìà  à"Responsible€official"€was€defined€under€the€1993€EM€proposal€as€having€theÏsame€meaning€as€provided€under€ðð€70.2.€€This€term€was€used€in€ðð€64.5(c)€of€the€1993ÏEM€proposal,€which€required€that€the€personal€certification€of€a€responsible€official€beÏincluded€in€each€enhanced€monitoring€report.€€In€response€to€a€number€of€objections€toÏthis€requirement,€the€Agency€has€not€included€a€part€64€report€signature€requirement€inÏthe€final€part€64€rule€but€generally€relies€on€part€70€reporting€procedures.€€Thus,€there€isÏno€need€to€define€"responsible€official"€in€part€64.€€It€should€be€noted€that€ðð€70.5(d)Ïoutlines€the€responsible€official's€duties€with€respect€to€submitting€reports,€including€partÏ64€reports.Ìà  à2.à  àòòRevised€DefinitionsóóÐ ,`'8 Ðà  àThere€are€a€number€of€definitions€that€were€in€the€1993€EM€proposal€that€haveÏbeen€revised€in€the€final€rule.€€Some€of€these€revisions€are€relatively€minor,€such€asÏtechnical€revisions€designed€to€reflect€changes€to€the€substantive€provisions€of€part€64Ïor€to€more€closely€parallel€the€definitions€found€in€part€70.€€Other€revisions€are€intendedÏto€address€more€significant€concerns€with€the€proposed€definitions.€€The€revisedÏdefinitions€are€as€follows:€€ÌÓ<°,X‚X« A ¸ —X°,X‚X` ˜X<Óà  àa.à  àòòEmission€Limitation€or€Standard€and€Applicable€Requirement.óó€€The€1993€EMÐ  p  Ðproposal€defined€an€"emission€limitation€or€standard"€as€any€federally€enforceableÏemission€limitation,€emission€standard,€standard€of€performance€or€means€of€emissionÏlimitation€as€defined€under€the€Act.€€This€term€is€actually€a€hybrid€of€several€terms€usedÏunder€the€Act.€€The€proposed€definition€stated€that€an€emission€limitation€or€standardÏmay€be€expressed€as€a€specific€quantity,€rate€or€concentration€of€emissions;€as€theÏrelationship€of€controlled€to€uncontrolled€emissions€(e.g.,€control€efficiency);€as€a€workÏpractice;€as€a€process€or€control€device€parameter;€or€as€another€form€of€design,Ïequipment,€operational,€or€operation€and€maintenance€requirement.Ìà  àSection€64.2€of€the€1993€EM€proposal€also€defined€an€"applicable€emissionÏlimitation€or€standard"€as€any€emission€limitation€or€standard€subject€to€theÏrequirements€of€part€64€including:€(1)€an€emission€limitation€or€standard€applicable€to€aÏregulated€hazardous€air€pollutant€under€40€CFR€part€61;€or€(2)€an€emission€limitation€orÏstandard€applicable€to€a€regulated€air€pollutant€other€than€a€hazardous€air€pollutantÏunder€section€112€of€the€Act,€for€which€the€source€is€classified€as€a€major€source.Ìà  àThe€definition€of€"applicable€emission€limitation€or€standard"€was€closely€tied€toÏthe€applicability€provisions€of€the€1993€EM€proposal.€€For€example,€the€separateÏtreatment€of€hazardous€air€pollutant€emissions€limitations€or€standards€in€the€definitionÏfollowed€the€proposed€rule's€separate€applicability€provisions€for€hazardous€airÏpollutants.€€Those€applicability€provisions€have€been€significantly€revised€in€part€64.€ÏCommenters€raised€concerns€that€the€meaning€of€the€term€"applicable€emissionÏlimitation€or€standard"€was€unclear.€€The€Agency€agrees€that€the€proposed€definitions€ofÏ"applicable€emission€limitation€or€standard"€and€"emission€limitation€or€standard"€couldÐ ,`'8 Ðbe€confusing,€especially€when€interpreted€in€conjunction€with€the€pre„existing€definitionÏof€"applicable€requirement"€in€part€70.€€The€final€rule€replaces€the€term€"applicableÏemission€limitation€or€standard"€with€the€term€"applicable€requirement."€€Part€64€statesÏthat€"applicable€requirement"€shall€have€the€same€meaning€as€provided€under€part€70.€ÏThe€Agency€made€this€change€in€the€final€rule€to€avoid€any€potential€confusion€and€toÏbring€part€64€into€closer€agreement€with€the€definitions€of€part€70.Ìà  àPart€64€retains€the€basic€definition€of€"emission€limitation€or€standard"€withÏseveral€revisions.€€Several€commenters€requested€clarification€on€the€meaning€ofÏ"federally€enforceable"€in€this€definition.€€The€final€rule€eliminates€the€phrase€"federallyÏenforceable"€in€the€definition€and€defines€an€emission€limitation€or€standard€as€"anyÏapplicable€requirement€that€constitutes€an€emission€limitation,€emission€standard,Ïstandard€of€performance€or€means€of€emission€limitation€.€.€.€."€€This€adjustment€reflectsÏthe€addition€of€the€term€"applicable€requirement"€in€the€final€rule.€€The€term€"applicableÏrequirement"€is€used€in€part€70€permitting€to€refer€to€the€standards,€requirements,Ïterms,€and€conditions€that€are€contained€in€the€part€70€permit€as€federally„enforceableÏrequirements.€€Thus,€the€reference€to€"federally€enforceable"€was€eliminated€because,Ïthrough€the€permitting€process,€all€"applicable€requirements"€become€federallyÏenforceable.Ìà  àAdditional€language€in€the€part€64€definition€of€"emission€limitation€or€standard"Ïclarifies€that,€for€purposes€of€part€64,€the€definition€of€"emission€limitation€or€standard"Ïdoes€not€include€general€operation€requirements€that€an€owner€or€operator€may€beÏrequired€to€meet,€such€as€requirements€to€obtain€a€permit,€to€operate€and€maintainÏsources€in€accordance€with€good€air€pollution€control€practices,€to€develop€and€maintainÏa€malfunction€abatement€plan,€or€to€conduct€monitoring,€submit€reports€or€keep€records.€ÏAs€noted€below€(see€detailed€discussion€of€ðð€64.2),€requirements€of€this€type€generallyÏapply€to€an€entire€facility.€€The€Agency€has€specifically€excluded€such€requirements€soÏthat€otherwise€unregulated€emissions€units€are€not€inappropriately€subject€to€part€64Ïmonitoring€requirements.Ìà  àA€number€of€commenters€requested€that€EPA€further€narrow€the€definition€ofÐ ,`'8 Ðemission€limitation€or€standard€so€that€it€would€not€apply€to€work€practice,€design€orÏsimilar€types€of€requirements.€€The€commenters€argued€that€part€64€monitoring€forÏthese€types€of€standards€did€not€make€sense€and€would€be€redundant.€€The€AgencyÏdisagrees€Ô% € Ôto€the€extent€that€a€control€device€is€used€to€achieve€compliance€with€theseÏtypes€of€standards.€€As€discussed€in€Section€II.B.,€the€final€rule€applies€only€to€pollutant„¼specific€emissions€units€which€achieve€compliance€by€using€a€control€device.€€TheÏmonitoring€is€designed€to€document€that€the€control€device€is€properly€operated€andÏmaintained.€€Many€work€practice,€design€or€similar€standards€will€not€apply€to€theseÏtypes€of€units€(i.e.,€with€control€devices),€which€addresses€many€of€the€commenters'Ïconcerns.€€For€units€that€are€subject€to€such€requirements€and€that€do€use€a€controlÏdevice€(see,€e.g.,€40€CFR€60.692„5,€which€imposes€a€"design"€standard€that€certainÏemissions€be€controlled€by€a€control€device€with€95€percent€design€efficiency),€theÏnature€of€the€standard€is€immaterial€to€the€assessment€of€whether€the€control€device€isÏproperly€operated€and€maintained.€€The€Agency€notes€that€in€the€example,€the€NSPSÏrequires€the€owner€or€operator€to€monitor€the€control€device€to€assure€proper€operationÏand€maintenance€(see€ðð€60.695).€€Part€64€will€act€in€a€similar€manner.Ìà  àb.€€òòPart€70/Part€71€Permitóó.€€The€term€"permit"€as€defined€in€the€1993€EMÐ 0€  Ðproposal€meant€any€applicable€permit€issued,€renewed,€amended,€revised,€or€modifiedÏunder€part€C€or€D€of€title€I€of€the€Act,€or€title€V€of€the€Act.€€Under€the€1993€EM€proposal,Ïpart€64€would€have€been€implemented€through€both€the€part€70€operating€permitsÏprogram€and€the€preconstruction€permits€programs€developed€under€parts€C€and€D€ofÏtitle€I€of€the€Act.€€Public€commenters€raised€a€variety€of€objections€and€concerns€to€thisÏproposed€implementation€structure.€€The€Agency€has€responded€to€these€comments€inÏpart€by€limiting€part€64€implementation€under€part€64€to€permits€covered€by€title€V€of€theÏAct.Ìà  àTo€reflect€this€change€in€the€implementation€approach,€the€Agency€has€replacedÏthe€proposed€definition€of€"permit"€with€a€definition€for€a€"part€70€or€71€permit."€€SectionÏ64.1€of€the€final€rule€states€that€"part€70€or€71€permit"€shall€have€the€same€meaning€asÏprovided€under€part€70€(or€part€71)€of€this€chapter.€€The€Agency€believes€this€definitionÐ ,`'8 Ðis€consistent€with€the€goal€of€bringing€part€64€definitions€into€closer€agreement€with€theirÏpart€70€(or€part€71)€counterparts.Ìà  àThe€Agency€has€also€added€a€related€definition€in€part€64.€€The€definition€of€aÏ"part€70€or€71€permit€application"€includes€any€application€that€is€submitted€by€an€ownerÏor€operator€in€order€to€obtain€a€part€70€or€71€permit,€including€any€supplement€to€aÏpreviously€submitted€application.€€The€Agency€believes€the€addition€of€this€definition€isÏnecessary€because€the€implementation€provisions€set€forth€in€ðð€64.3€of€part€64€areÏconnected€to€the€submission€of€a€part€70€or€71€permit€application.Ìà  àc.€€òòMajor€Sourceóó.€€The€1993€EM€proposal€defined€the€term€"major€source"€asÐ ð@  Ðincluding€any€major€source€meeting€the€definition€in€ðð€70.2,€excluding€any€hazardous€airÏpollutant€(HAP)€source€included€in€paragraph€(1)€of€that€definition.€€One€commenterÏrequested€clarification€of€why€this€definition€excluded€major€HAP€sources€included€inÏthe€major€source€definition€of€part€70.€€The€form€of€the€proposed€definition€wasÏnecessary€because€the€1993€EM€proposal€treated€HAP€requirements€separately€fromÏother€requirements.€€For€HAP€requirements,€the€1993€EM€proposal€would€have€appliedÏto€any€source€required€to€obtain€a€part€70€operating€permit€or€a€preconstruction€permitÏunder€part€C€or€D€of€title€I€of€the€Act€and€not€just€to€"major€sources."€€As€discussedÏbelow,€the€applicability€provisions€of€part€64€have€been€substantially€modified€in€theÏfinal€rule€such€that€there€are€no€separate€applicability€provisions€for€HAP€requirementsÏ(see€Section€II.B.).€€In€the€final€rule,€the€definition€of€"major€source"€has€been€revised€toÏreflect€these€changes.€€Part€64€simply€states€that€"major€source"€shall€have€the€sameÏmeaning€as€provided€in€part€70.€€Ìà  àThe€U.S.€Small€Business€Administration€(SBA)€submitted€for€discussion€at€theÏSeptember€10,€1996€meeting€a€proposal€to€retain,€in€part€64,€EPAððs€current€practice€ofÏexcluding€from€major€source€status€those€sources€whose€actual€emissions€are€less€thanÏ50€percent€of€the€major€source€threshold.€€€SBA€apparently€was€referring€to€EPAððsÏpolicy€issued€in€January€1995€to€establish€a€two„year€(extended€until€July€31,€1998)Ïtransition€policy€that€guides€EPA€in€applying€the€definition€of€ð ðmajor€sourceðð€in€part€70.€€ÏBecause€part€64€relies€on€part€70's€definition€of€ð ðmajor€source,ðð€SBAððs€concern€is€met.€Ð ,`'8 ÐAs€long€as€that€policy€remains€in€effect,€it€will€be€relevant€to€determining€applicabilityÏunder€part€64.€€€òòSee€alsoóó€€òòNational€Mining€Association€v.€U.S.€EPAóó,€59€F.3d€1351€(D.C.Ð h ÐCir.€1995).Ìà  àd.€€òòOther€Part€70€Related€Definitions.óó€€Section€64.2€of€the€proposed€ruleÐ è8 Ðcontained€a€definition€for€"potential€to€emit"€which€tracked€the€language€of€the€part€70Ïdefinition€of€"potential€to€emit"€with€technical€edits€to€reflect€the€1993€EM€proposal'sÏfocus€on€emissions€units€as€opposed€to€the€focus€on€major€sources€in€part€70.€€The€textÏof€the€proposed€rule€did€not€make€it€clear,€however,€that€part€70€was€the€source€for€theÏproposed€definition.€€Under€part€64,€"potential€to€emit"€is€explicitly€defined€as€havingÏ"the€same€meaning€as€provided€under€part€70€of€this€chapter,€provided€that€it€shall€beÏapplied€with€respect€to€an€'emissions€unit'€as€defined€under€this€part€in€addition€to€aÏ'stationary€source'€as€provided€under€part€70€of€this€chapter."€€Although€the€text€of€theÏdefinition€has€been€changed,€the€meaning€of€"potential€to€emit"€in€the€final€rule€isÏeffectively€the€same€as€in€the€proposed€rule.€€The€Agency€made€these€revisions€toÏclarify€the€connection€of€this€term€with€the€definitions€of€part€70.Ìà  àThe€1993€EM€proposal€defined€"emissions€unit"€as€any€part€or€activity€of€aÏsource€that€emits€or€has€the€potential€to€emit€any€regulated€air€pollutant€for€which€anÏemission€limitation€or€standard€had€been€established.€€This€definition€was€a€modificationÏof€the€definition€of€"emissions€unit"€set€forth€in€part€70.€€The€Agency€received€a€varietyÏof€public€comments€on€this€definition.€€One€commenter€recommended€using€the€part€70Ïdefinition€of€"emissions€unit"€in€part€64.€€Several€other€commenters€expressed€concernÏover€the€use€of€the€phrase€"any€part€or€activity"€in€the€definition,€stating€that€theÏdefinition€was€not€clear€as€to€whether€an€emissions€unit€is€a€single€piece€of€equipmentÏor€a€group€of€multiple€units€located€together€within€a€source.€€In€response€to€theseÏcomments,€the€definition€of€"emissions€unit"€has€been€revised€in€the€final€rule€to€haveÏthe€same€meaning€as€provided€under€part€70.€€This€approach€clarifies€potentialÏambiguity€in€the€definition€by€relying€on€the€established€part€70€definition€of€the€termÏand€brings€part€64€into€closer€agreement€with€the€provisions€of€the€operating€permitsÏprogram€thorough€which€part€64€will€be€implemented.Ð ,`'8 Ðà  àThe€1993€EM€proposal€contained€a€definition€of€"permitting€authority"€whichÏtracked€the€language€of€the€part€70€definition€of€"permitting€authority"€with€technicalÏedits€to€reflect€the€proposed€EM€rule's€implementation€through€both€title€V€permittingÏprograms€and€title€I€preconstruction€permit€programs.€€The€text€of€the€proposed€rule€didÏnot€make€it€clear,€however,€that€part€70€was€the€source€for€the€proposed€definition.€€InÏaddition,€the€final€rule€is€not€implemented€through€title€I€preconstruction€permits.€€TheÏAgency€has€therefore€revised€the€definition€of€"permitting€authority"€to€have€expresslyÏthe€same€meaning€as€provided€under€part€70.Ìà  à3.à  àòòDefinitions€Added€in€the€Final€RuleóóÐ ð@  Ðà  àMany€of€the€definitions€in€ðð€64.1€of€the€final€rule€have€been€added€to€reflectÏchanges€in€the€substantive€requirements€of€part€64€monitoring€under€part€64.€€TheseÏdefinitions€are€generally€addressed€in€the€detailed€discussion€of€the€appropriateÏsubstantive€sections€of€the€final€rule.€€The€following€discussion€provides€a€brief€overviewÏof€some€key€terms€added€to€the€definitions€section€of€the€final€rule.Ìà  àThe€Agency€has€added€definitions€for€the€terms€"monitoring"€and€"data"€to€theÏfinal€rule.€€The€rule€defines€"monitoring"€as€any€form€of€collecting€data€on€a€routineÏbasis€to€determine€or€otherwise€assess€compliance€with€emission€limitations€orÏstandards.€€The€rule€also€includes€a€non„exclusive€list€of€data€collection€techniquesÏwhich€may€be€considered€appropriate€monitoring€under€part€64.€€This€list€is€similar€toÏthe€list€included€in€ðð€64.6€of€the€1993€EM€proposal€with€minor€changes€in€response€toÏcomments€on€that€section.€€"Data"€is€defined€as€the€results€of€any€type€of€monitoring€orÏcompliance€determination€method.€€Some€commenters€had€raised€concerns€that€theÏuse€of€the€term€"data"€in€the€substantive€provisions€of€proposed€part€64€reflected€a€biasÏtoward€instrumental€monitoring€methods.€€The€Agency€believes€that€by€adding€theseÏtwo€definitions,€the€final€rule€reflects€the€Agency's€intent€that€a€wide€variety€ofÏinformation€and€means€of€collecting€information€potentially€can€be€used€to€satisfy€theÏrequirements€of€part€64.Ìà  àDefinitions€for€the€terms€"exceedance"€and€"excursion"€have€been€added€to€theÏfinal€rule.€€These€terms€are€closely€related.€€Section€64.1€defines€an€"exceedance"€as€aÐ ,`'8 Ðcondition€detected€by€monitoring€which€provides€data€in€terms€of€an€emission€limitationÏor€standard€and€which€indicates€that€emissions€or€opacity€are€greater€than€thatÏlimitation€or€standard,€consistent€with€the€applicable€averaging€period.€€An€"excursion"Ïis€defined€as€a€departure€from€an€indicator€range€established€as€part€of€part€64Ïmonitoring,€also€as€consistent€with€the€applicable€averaging€period.€€As€discussedÏabove,€the€1996€part€64€Draft€would€have€stated€that€an€exceedance€or€excursion€Ïwould€be€considered€a€deviation€in€the€part€70€compliance€certification.€€This€statementÏhas€been€removed€in€response€to€comments€that€such€conditions€should€notÏnecessarily€constitute€deviations,€especially€since€some€permitting€authorities€equate€aÏdeviation€with€a€violation.€€See€Section€II.K.2.€of€this€preamble€for€additional€discussionÏon€the€status€of€excursions€for€a€part€70€compliance€certification.€€The€1996€part€64ÏDraft€also€omitted€reference€to€the€applicable€averaging€period.€€That€omission€hasÏbeen€corrected€in€the€final€rule.€Ìà  àThe€final€definition€added€to€the€final€rule€describes€the€meaning€of€a€"predictiveÏemissions€monitoring€system€(PEMS)."€€Several€commenters€to€the€1993€EM€proposalÏsuggested€that€a€definition€for€this€term€should€be€added€to€part€64.€€The€AgencyÏagrees€with€this€suggestion€and€has€included€an€appropriate€definition€in€ðð€64.1€of€theÏfinal€rule.€€This€definition€is€included€in€the€final€part€64€rule€because€ðð€64.3(c)€sets€forthÏspecial€criteria€for€the€use€of€predictive€monitoring€systems€when€employed€to€fulfill€partÏ64€monitoring€requirements.€€The€same€section€also€provides€special€criteria€for€the€useÏof€continuous€emission€or€opacity€monitoring€systems.€€Because€these€latter€types€ofÏsystems€are€well€understood,€no€explicit€definition€was€considered€necessary€forÏpurposes€of€part€64.Ìà  àB.€€òòSection€64.2€„„€ApplicabilityóóÐ %X . Ðà  à1.€€òòOverviewóóÐ p&À!0 Ðà  àThe€applicability€provisions€in€ðð€64.2€reflect€EPA's€decision€to€focus€part€64Ïrequirements€on€units€that€use€control€devices€to€achieve€compliance.€The€types€ofÏemission€exceedance€problems€that€can€arise€from€poor€operation€and€maintenance€ofÏa€control€device€can€be€severe€and€represent€a€significant€compliance€concern.€Ð ,`'8 ÐMoreover,€although€units€with€control€devices€represent€a€smaller€percentage€of€theÏoverall€number€of€emissions€units€than€other€units,€these€controlled€units€represent€aÏdisproportionate€share€of€the€overall€potential€emissions€from€all€emissions€units.€€ByÏconcentrating€the€requirements€of€part€64€on€these€units€with€control€devices,€theÏAgency€has€focused€the€rule€on€units€that€represent€a€significant€portion€of€the€overallÏpotential€emissions€regulated€under€the€Act€and€that€are€generally€most€likely€to€raiseÏcompliance€concerns.Ìà  àThe€Agency€notes€that€the€term€"pollutant„specific€emissions€unit,"€defined€in€ððÏ64.1,€is€used€in€part€64€to€clarify€that€applicability€is€determined€with€respect€to€eachÏpollutant€at€an€emissions€unit€separately.€€For€example,€a€coal„fired€boiler€emittingÏthrough€a€single€stack€could€constitute€several€pollutant„specific€emissions€units,€suchÏas€for€particulate€matter,€SOòò2óó,€NOòòxóó,€and€CO.€€This€term€is€used€throughout€theÐ (x Ðremainder€of€this€document€where€appropriate.€€Ìà  à2.€€òòSignificant€Changes€in€the€Applicability€Threshold€and€Related€DefinitionsóóÐ øH Ðà  àSection€64.2(a)€of€the€final€rule€requires€the€owner€or€operator€to€apply€part€64€toÏsignificant€pollutant„specific€emissions€units€that€use€control€devices€to€achieveÏcompliance€at€major€sources€subject€to€part€70€permit€requirements.€€The€issues€raisedÏwith€respect€to€applicability€during€the€development€of€the€rule€are€described€below.€Ìà  àa.€€òòApplicability€Options€Presented€in€the€1993€EM€Proposalóó.€€The€preamble€toÐ P$ Ðthe€1993€EM€proposal€solicited€comments€on€five€options€for€determining€whichÏemissions€units€would€be€subject€to€enhanced€monitoring€requirements€under€part€64.€ÏThese€options€set€the€threshold€for€applicability€based€on€each€unit's€potential€to€emitÏthe€regulated€air€pollutant(s)€for€which€a€stationary€source€is€classified€as€a€majorÏsource.€€Option€1€set€no€percentage€threshold,€making€all€units€with€applicableÏrequirements€for€the€pollutant€for€which€a€source€is€major€subject€to€part€64€monitoring.€ÏOptions€2,€3,€4,€and€5€would€have€made€part€64€applicable€to€all€units€that€have€theÏpotential€to€emit€pollutants€in€an€amount€equal€to€or€greater€than€10,€30,€50,€and€100Ïpercent€of€the€applicable€major€source€definition,€respectively.€€The€1993€EM€proposalÏincorporated€Option€3,€setting€the€threshold€at€30€percent.€€Under€the€proposed€rule,Ð ,`'8 Ðthe€source€of€an€air€pollutant€which€is€defined€as€being€major€at€100€tons€per€yearÏwould€be€required€to€conduct€enhanced€monitoring€at€all€emissions€units€within€itsÏfacility€that€had€the€potential€to€emit€30€tons€or€more€of€the€pollutant€per€year.Ìà  àApplicability€under€the€1993€EM€proposal€was€based€on€an€emission€unit'sÏ"potential€to€emit."€€The€proposal€defined€this€term€as€an€emission€unit's€maximumÏcapacity€to€emit€a€regulated€air€pollutant€under€the€unit's€physical€and€operationalÏdesign,€taking€into€account€such€operating€restrictions€and€control€equipment€asÏconstitute€federally„enforceable€limitations.€€As€noted€above,€the€1993€EM€proposalÏalso€would€have€applied€only€to€the€pollutants€for€which€a€source€is€major.€€The€1993ÏEM€proposal€solicited€comment€on€the€applicability€approach€in€the€proposed€rule,€andÏspecifically€noted€that€one€other€option€would€be€to€use€uncontrolled€emissions€ratherÏthan€potential€to€emit€to€determine€part€64€applicability.€€The€Agency€noted€that€such€anÏapproach€arguably€would€better€address€the€units€with€the€greatest€environmental€risk.ÏThis€request€for€comment€was€accompanied€by€an€assertion€that€in€a€monitoring€ruleÏsuch€as€part€64,€it€may€be€appropriate€to€use€a€different€definition€of€potential€to€emitÏthan€EPA€has€used€for€other€purposes.€€Ìà  àb.€€òòFinal€Part€64€Applicability€Provisionsóó.€€In€response€to€the€many€commentsÐ 0€  Ðreceived€on€the€1993€EM€proposal,€the€Agency€modified€part€64€to€bring€about€the€CAMÏapproach€including€a€somewhat€different€approach€to€applicability.€€The€AgencyÏreceived€numerous€public€comments€on€the€applicability€provisions€of€the€1993€EMÏproposal.€€Relatively€few€commenters€supported€the€Option€3€(30€percent)€threshold.€ÏMany€of€the€comments€critical€of€Option€3€argued€that€the€benefits€of€increasedÏpollutant€monitoring€obtained€by€covering€additional€emissions€units€at€the€30€percentÏthreshold€was€far€outweighed€by€the€additional€costs€and€burdens€of€implementation€atÏthat€threshold.€€Most€industry€and€many€State€and€local€commenters€supported€OptionÏ5€or€a€higher€threshold.€€Many€of€the€commenters€also€recommended€that€EPA€exemptÏvarious€types€of€units,€especially€uncontrolled€units€that€are€subject€to€design,€workÏpractice,€or€similar€operational€restrictions.€€In€addition,€a€number€of€commentersÏsuggested€alternative€approaches€to€determining€the€applicability€threshold€of€part€64.€Ð ,`'8 ÐIndustry€commenters€generally€favored€the€focus€of€the€1993€EM€proposal€on€theÏpollutants€for€which€a€source€is€a€major,€while€environmental€groups€opposed€thatÏapproach.Ìà  àThe€final€part€64€retains€the€basic€concept€of€an€applicability€threshold€asÏcontained€in€the€1993€EM€proposal,€but€also€narrows€the€focus€so€that€part€64€appliesÏonly€to€those€pollutant„specific€emissions€units€that€use€a€control€device€to€achieveÏcompliance€with€an€applicable€emission€limitation€or€standard.€€In€addition,€units€usingÏcontrol€devices€must€have€potential€pre„control€device€emissions€equal€to€or€greaterÏthan€100€percent€of€the€applicable€major€source€definition€to€be€subject€to€part€64.€ÏSince€part€64€applies€its€size€threshold€only€to€the€proportionally€small€number€ofÏemissions€units€that€use€control€devices,€the€number€of€units€required€to€meet€part€64Ïmonitoring€requirements€is€lower€than€would€have€been€subject€to€the€1993€EMÏproposal.€€The€final€RIA€estimates€that€part€64€will€affect€fewer€than€27,000€units€asÏcompared€to€the€over€35,000€units€which€EPA€had€estimated€would€be€affected€underÏthe€1993€EM€proposal.Ìà  àFor€part€64€to€apply,€ðð€64.2(a)€specifies€that€a€pollutant„specific€emissions€unitÏmust€meet€the€following€three€criteria:€€(1)€the€unit€must€be€subject€to€an€emissionÏlimitation€or€standard€for€the€applicable€regulated€air€pollutant€(or€a€surrogate€of€thatÏpollutant);€(2)€the€unit€must€use€a€control€device€to€achieve€compliance€with€anÏemission€limitation€or€standard;€and€(3)€the€unit€must€have€"potential€pre„control€deviceÏemissions"€in€the€amount,€in€tons€per€year,€required€to€classify€the€unit€as€a€majorÏsource€under€part€70.€Ìà  ài.€€òòEmission€Limitation€or€Standard€Criterionóó.€€For€the€first€criterion,€the€AgencyÐ  #ð, Ðnotes€that€part€64€applies€only€if€an€applicable€emission€limitation€or€standard€appliesÏbecause€the€purpose€of€part€64€is€to€provide€a€reasonable€assurance€of€complianceÏwith€such€requirements.€€Numerous€comments€on€the€1993€EM€proposal€supportedÏEPA's€position€that€part€64€should€apply€only€if€an€underlying€applicable€emissionÏlimitation€or€standard€applies,€but€many€commenters€suggested€that€the€final€ruleÏshould€contain€explicit€language€concerning€the€necessity€for€an€underlying€standard€toÐ ,`'8 Ðtrigger€part€64€applicability.€€The€commenters€believed€inclusion€of€such€language€wasÏcritical€because€a€part€70€operating€permit€will€be€required€to€include€units€withoutÏapplicable€requirements,€and€part€70€permits€will€be€required€for€sources€without€anyÏapplicable€requirements€(so„called€"hollow€permits").€€Their€concern€was€that€part€64Ïcould€be€interpreted€as€applying€to€units€and€sources€of€this€type€and€that€determiningÏcompliance€with€the€rule€under€such€an€interpretation€would€be€exceedingly€difficult.€ÏThe€Agency€agrees€that€the€rule€should€clearly€state€that€part€64€applies€only€where€aÏfederally€enforceable€emission€limitation€or€standard€applies€and€thus€has€added€thisÏfirst€criterion€to€the€applicability€determination.€€The€Agency€also€notes€that€theÏapplicability€provisions€in€part€64€include€a€"surrogate"€of€a€regulated€air€pollutant€toÏaddress€situations€in€which€the€emission€limitation€or€standard€is€expressed€in€terms€ofÏa€pollutant€(or€other€surrogate)€that€is€different€from€the€regulated€air€pollutant€that€isÏbeing€controlled.€€A€common€example€would€be€emission€limits€expressed€in€terms€ofÏparticulate€matter€and€opacity€rather€than€PM„10.€€Another€example€would€be€anÏemission€limit€expressed€as€a€control€device€operating€requirement€rather€than€in€termsÏof€the€applicable€regulated€air€pollutant.€Ìà  àii.€€òòControl€Devices€Criterionóó.€€Second,€the€final€rule€applies€only€to€pollutant„Ð 0€  Ðspecific€emissions€units€that€rely€on€a€control€device€to€achieve€compliance.€The€finalÏrule€provides€a€definition€of€"control€device"€that€reflects€the€focus€of€part€64€on€thoseÏtypes€of€control€devices€that€are€usually€considered€as€"add„on€controls."€€ThisÏdefinition€does€not€encompass€all€conceivable€control€approaches€but€rather€thoseÏtypes€of€control€devices€that€may€be€prone€to€upset€and€malfunction,€and€that€are€mostÏlikely€to€benefit€from€monitoring€of€critical€parameters€to€assure€that€they€continue€toÏfunction€properly.€€In€addition,€a€regulatory€obligation€to€monitor€control€devices€isÏappropriate€because€these€devices€generally€are€not€an€inherent€part€of€the€source'sÏprocess€and€may€not€be€watched€as€closely€as€devices€that€have€a€direct€bearing€onÏthe€efficiency€or€productivity€of€the€source.Ìà  àThe€control€device€definition€is€based€on€similar€definitions€in€State€regulationsÏ(see,€e.g.,€North€Carolina€Administrative€Code,€title€15A,€chapter€2,€subchapter€2D,Ð ,`'8 Ðsection€.0101€(definition€of€"control€device");€Texas€Administrative€Code,€title€30,Ïsection€101.1€(definition€of€"control€device").€€The€definition€is€in€contrast€to€broaderÏdefinitions€of€"control€device,"€"air€cleaning€equipment,"€"control€measure,"€or€similarÏterms€included€in€some€States'€regulations€(see,€e.g.,€Codes,€Rules,€and€Regulations€ofÏthe€State€of€New€York,€title€6,€chapter€III,€section€200.1€(definition€of€"air€cleaningÏdevice"€or€"control€equipment")).€€These€broader€definitions€often€include€any€method,Ïprocess€or€equipment€which€removes,€reduces€or€renders€less€noxious€airÏcontaminants€released€to€the€ambient€air.€€Those€types€of€controls€could€includeÏmaterial€substitution,€process€modification,€operating€restrictions€and€similar€types€ofÏcontrols.€€The€definition€in€part€64€relies€on€the€narrow€interpretation€of€a€control€deviceÏthat€focuses€on€control€equipment€that€removes€or€destroys€air€pollutants.Ìà  àCertain€NSPS€and€NESHAP€regulations€also€have€targeted€definitions€of€"controlÏdevice"€or€"add„on€control€device"€that€apply€to€the€specific€type€of€affected€facilityÏcovered€by€the€applicable€NSPS€or€NESHAP€subpart€(see,€e.g.,€40€CFR€60.581,Ï60.670,€60.691,€60.731,€61.171,€61.241,€63.161,€63.561,€and€63.702).€€The€part€64Ïcontrol€device€definition€generally€is€consistent€with€these€prior€Agency€definitions,€butÏwithout€language€targeted€to€a€particular€affected€facility€type.€€Ìà  àThe€Agency€notes€that€EPA's€Aerometric€Information€Retrieval€System€(AIRS)Ïcontains€a€list€of€various€air€pollution€control€equipment€codes€that€address€a€wideÏvariety€of€possible€control€methods,€processes€and€equipment;€this€list€includes€bothÏactive€control€devices€and€other€types€of€controls.€€In€conjunction€with€the€release€of€theÏ1996€part€64€Draft,€the€Agency€placed€in€the€docket€(item€VI„I„3)€a€document€thatÏreflects€EPA's€position€on€which€of€those€equipment€codes€refer€to€a€"control€device"€asÏdefined€in€the€1996€part€64€Draft€and€which€refer€to€other€types€of€controls.€€TheÏAgency€continues€to€believe€that€this€document€provides€an€appropriate€list€of€the€typesÏof€equipment€which€may€constitute€control€devices.Ìà  àFor€the€final€part€64€rule,€the€control€device€definition€has€been€revised€inÏresponse€to€public€comments.€€In€the€discussion€document€accompanying€the€1996Ïpart€64€Draft,€the€Agency€solicited€comment€on€the€appropriateness€of€the€definition€ofÐ ,`'8 Ðcontrol€device€and€received€numerous€comments€and€requests€for€additionalÏclarifications.€€Generally,€commenters€felt€that€the€control€device€definition€in€the€1996Ïpart€64€Draft€was€overly€broad€and€that€additional€language€was€needed€to€clarify€thatÏEPA€does€not€intend€the€rule€to€apply€to€inherent€process€equipment€such€as€certainÏtypes€of€recovery€devices.Ìà  àThe€final€rule€defines€a€control€device€as€"equipment,€other€than€inherentÏprocess€equipment,€that€is€used€to€destroy€or€remove€air€pollutant(s)€prior€to€dischargeÏto€the€atmosphere."€€Thus,€the€Agency€has€specifically€excluded€inherent€processÏequipment€from€the€control€device€definition€in€the€final€rule.€€The€EPA€suggested€in€theÏdiscussion€document€accompanying€the€1996€part€64€Draft€a€list€of€three€criteria€thatÏwould€be€used€to€distinguish€inherent€process€equipment€from€control€devices:€Ìà  à(1)€Is€the€primary€purpose€of€the€equipment€to€control€air€pollution?Ìà0  à(2)€Where€the€equipment€is€recovering€product,€how€do€the€cost€savings€from€theÏproduct€recovery€compare€to€the€cost€of€the€equipment?Ð (#(# Ðà0  à(3)€Would€the€equipment€be€installed€if€no€air€quality€regulations€are€in€place?Ð (#(# Ð(See€letter€from€David€Solomon,€EPA,€to€Timothy€J.€Mohin,€Intel€Government€Affairs,Ïdated€November€27,€1995.€€Included€in€the€docket€as€Item€VI„C„14.)€Ìà  àThe€Agency€received€a€number€of€comments€on€these€criteria,€some€of€whichÏsupported€including€the€criteria€in€the€rule€and€others€of€which€suggested€otherÏapproaches.€€Based€on€the€comments€received,€the€final€rule€defines€"inherent€processÏequipment"€as€"equipment€that€is€necessary€for€the€proper€or€safe€functioning€of€theÏprocess,€or€material€recovery€equipment€that€the€owner€or€operator€documents€isÏinstalled€and€operated€primarily€for€purposes€other€than€compliance€with€air€pollutionÏregulations."€€If€equipment€must€be€operated€at€an€efficiency€higher€than€that€achievedÏduring€normal€process€operations€in€order€to€comply€with€applicable€requirements,€thatÏequipment€will€not€qualify€as€inherent€process€equipment.€€In€addition,€the€controlÏdevice€definition€has€been€revised€to€include€a€list€of€several€control€techniques€that€doÏnot€constitute€"control€devices"€as€defined€in€part€64.Ìà  àFinally,€the€definition€also€makes€clear€that€part€64€does€not€override€definitionsÐ ,`'8 Ðin€underlying€requirements€that€may€provide€that€certain€equipment€is€not€to€beÏconsidered€a€control€device€for€pollutant„specific€emissions€units€affected€by€thatÏregulation.€€Although€not€subject€to€part€64,€an€example€of€this€type€of€provision€isÏðð63.111€in€subpart€G€to€40€CFR€part€63€(NESHAP€requirements€for€Synthetic€OrganicÏChemical€Manufacturing€Industry€for€Process€Vents,€Storage€Vessels,€TransferÏOperations,€and€Wastewater).€€The€definition€in€that€section€states€that€recoveryÏdevices€used€in€conjunction€with€process€vents€and€primary€condensers€used€inÏconjunction€with€a€steam€stripper€do€not€constitute€"control€devices."€€CertainÏcommenters€asserted€that€part€64€should€not€override€these€types€of€existing€rules€andÏEPA€agrees.€€The€Agency€notes,€however,€that€if€an€emissions€unit€is€regulated€forÏanother€pollutant,€and€the€control€device€also€is€used€to€comply€with€a€limit€that€appliesÏto€that€second€pollutant,€the€equipment€will€be€considered€a€"control€device"€for€theÏsecond€pollutant€unless€the€standards€for€the€second€pollutant€also€explicitly€establishÏthat€the€equipment€is€not€a€control€device.Ìà  àThe€final€rule€also€includes€a€definition€of€a€"capture€system"€because€the€ruleÏrequires,€where€applicable,€monitoring€of€a€capture€system€associated€with€a€controlÏdevice.€€The€monitoring€requirements€for€control€devices€extend€to€capture€systems€asÏwell€because€they€are€essential€to€assuring€that€the€overall€emission€reduction€goalsÏassociated€with€the€control€device€are€achieved.€€See€Section€II.C.,€below.€€The€AgencyÏnotes€that€duct€work,€ventilation€fans€and€similar€equipment€are€not€considered€to€be€aÏcapture€system€if€the€equipment€is€used€to€vent€emissions€from€a€source€to€theÏatmosphere€without€being€processed€through€a€control€device.€€For€instance,€roof€ventsÏthat€remove€air€pollutants€from€inside€a€building€but€do€not€transport€the€pollutants€to€aÏcontrol€device€to€reduce€or€destroy€emissions€would€not€be€subject€to€the€rule.Ìà  àThe€Agency€notes€that€some€commenters,€especially€environmental€and€otherÏpublic€interest€organizations,€opposed€limiting€the€applicability€of€part€64€to€emissionsÏunits€that€rely€on€control€devices.€€They€argued€that€other€significant€emissions€unitsÏwith€other€types€of€control€measures,€such€as€low€NOòòxóó€burners€or€similar€combustionÐ ¨*ø%6 Ðmodification€controls,€should€be€subject€to€part€64€requirements.Ð ,`'8 Ðà  àLow€NOòòxóó€burner€technology€and€certain€other€types€of€combustion€controlÐ ° Ðmeasures€are€not€included€in€the€definition€of€"control€device"€in€the€final€rule.€€For€mostÏlarge€emissions€units€that€employ€such€measures,€such€as€utility€boilers,€separateÏapplicable€requirements€already€require€the€use€of€CEMS€or€similar€monitoring€for€suchÏunits.€€Under€part€70,€that€monitoring€will€have€to€be€included€in€the€permit€andÏconsidered€in€certifying€compliance€with€applicable€requirements.€€Some€types€ofÏcombustion€units€(e.g.,€package€boilers)€that€may€use€low€NOòòxóó€burner€technology€doÐ  p  Ðnot€use€the€same€types€of€technology€used€by€utility€and€large€industrial€boilers.€€TheÏtechnology€used€for€many€units€with€automatic€combustion€control€does€not€provideÏsignificant€operational€flexibility€that€could€afford€the€owner€or€operator€with€anÏopportunity€or€incentive€to€manipulate€NOòòxóó€control€levels.€€(See€docket€item€A„91„52„VI„Ð À ÐA„9)€€For€these€types€of€units,€the€recordkeeping€of€regular€inspection€and€maintenanceÏof€the€low€NOòòxóó€burners€(e.g.,€annular€flow€ratio€adjustment€settings,€burnerÐ à Ðreplacement,€portable€instrument€readings,€etc.)€in€combination€with€periodic€checks€ofÏemission€levels€with€appropriate€test€methods,€as€necessary,€are€very€likely€sufficient€toÏensure€that€the€unit€is€being€operated€in€a€manner€consistent€with€good€air€pollutionÏcontrol€practices€and€that€the€low€NOòòxóó€technology€continues€to€reduce€emissions€atÐ 0€  Ðleast€to€the€level€of€the€standard.€€The€general€monitoring€requirements€in€part€70€areÏadequate€to€assure€that€this€type€of€appropriate€monitoring€is€employed.Ìà  àFor€these€reasons,€EPA€believes€that€monitoring€for€this€control€technology€isÏbest€addressed€through€part€70€periodic€monitoring€requirements€and€not€throughÏexpansion€of€part€64€to€units€with€these€types€of€control€measures.€€Of€course,€if€thereÏare€particular€units€which€raise€a€significant€continuous€compliance€concern,€such€asÏunits€with€an€historically€poor€compliance€history,€the€permitting€authority€can€requireÏmore€detailed€monitoring€under€the€general€part€70€monitoring€provisions€given€that€theÏpermit€must€include€appropriate€monitoring€for€assuring€compliance€with€the€permit.€€InÏthose€cases,€permitting€authorities€may€want€to€consider€elements€of€part€64€asÏpotentially€appropriate,€but€they€would€not€be€bound€to€satisfy€each€element€of€part€64.Ì€€€à  àiii.€€òòPotential€Pre„control€Device€Emissions€Criterionóó.€Finally,€for€the€third€criterionÐ ,`'8 Ðfor€applicability,€ðð€64.2(a)€relies€on€the€concept€of€"potential€pre„control€deviceÏemissions."€€This€term€has€the€same€meaning€as€"potential€to€emit,"€except€that€anyÏemission€reductions€achieved€by€the€control€device€are€not€taken€into€account,€even€ifÏthe€owner€or€operator€generally€is€allowed€to€do€so€under€the€regulatory€definition€ofÏ"potential€to€emit."€€Ìà  àThe€Agency€first€notes€that€numerous€commenters€expressed€objections€to€theÏ1993€EM€proposal's€definition€of€potential€to€emit,€believing€the€definition€resulted€inÏunrealistically€high€emissions€numbers.€€The€EPA€notes€that,€contrary€to€beliefsÏexpressed€in€many€of€those€comments,€that€definition€does€take€into€accountÏenforceable€operating€hour€restrictions,€throughput€restrictions,€control€systemÏefficiency€factors,€and€similar€enforceable€restrictions.€€The€Agency€also€points€out€thatÏthe€same€definition€has€been€used€in€the€part€70€operating€permits€program€as€well€asÏthe€part€63€NESHAP€general€provisions.€Ìà  àThe€Agency€also€notes€that€the€majority€of€commenters€did€favor€the€use€ofÏpotential€to€emit€over€uncontrolled€emissions€because€the€latter€approach€would€notÏtake€into€account€any€emissions€reductions€achieved€through€any€means.€€However,Ïthe€1993€EM€proposal€noted€that€EPA€was€considering€basing€applicability€onÏuncontrolled€emissions€and€the€potential€pre„control€emissions€approach€wasÏsuggested€subsequently€by€State€and€local€agencies€(see€docket€items€VI„D„42€and€49)Ïduring€further€consideration€of€part€64€options.€€As€noted€in€the€discussion€documentÏaccompanying€the€1996€part€64€Draft,€the€Agency€agrees€with€this€approach€andÏbelieves€that€excluding€the€assumed€efficiency€of€the€control€device€from€the€calculationÏof€potential€to€emit€for€purposes€of€part€64€applicability€provides€an€appropriate€meansÏof€distinguishing€between€units€based€on€environmental€significance.€€It€allows€theÏAgency€to€distinguish€between€units€based€on€their€true€size€and€based€on€the€degreeÏof€control€required€to€achieve€compliance.€€The€Agency€notes€that€this€approach€doesÏtake€into€account€all€federally„enforceable€emissions€reductions€except€for€thoseÏresulting€from€control€devices€(e.g.,€emission€reductions€that€occur€as€a€result€ofÏoperating€hour€or€throughput€restrictions€would€be€taken€into€account€in€determiningÐ ,`'8 Ðpotential€pre„control€device€emissions).€€Ìà  àMany€commenters€objected€to€the€reliance€on€potential€pre„control€deviceÏemissions,€primarily€because€the€use€of€the€potential€pre„control€device€emissionsÏthreshold€would€result€in€too€many€units€being€subject€to€the€rule.€€Some€commentersÏnoted€that€the€1993€EM€proposal€similarly€had€requested€comment€on€the€use€ofÏuncontrolled€emissions,€and€that€the€comments€strongly€objected€to€that€idea.Ìà  àThe€Agency€first€notes€that,€contrary€to€some€commenters'€assertions,€EPAÏestimates€that€the€final€rule€will€apply€to€fewer€units€than€the€1993€EM€proposalÏbecause€the€final€rule€only€applies€to€the€proportionally€small€number€of€emissions€unitsÏthat€use€equipment€meeting€the€"control€device"€definition.€€The€final€RIA€estimates€thatÏfewer€than€27,000€pollutant„specific€emissions€units€will€be€subject€to€part€64,€whereasÏthe€30€percent€option€in€the€1993€EM€proposal€would€have€covered€over€35,000€suchÏunits.€€The€EPA€has€also€delayed€implementation€for€those€units€subject€to€the€rule€t