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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€thatÏhave€the€"potential€to€emit"€(post„control€device)€less€than€the€major€source€threshold.€ÏThis€delayed€implementation€will€reduce€the€burdens€of€part€64€on€the€initial€round€ofÏpart€70€permitting.€€The€Agency€feels€that€these€changes€should€alleviate€theÏcommenters'€concerns€and€that€further€reductions€in€the€number€of€units€to€which€theÏrule€applies€are€not€appropriate.€Ìà  àThe€CAM€approach€is€necessarily€concerned€with€significant,€controlled€unitsÏeven€if€the€potential€to€emit€after€the€control€device€is€low.€€The€reason€for€coveringÏthese€units€is€two„fold.€€First,€part€64€monitoring€will€be€designed€to€detect€long„termÏunder„performance€of€control€devices€that€periodic€evaluations€such€as€stack€tests€mayÏbe€unable€to€document.€€For€example,€a€unit€may€have€the€potential€to€emit€20€tons€perÏyear€after€a€control€device€which€is€required€to€operate€with€a€99€percent€controlÏefficiency.€€The€pre„control€device€potential€to€emit€for€that€unit€is€2,000€tons€per€year;€ifÏthe€required€control€device€efficiency€is€99.9€percent,€that€figure€increases€to€20,000Ïtons€per€year.€€If€the€long„term€actual€control€performance€of€that€device€decreases€toÏ95€percent,€the€actual€emissions€could€increase€to€100€or€1000€tons€per€year,Ïrespectively.€€Part€64€is€aimed€first€at€addressing€this€type€of€long„term,€significant€lossÐ ,`'8 Ðof€control€efficiency€that€can€occur€without€complete€failure€of€a€control€device.€€TheÏsecond€type€of€problem€is€short„term€complete€loss€of€control.€€As€indicated€in€some€ofÏthe€comments,€for€many€types€of€control€devices€this€type€of€problem€could€be€detectedÏafter€the€fact€with€monitoring€less€detailed€than€part€64.€€However,€the€goal€of€airÏpollution€control€is€to€prevent€these€types€of€problems€before€they€occur,€if€possible,€atÏa€reasonable€cost.€€The€EPA€believes€that€part€64€in€many€instances€can€be€designedÏto€provide€early€indications€of€control€equipment€problems€that€could€be€addressed€priorÏto€such€catastrophic€failures.€€For€these€reasons,€EPA€believes€that€the€use€of€pre„¼control€device€potential€to€emit€is€a€rational€basis€on€which€to€evaluate€whether€specificÏunits€should€be€subject€to€part€64.Ìà  àSome€comments€on€the€1996€part€64€Draft€also€objected€to€the€potential€pre„¼control€device€emissions€threshold€based€on€the€argument€that€the€creation€of€a€newÏsize€calculation€that€source€owners€or€operators€must€perform€to€determine€applicabilityÏwill€cause€confusion€and€result€in€additional€burdens.€€The€Agency€disagrees€sinceÏowners€will€simply€need€to€remove€the€design€efficiency€of€the€control€device€from€theÏcalculation€of€the€applicable€unitððs€potential€to€emit.€€Potential€pre„control€emissions€willÏotherwise€be€calculated€in€exactly€the€same€way€as€potential€to€emit.€€The€two€figuresÏwill€both€factor€in€enforceable€operational€restrictions,€so€only€the€effect€of€the€controlÏdevice's€efficiency,€a€factor€which€has€to€be€quantified€for€determining€the€standardÏmeaning€of€"potential€to€emit,"€will€be€treated€differently.Ìà  àCommenters€also€noted€that€part€64€would€expand€the€1993€EM€proposal€by€notÏlimiting€applicability€to€those€pollutants€for€which€the€source€is€major.€€The€final€ruleÏdoes€limit€applicability€to€the€pollutants€for€which€a€pollutant„specific€emissions€unit€Ïwould€be€major€except€for€the€emissions€reductions€assumed€to€occur€as€a€result€of€aÏcontrol€device.€€As€explained€above,€EPA€believes€that€the€focus€of€the€rule€on€theÏpotential€to€emit€of€units€prior€to€a€control€device€is€an€appropriate€screening€tool€toÏdetermine€which€units€should€be€monitored€under€part€64.€€For€that€reason,€the€focus€ofÏthe€1993€EM€proposal€on€major€pollutants€only€would€be€inappropriate.€€In€addition,€asÏsome€commenters€pointed€out€in€response€to€the€proposed€rule,€the€Agency€typicallyÐ ,`'8 Ðdoes€not€focus€on€only€the€major€pollutants€even€where€applicability€of€a€program€isÏfocused€solely€on€whether€a€source€is€a€major€source.€€€Ìà  àFinally,€EPA€believes€it€would€be€irrational€to€continue€to€focus€solely€on€theÏpollutants€for€which€a€source€is€major€when€the€Agency€is€focusing€on€units€that€haveÏinstalled€control€devices.€€For€instance,€a€source€could€be€"major"€for€NOòòxóó€with€no€NOòòxóóÐ P   Ðcontrol€devices€(and€even€no€NOòòxóó€requirements€in€an€attainment€area)€but€have€a€unitÐ ¸   Ðwith€the€potential€to€emit€20€tons€of€particulate€matter€after€a€control€device€that€has€aÏrated€removal€efficiency€of€99.9€percent.€€The€post„control€particulate€potential€to€emitÏfrom€this€particular€emissions€unit€would€be€less€than€the€major€source€threshold€of€100Ïtons/year;€however,€the€precontrol€potential€to€emit€of€20,000€tons/year€of€particulateÏmatter€emissions€would€be€greater€than€the€100€tons/year€major€source€threshold.€€AsÏnoted€in€the€example€discussed€above,€small€decreases€in€efficiency€of€that€controlÏdevice€could€lead€to€actual€emission€increases€significantly€above€the€major€sourceÏthreshold.€€Thus,€while€the€source€in€this€example€may€not€have€the€potential€to€emitÏparticulate€matter€(taking€into€account€the€control€device)€in€amounts€sufficient€for€theÏsource€to€be€classified€as€a€major€source€for€particulate€matter,€the€pollutant„specificÏemissions€unit€for€particulate€matter,€not€for€NOòòxóó,€in€this€example€is€clearly€one€whichÐ 0€  Ðthe€Agency€believes€should€be€subject€to€part€64.Ìà  àOther€commenters€questioned€whether€the€applicability€provisions€were€self„¼implementing.€€They€argued€that€unit„by„unit€negative€declarations€would€be€highlyÏburdensome.€The€Agency€agrees€and€part€64€does€not€require€that€owners€or€operatorsÏjustify€in€a€permit€application€why€part€64€is€not€applicable,€or€that€owners€or€operatorsÏapply€for€exemptions.€€However,€the€Agency€notes€that€the€permitting€authority€canÏrequest€further€explanation€as€to€how€a€source€owner€or€operator€determined€that€partÏ64€did€or€did€not€apply€for€any€pollutant„specific€emissions€unit€for€which€there€may€beÏan€issue€about€applicability.€€In€addition,€an€owner€or€operator€that€wishes€to€takeÏadvantage€of€the€exemption€for€certain€municipally„owned€utility€units€will€have€toÏprovide€the€documentation€required€to€satisfy€that€exemption€(see€the€followingÏdiscussion€of€this€exemption).Ð ,`'8 Ðà  à3.€€òòDevelopment€of€the€Exemption€ProvisionsóóÐ ° Ðà  àPart€64€exempts€owners€or€operators€with€respect€to€certain€emission€limitationsÏor€standards€for€which€the€underlying€requirements€already€establish€adequateÏmonitoring€for€the€emission€limits€being€monitored,€and€with€respect€to€certainÏmunicipally„owned€utility€units.Ì€€à  àa.€€òòExemptions€in€the€1993€EM€proposalóó.€The€1993€EM€proposal€establishedÐ ¸   Ðexemptions€for€the€following€types€of€emission€limits:Ìà  à„„€Emission€limitations€or€standards€under€the€NESHAP€program€(pursuant€toÏsection€112€of€the€Act),€except€for€standards€established€in€part€61.€This€exemptionÏreflected€the€Agency's€intent€that€the€provisions€of€part€63,€the€MACT€standards,€willÏinclude€appropriate€enhanced€monitoring€provisions€pursuant€to€the€authority€in€sectionÏ114(a)(3)€of€the€Act.Ìà  à„„Stratospheric€ozone€protection€requirements€under€title€VI€of€the€Act.€€The€typeÏof€requirements€that€apply€under€that€program€are€significantly€different€than€typicalÏemission€limitations€or€standards,€and€the€appropriate€monitoring€for€such€requirementsÏwill€be€handled€under€regulations€implementing€those€requirements.€€The€exemption€isÏunchanged€from€the€proposed€rule€but€for€a€technical€correction€(substituting€title€VI€ofÏthe€Act€for€the€original€reference€to€section€603).Ìà  à„„€Acid€Rain€Program€emission€limits€under€title€IV€of€the€Act.€€The€Acid€RainÏmonitoring€requirements€under€40€CFR€part€75€already€establish€all€appropriateÏcompliance€assurance€monitoring€for€such€requirements.€€The€exemption€is€unchangedÏfrom€the€proposed€rule€but€for€a€technical€correction€(to€include€emission€limitsÏapplicable€to€opt„in€units€under€section€410€of€the€Act).Ìà  à„„NESHAP€standards€for€asbestos€demolition€and€renovation€projects.€€TheseÏsources€are€exempt€under€part€70€and€are€not€required€to€obtain€operating€permits.Ìà  à„„NSPS€standards€for€residential€wood€heaters.€€These€sources€are€also€exemptÏunder€part€70€and€are€not€required€to€obtain€operating€permits.Ìà  àb.€€òòExemptions€in€the€Final€Ruleóó.€€Issues€raised€by€comments€on€the€1993€EMÐ ¨*ø%6 Ðproposal€prompted€EPA€to€include€certain€additional€exemption€provisions€in€the€finalÐ ,`'8 Ðpart€64€rule.€The€exemptions€that€were€changed€or€added€are:€Ìà  à„„€Emission€limitations€or€standards€under€the€NSPS€program€that€are€proposedÏafter€November€15,€1990.€€This€expands€on€the€proposed€rule,€which€provided€for€only€Ïthe€NESHAP€exemption.€€Commenters€suggested€that€EPA€exempt€all€NSPS,€arguingÏthat€existing€NSPS€contain€enhanced€monitoring€requirements.€€The€EPA€disagreesÏthat€this€is€the€case€for€all€NSPS.€€Existing€monitoring€of€covered€units€and€sourcesÏunder€some€NSPS€may€be€sufficient€to€meet€part€64€requirements;€however,€theÏquestion€of€sufficiency€of€any€particular€monitoring€requirement€from€a€non„exemptÏstandard€will€have€to€be€determined€in€accordance€with€the€requirements€of€part€64.€€ÏFuture€federal€rulemakings,€including€NSPS€rulemakings,€will€satisfy€the€monitoringÏrequirements€of€titles€V€and€VII€of€the€1990€Amendments€(see€preamble€to€40€CFR€partÏ70,€57€FR€32278,€July€21,€1992).€€The€EPA€intends€to€focus€on€including€methods€forÏdirectly€determining€continuous€compliance€in€these€new€federal€rulemakings€whereÏsuch€methods€are€feasible.€€Only€where€such€approaches€are€not€feasible€would€theÏAgency€consider€using€an€approach€similar€to€the€CAM€approach€in€such€requirements.€ÏSince€there€will€be€no€gaps€in€their€monitoring€provisions,€EPA€exempts€future€NSPS€asÏwell€as€NESHAP€standards.€€The€Agency€notes€that€this€exemption€does€not€apply€toÏState€emission€limits€or€standards€developed€under€section€111(d)€of€the€Act.Ìà  à„„€Emission€limits€that€apply€solely€under€an€emissions€trading€program€approvedÏor€promulgated€by€EPA€and€emission€cap€requirements€that€meet€the€requirements€of€ððÏ70.4(b)(12)€or€ðð€71.6(a)(13)(iii)€are€exempt€from€part€64.€€This€exemption€wasÏdeveloped€in€response€to€comments€received€on€a€provision€in€the€1993€EM€proposalÏwhich€made€certain€"group[s]€of€emissions€units€at€a€major€source"€subject€to€enhancedÏmonitoring€requirements.€€The€1993€EM€proposal's€preamble€suggested€that€thisÏprovision€applied€to€emissions€units€involved€in€some€form€of€"bubbling"€or€trading€planÏwithin€a€single€facility€as€well€as€to€fugitive€emission€points€for€which€compliance€isÏevaluated€on€a€process„wide€or€facility„wide€basis.Ìà  àThe€EPA€received€many€comments€on€the€1993€EM€proposal€that€opposedÏapplying€enhanced€monitoring€to€groups€of€emissions€units.€€Several€industryÐ ,`'8 Ðcommenters€believed€that€applying€part€64€to€groups€of€emissions€units€would€be€tooÏinclusive€and€would€apply€enhanced€monitoring€requirements€to€emissions€units€thatÏotherwise€would€fall€below€the€applicability€threshold.€€Other€commenters€predicted€thatÏapplying€enhanced€monitoring€to€groups€of€emissions€units€would€discourage€sourceÏowners€or€operators€from€participating€in€emissions€trading,€aggregating,€or€similarÏprograms.€€Some€industry€representatives€and€State€and€local€agencies€alsoÏrecommended€providing€an€exemption€in€part€64€for€source€owners€or€operators€whoÏparticipate€in€programs€such€as€RECLAIM€in€California's€South€Coast€Air€QualityÏManagement€District.Ìà  àThe€final€part€64€rule€addresses€these€concerns€in€a€number€of€ways.€€First,€bothÏemission€limits€that€apply€solely€under€an€emissions€trading€program€approved€orÏpromulgated€by€EPA€and€emission€caps€that€meet€the€requirements€of€ðð€70.4(b)(12)€orÏðð€71.6(a)(13)(iii)€are€explicitly€exempt€from€part€64€under€ðð€64.2(b)(1)(iv)€and€(v).€€ByÏtheir€nature,€these€types€of€standards€require€methods€to€confirm€trades€or€to€calculateÏoverall€compliance€with€the€cap,€taking€into€account€the€contribution€of€emissions€fromÏall€covered€units.€€These€types€of€emission€limits€also€often€cover€all€emissions€units€atÏa€facility,€including€those€with€extremely€low€amounts€of€emissions,€those€withoutÏcontrol€devices,€and€those€that€are€not€subject€to€other€applicable€requirements.€ÏBecause€of€the€need€to€consider€the€interrelationships€among€units€covered€by€this€typeÏof€requirement,€the€type€of€monitoring€in€part€64€would€not€be€appropriate.€€Instead,€theÏAgency€believes€that€the€existing€requirements€for€monitoring€compliance€with€suchÏstandards€should€be€followed.Ìà  àFor€instance,€the€requirements€for€statutory€economic€incentive€programs€(40ÏCFR€51.490€„€.494)€specify€the€quantification€methods€that€must€be€included€as€part€ofÏany€SIP€economic€incentive€program€developed€pursuant€to€sections€182(g)(3),Ï182(g)(5),€187(d)(3),€or€187(g)€of€the€Act.€€In€addition,€EPA€has€proposed€revisions€toÏðð70.4(b)(12)€to€clarify€that€emission€caps€must€include€"replicable€procedures€andÏpermit€terms€that€ensure€the€emissions€cap€is€enforceable€and€trades€pursuant€to€it€areÏquantifiable€and€enforceable."€€(59€FR€44460,€August€29,€1994).€€These€provisionsÐ ,`'8 Ðhighlight€the€need€to€include€as€part€of€any€emission€trading€or€cap€requirement€theÏappropriate€methods€for€quantifying€emissions€and€assuring€that€the€trade€or€capÏlimitation€is€enforceable.€€The€Agency€believes€that€the€imposition€of€part€64€on€theseÏtypes€of€standards€would€not€provide€any€additional€benefit.€Ìà  àIn€addition,€other€groups€of€emissions€units€are€generally€not€subject€toÏmonitoring€requirements€under€part€64.€€Part€64€requirements€apply€only€to€individualÏpollutant„specific€emissions€units€that€use€a€control€device€to€achieve€compliance€andÏwhose€pre„control€device€emissions€of€an€applicable€pollutant€are€equal€to€or€greaterÏthan€the€amount€needed€for€a€unit€to€be€classified€as€a€major€source.€€Groups€ofÏemissions€units€are€not€aggregated€for€this€determination,€so€such€groups€would€not€beÏsubject€to€part€64.€€In€addition,€fugitive€emissions€are€generally€not€controlled€throughÏthe€use€of€control€devices,€so€there€is€no€need€for€special€applicability€or€monitoringÏprovisions€for€fugitive€emission€sources.Ìà  à„„€Emission€limitations€or€standards€for€which€a€part€70€permit€already€includesÏmonitoring€that€is€used€as€a€continuous€compliance€determination€method.€€In€theseÏinstances,€there€generally€is€no€need€to€require€any€additional€compliance€assuranceÏmonitoring€for€that€emission€limitation€or€standard.€€There€is€one€exception€to€using€thisÏexemption.€€In€some€instances€a€continuous€compliance€determination€method€may€beÏcontingent€upon€an€assumed€control€device€efficiency€factor.€€For€example,€a€VOCÏcoating€source€that€includes€add„on€control€equipment€that€destroys€VOC€emissionsÏmay€use€an€assumed€control€device€efficiency€factor€for€the€control€equipment€togetherÏwith€coating€records€to€calculate€compliance€with€an€NSPS€requirement.€€In€thisÏexample,€a€monthly€calculation€generally€is€made€using€coating€records€and€anÏassumed€destruction€efficiency€factor€that€is€based€on€the€last€control€systemÏperformance€test.€€In€this€example,€ðð64.2(b)(1)(vi)€does€not€allow€the€exemption€fromÏpart€64€because€the€owner€or€operator€must€assure€proper€operation€and€maintenanceÏof€the€control€device€for€the€destruction€efficiency€factor€to€remain€valid.€€The€AgencyÏnotes€that€this€position€is€consistent€with€the€NSPS,€which€generally€require€monitoringÏof€the€control€equipment€in€addition€to€the€monthly€compliance€calculation€in€this€type€ofÐ ,`'8 Ðexample.€€The€Agency€notes€that€the€monitoring€under€part€64€does€not€have€to€beÏincluded€or€otherwise€affect€the€existing€continuous€compliance€determination€method.€ÏIn€the€coating€example,€direct€compliance€will€still€be€calculated€based€on€the€approvedÏcontinuous€compliance€method.€€Part€64€monitoring€will€be€used€to€document€that€theÏcontrol€device€continues€to€operate€properly€and€to€indicate€the€need€to€reestablish€theÏdestruction€efficiency€factor€through€a€control€device€performance€test.Ìà  àThis€exemption€also€raises€a€question€about€what€constitutes€a€"continuousÏcompliance€determination€method."€€Section€64.1€defines€this€type€of€method€as€aÏmeans€established€in€an€applicable€requirement€or€a€part€70€permit€for€determiningÏcompliance€on€a€continuous€basis,€consistent€with€the€averaging€period€for€theÏapplicable€requirement.€€The€EPA€has€prepared€initial€guidance€that€includes€someÏexample€of€this€type€of€monitoring.€€(See€docket€item€A„91„52„VI„A„8€for€a€draft€of€thisÏguidance.)Ìà  àThe€Agency€notes€that€if€emission€limitations€or€standards€other€than€the€exemptÏemission€limits€described€above€apply€to€the€same€pollutant„specific€emissions€unit,€theÏowner€or€operator€would€still€be€subject€to€part€64€for€that€pollutant„specific€emissionsÏunit€and€may€have€to€upgrade€the€existing€monitoring€or€add€other€types€of€monitoring.€ÏThe€Agency€believes€that€for€many€situations€in€which€both€exempt€and€non„exemptÏemission€limits€apply€to€a€particular€pollutant„specific€emissions€unit,€the€monitoring€forÏthe€exempt€limit€may€be€adequate€to€satisfy€part€64€for€the€other€non„exempt€emissionÏlimit(s).€€Section€64.4(b)(4)€of€the€rule€recognizes€this€possibility€and€allows€the€ownerÏor€operator€to€meet€the€obligation€to€explain€the€appropriateness€of€its€proposedÏmonitoring€by€stating€that€it€is€proposing€monitoring€for€non„exempt€limits€that€is€basedÏon€the€monitoring€conducted€for€certain€types€of€exempt€emission€limits.Ìà  àExamples€of€situations€that€may€involve€both€exempt€and€non„exempt€limits€forÏthe€same€pollutant„specific€emissions€unit€include€the€following.€€One€example€would€beÏa€pollutant„specific€emissions€unit€that€is€subject€to€both€a€particulate€matter€limit€andÏenforceable€conditions€to€operate€a€control€device€within€certain€parameters.€€In€thisÏexample,€if€compliance€with€the€parameter€conditions€is€determined€by€a€continuousÐ ,`'8 Ðcompliance€determination€method,€that€monitoring€could€be€used€to€provide€aÏreasonable€assurance€of€compliance€with€the€particulate€matter€limit,€provided€that€theÏmonitoring€included€all€necessary€parameters€to€satisfy€ðð64.3(a).€€In€contrast,€anotherÏexample€of€multiple€emission€limitations€or€standards€could€be€an€emissions€unit€that€isÏsubject€to€a€short€term€emission€rate€limit€and€an€annual€throughput€limit€that€has€aÏmeans€for€determining€compliance€with€total€annual€throughput.€€In€this€example,Ïdemonstrating€compliance€with€the€annual€throughput€limit€is€unlikely€to€assure€that€a€Ïcontrol€device€used€to€comply€with€the€short€term€limit€continues€to€perform€properly,Ïand€the€owner€or€operator€may€have€to€use€different€or€supplemental€monitoring€toÏsatisfy€part€64.Ì€à  àAs€noted€above,€emission€limits€established€under€the€Acid€Rain€Program€areÐ À Ðexempt€from€part€64.€€The€Agency€expects€that€the€part€75€monitoring€required€for€AcidÏRain€sources€likely€will€generate€the€data€necessary€to€comply€with€part€64€as€appliedÏto€other€standards€applicable€to€the€same€unit.€€However,€because€part€64€requires€thatÏCEMS€data€be€reported€in€terms€of€the€applicable€emission€limit,€the€owner€or€operatorÏmay€face€some€additional€requirements€in€order€to€generate€the€data€in€terms€of€theÏother€non„Acid€Rain€emission€limits€that€apply€(such€as€a€lb/mmBtu€SOòò2óó€standard).Ð 0€  Ðà  à„„Two€exemptions€provided€for€in€the€1993€EM€proposal€have€been€eliminated€inÏpart€64.€€The€1993€EM€proposal€included€exemptions€for€NESHAP€standards€forÏasbestos€demolition€and€renovation€projects€and€NSPS€standards€for€residential€woodÏheaters.€€These€source€categories€are€exempt€under€part€70€and€are€not€required€toÏobtain€operating€permits.€€Since€part€64€explicitly€applies€only€to€sources€required€toÏobtain€a€part€70€permit,€separate€exemptions€for€these€source€categories€areÏunnecessary€in€the€final€rule.Ìà  à„„In€addition€to€exempting€certain€emission€limitations€or€standards,€the€1996€partÏ64€Draft€also€introduced€an€exemption€for€small€municipal€utility€emissions€units€inÏresponse€to€the€large€number€of€comments€received€on€this€issue€during€the€extendedÏcomment€period€on€the€1993€EM€proposal€(over€80€municipal€power€utilities€submittedÏcomments€on€this€issue).€The€exemption€applies€to€small€(under€25€megawatts)€existingÐ ,`'8 Ðmunicipal€utility€emissions€units€that€are€exempt€from€the€Acid€Rain€Program€and€thatÏsupply€power€for€sale€only€in€peak€demand€or€emergency€situations.€€As€commentersÏpointed€out,€these€units€have€historically€low€usage€rates,€but,€because€of€their€nature,Ïowners€or€operators€cannot€accept€enforceable€restrictions€on€the€operation€of€theseÏunits€for€any€particular€year€without€violating€their€contractual€obligations.€€Thus,€theseÏunits€usually€have€extremely€high€potential€to€emit€values€in€comparison€to€actualÏemissions.€€In€addition,€the€Agency€notes€that€these€units€often€are€owned€andÏoperated€by€small€municipal€authorities€and€that€the€actual€emissions€from€these€unitsÏare€minimal€in€many€cases.€€The€Agency€therefore€believes€that€a€limited€exemption€forÏthese€units€is€appropriate.€Ìà  àTo€qualify€for€the€exemption,€the€owners€or€operators€of€these€units€must€includeÏin€their€part€70€permit€applications€documentation€showing€that€the€unit€is€exempt€fromÏall€of€the€monitoring€requirements€in€40€CFR€part€75,€and€showing€that€the€emissionsÏunit€is€operated€only€to€provide€electricity€during€peaking€hours€or€emergencies.€€ThisÏdocumentation€should€consist€of€historical€operating€data€and€contractual€information.Ìà  àThe€owner€or€operator€must€also€demonstrate€that€the€emissions€unit€has€lowÏannual€average€emissions.€€The€rule€requires€the€owner€or€operator€to€document€thatÏaverage€annual€emissions€over€the€last€3€calendar€years€of€operation€are€less€than€50Ïpercent€of€the€amount€required€to€classify€the€unit€as€a€major€source.€€If€less€than€3Ïyears€of€historical€data€are€available,€the€owner€or€operator€can€use€such€shorter€timeÏperiod€that€is€available€as€the€appropriate€look€back€period.Ìà  àThe€Agency€chose€the€3„year€period€to€be€consistent€with€the€time€frame€usedÏunder€the€Acid€Rain€Program€to€define€a€peaking€unit€(see€ðð72.2).€€The€3„year€periodÏused€under€the€CAM€approach€recognizes€the€similar€circumstances€presented€byÏthese€small€municipal€power€sources.€€The€use€of€a€50€percent€threshold€is€consistentÏwith€EPA's€January€1995€potential€to€emit€transition€policy€setting€forth€EPA€guidanceÏunder€which€sources€that€have€actual€emissions€well€below€title€V€applicabilityÏthresholds€may€avoid€title€V€permitting€by€documenting€those€low€actual€emissions€(seeÏdocket€item€A„91„52„VI„I„5€for€a€copy€of€this€policy).€€If€actual€emissions€exceed€that€50Ð ,`'8 Ðpercent€value,€then€the€policy€requires€a€source€to€obtain€an€enforceable€restriction€toÏreduce€its€potential€to€emit€below€the€title€V€applicability€threshold.€€The€AgencyÏbelieves€that€the€principle€behind€that€policy€is€equally€applicable€for€purposes€of€thisÏpart€64€exemption.€€Based€on€the€information€supplied€in€comments€submitted€by€theÏaffected€municipal€utility€companies,€EPA€believes€that€the€vast€majority€of€theÏemissions€units€under€25€megawatts€operated€at€these€sources€will€qualify€for€thisÏexemption.Ìà  à€In€response€to€the€1996€part€64€Draft,€the€Agency€again€received€manyÏcomments€that€argued€for€expansion€of€the€municipal€utility€exemption€to€other€unitsÏwhich€have€low€actual€emissions.€€For€example,€the€U.S.€Small€Business€AdministrationÏsubmitted€for€discussion€at€the€September€10,€1996,€meeting€a€proposal€(SBAÏproposal)€to€exclude€entirely€from€part€64€any€unit€with€emissions€between€50€percentÏand€90€percent€of€the€major€source€threshold€so€that€the€resources€that€wouldÏotherwise€be€spent€on€implementing€part€64€for€those€sources€could€be€saved;€further,Ïthe€SBA€comments€included€a€recommendation€that€EPA€give€partial€credit€for€emissionÏcontrol€measures€rather€than€determining€applicability€based€on€total€potential€pre„¼control€device€emissions.€€The€SBA€proposal€stated€that€this€would€eliminate€possiblyÏthousands€of€sources€that€do€not€need€to€be€covered€by€part€64€since€the€reasonableÏassurance€can€be€obtained€through€the€facilities'€own€records.€€A€number€ofÏcommenters€specifically€expressed€their€support€for€the€SBA€proposal€and€others€statedÏgenerally€that€they€were€in€favor€of€such€an€exemption,€arguing€that€any€unit€that€canÏdemonstrate€a€history€of€limited€usage€and€an€expectation€of€continued€limited€usageÏshould€be€exempted.€Ìà  àThe€EPA€disagrees€with€the€concept€of€using€actual€emissions€as€the€overallÏbasis€for€part€64€applicability€or€as€the€basis€for€expanding€significantly€the€municipalÏutility€exemption.€€First,€actual€emissions€can€vary€with€changes€in€production.€€MoreÏimportantly,€for€units€with€control€devices,€calculations€of€actual€emissions€necessarilyÏrely€on€assumptions€about€on„going€performance€that€part€64€is€intended€to€verify.€€ÏFurther,€€to€assure€that€units€remain€under€the€major€source€threshold€is€not€the€goal€ofÐ ,`'8 Ðpart€64,€but,€instead,€the€goal€of€part€64€is€to€assure€that€sources€meet€all€applicableÏrequirements.€€Finally,€because€the€types€of€sources€to€which€commenters€referred€areÏunlikely€to€meet€the€control€device€applicability€criterion€of€the€final€rule,€the€AgencyÏfeels€even€more€strongly€that€the€final€rule€will€not€subject€small€units€to€inappropriateÏmonitoring.€€The€Agency€notes,€however,€that€such€units€will€remain€subject€to€theÏmonitoring€requirements€in€part€70,€and€may€have€to€adopt€new€or€modified€monitoringÏto€comply€with€those€requirements,€even€though€part€64€does€not€apply.Ìà  à4.€€òòHazardous€Air€Pollutant€RequirementsóóÐ ˆØ  Ðà  àUnder€the€1993€EM€proposal,€part€64€would€have€applied€to€all€emissionÏlimitations€or€standards€established€under€40€CFR€part€61€at€any€source€that€is€requiredÏto€obtain€an€operating€permit€under€part€70.€€The€proposed€rule€contained€anÏexemption,€retained€in€modified€form€in€the€final€part€64€rule,€for€all€hazardous€airÏpollutant€emissions€standards€promulgated€pursuant€to€section€112€of€the€Clean€Air€ActÏexcept€for€those€standards€established€in€part€61€prior€to€the€1990€Amendments€to€theÏAct.Ìà  àAfter€receiving€substantial€public€comment€on€the€applicability€of€part€64€toÏhazardous€air€pollutants,€the€Agency€has€significantly€modified€its€approach€to€HAPsÏunder€part€64.€€Hazardous€air€pollutant€sources€are€no€longer€a€separate€categoryÏsubject€to€a€different€applicability€test.€€Instead,€hazardous€air€pollutant€emissionsÏlimitations€and€standards€are€treated€the€same€as€those€for€criteria€air€pollutants.€€Thus,Ïa€hazardous€air€pollutant„specific€emissions€unit€is€subject€to€part€64€only€if€it€meets€theÏapplicability€criteria€set€forth€in€ðð€64.2(a).Ìà  àThis€approach€is€consistent€with€the€Agency's€overall€goal€of€streamlining€partÏ64.€€The€EPA€believes€the€final€part€64,€in€conjunction€with€other€regulatory€provisions,Ïprovides€for€sufficient€monitoring€of€hazardous€air€pollutant€sources€to€both€satisfy€theÏstatutory€enhanced€monitoring€mandate€and€to€meet€the€special€concerns€associatedÏwith€regulating€pollutants€of€this€type.€€In€addition,€units€and€sources€which€do€not€meetÏthe€part€64€applicability€threshold€will€still€be€subject€to€part€61€compliance€monitoringÏand,€if€applicable,€part€70€monitoring.€€For€those€units,€EPA€considers€such€monitoringÐ ,`'8 Ðsufficient€to€address€the€special€concerns€of€regulating€hazardous€air€pollutants.Ìà  àWith€respect€to€emissions€units€subject€to€new€hazardous€air€pollutant€standardsÏunder€amended€section€112€of€the€Act,€EPA€will€include€appropriate€monitoringÏrequirements€as€part€of€those€new€hazardous€air€pollutant€standards.€€Since€part€64Ïmonitoring€for€these€standards€would€be€needlessly€duplicative,€such€standards€areÏcovered€by€the€exemption€in€ðð€64.2(b)(1)(i).€€This€approach€is€consistent€with€EPA'sÏstatement€in€the€July€21,€1992€preamble€to€40€CFR€part€70€that€all€future€rulemakingsÏwill€have€no€gap€in€their€monitoring€provisions€(see€57€FR€32278).Ìà  àC.€€òòSection€64.3€„€Monitoring€Design€CriteriaóóÐ ð@  Ðà  àSection€64.3€contains€the€design€criteria€for€satisfying€part€64.€€The€selection€andÏdesign€of€monitoring€have€undergone€revision€in€the€final€rule.€€Some€of€these€revisionsÏwere€necessary€to€conform€these€provisions€to€applicability€and€implementationÏrequirements€under€the€final€rule.€€Others€have€been€made€in€response€to€publicÏcomments€on€the€monitoring€design€and€selection€requirements€in€the€1993€proposedÏEM€rule€and€subsequent€drafts€of€part€64.€€These€revisions€reflect€both€the€objective€ofÏproviding€a€reasonable€assurance€of€compliance€with€applicable€requirementsÔ% € Ô€at€lowerÏcost€than€the€1993€proposed€EM€rule€and€the€Agency's€goal€of€developing€a€moreÏsimplified€structure€for€part€64.€€The€following€section€describes€the€specific€revisions€toÏthese€provisions€and€the€Agency's€rationale€for€making€these€changes.Ìà  à1.à  àòòGeneral€CriteriaóóÐ h¸& Ðà  àa.à  àòòOverviewóó.€€The€general€purpose€of€the€monitoring€required€by€part€64€is€toÐ Ð ( Ðassure€compliance€with€emission€standards€through€requiring€monitoring€of€theÏoperation€and€maintenance€of€the€control€equipment€and,€if€applicable,€operatingÏconditions€of€the€pollutant„specific€emissions€unit.€€A€basic€assumption€of€EPA€airÏpollution€control€rulemaking,€at€least€under€technology„based€programs€such€as€theÏNSPS€program,€is€that€an€emission€limit€should€be€established€at€a€point€where€a€wellÏoperated€and€maintained€source€can€achieve€the€limit€under€all€expected€operatingÏconditions€using€control€equipment€that€has€been€shown€through€a€performance€test€toÏbe€capable€of€achieving€the€emission€limit.€€This€demonstration€through€a€performanceÐ ,`'8 Ðtest€is€conducted€under€conditions€specified€by€the€applicable€rule€or,€if€not€specified,Ïgenerally€under€conditions€representative€of€maximum€emission€potential€underÏanticipated€operating€conditions€(generally,€but€not€always,€at€full€load).€€Logically,Ïtherefore,€once€an€owner€or€operator€has€shown€that€the€installed€control€equipmentÏcan€comply€with€an€emission€limit,€there€will€be€a€reasonable€assurance€of€ongoingÏcompliance€with€the€emission€limit€as€long€as€the€emissions€unit€is€operated€under€theÏconditions€anticipated€and€the€control€equipment€is€operated€and€maintained€properly.€€ÏThis€logical€assumption€is€the€basis€of€EPA€standard„setting€under€the€NSPS€programÏand€serves€as€the€model€for€the€CAM€approach€as€well.Ìà  àFor€example,€under€40€CFR€Part€60,€Subpart€NN,€Phosphate€Rock€Plants,€theÏstandard€for€particulate€matter€is€determined€through€Method€5€testing.€€The€finalÏpreamble€noted€that€certain€commenters€believed€that€the€particulate€emission€limitsÏ"were€too€stringent€to€be€achieved€on€a€continuous€basis."€€Upon€review€of€theÏinformation,€EPA€revised€the€standard€because€its€evaluation€"indicated€that€theÏproposed€emission€limits€.€.€.€could€not€be€achieved€continuously€under€all€operatingÏconditions€which€are€likely€to€occur."€€47€FR€16584€(4/16/82).€€EPA€then€stated€thatÏ"[a]s€required€by€the€Clean€Air€Act,€the€promulgated€.€.€.€emission€limits€are€based€onÏthe€performance€of€the€best€available€control€equipment€on€the€worst€case€uncontrolledÏemission€levels.€€The€best€control€systems€have€been€demonstrated€to€be€continuouslyÏeffective.€€Therefore,€there€should€be€no€problems€achieving€the€standards€if€the€controlÏequipment€is€properly€maintained€and€operated."€€Id.€at€16585.€€This€exampleÏdocuments€the€close€nexus€of€first€demonstrating€through€a€performance€test€that€theÏinstalled€control€equipment€is€capable€of€achieving€the€standard€on€a€continuous€basisÏand€then€properly€operating€and€maintaining€that€equipment€so€as€to€provide€aÏreasonable€assurance€of€continuous€compliance€with€the€standard.€Ìà  àIn€EPA's€Response€to€Remand€in€òòPortland€Cement€Association€v.€RuckelshausóóÐ Ø'(#2 Ð(see€docket€item€A„91„52„VI„I„11),€EPA€further€emphasized,€in€its€discussion€onÏopacity,€the€important€relationship€between€proper€operation€and€maintenance€andÏattainment€of€the€standards.€€The€Agency€stated,€"[T]he€opacity€standards€andÐ ,`'8 Ðmaintenance€requirements€were€both€promulgated,€and€work€in€tandem€to€guaranteeÏthat€proper€maintenance€and€operation€of€pollution€control€equipment,€the€sine€qua€nonÏof€continuous€compliance€with€emission€limits,€can€in€fact€be€required€and€monitored."Ï(Response€to€Remand,€p.€87.)€€EPA€discussed€the€fact€that€opacity€standards€provideÏenforcement€agencies€with€a€convenient€indicator€of€whether€pollution€control€devicesÏare€being€properly€operated€and€maintained,€and€therefore€whether€the€standards€areÏbeing€met.€€(Response€to€Remand,€p.€27„28.)€€Ìà  àThese€examples€point€to€the€underlying€assumption€that€there€is€a€reasonableÏassurance€of€compliance€with€emission€limits€so€long€as€the€emission€unit€is€operatedÏunder€the€conditions€anticipated€and€the€control€equipment€that€has€been€provenÏcapable€of€complying€continues€to€be€operated€and€maintained€properly.€€In€mostÏcases,€this€relationship€can€be€shown€to€exist€through€the€performance€testing€withoutÏadditional€site„specific€correlation€of€operational€indicators€with€actual€emission€values.€ÏThe€monitoring€design€criteria€in€ðð€64.3(a)€build€on€this€fundamental€premise€of€theÏregulatory€structure.€Ìà  àThus,€ðð€64.3(a)€states€that€units€with€control€devices€must€meet€certain€generalÏmonitoring€design€criteria€in€order€to€provide€a€reasonable€assurance€of€complianceÏwith€emission€limitations€or€standards€for€the€anticipated€range€of€operations€at€aÏpollutant„specific€emissions€unit.€€These€criteria€mandate€the€monitoring€of€one€or€moreÏindicators€of€the€performance€of€the€applicable€control€device,€associated€captureÏsystem,€and/or€any€processes€significant€to€achieving€compliance.€€The€owner€orÏoperator€shall€establish€appropriate€ranges€or€designated€conditions€for€the€selectedÏindicators€such€that€operating€within€the€established€ranges€will€provide€a€reasonableÏassurance€of€compliance€for€the€anticipated€range€of€operating€conditions.€€TheÏrequirement€to€establish€an€indicator€range€provides€the€objective€screening€measure€toÏindicate€proper€operation€and€maintenance€of€the€emissions€unit€and€the€controlÏtechnology,€i.e.,€operation€and€maintenance€such€that€there€is€a€reasonable€assuranceÏof€compliance€with€emission€limitations€or€standards.€€Monitoring€based€on€indicatorÏranges€that€establish€expected€operating€conditions€and€the€proper€functioning€ofÐ ,`'8 Ðcontrol€technology€should€take€into€account€reasonably€anticipated€operating€conditionsÏand€the€process€and€pollution€control€device€parameters€that€significantly€affectÏemission€control€performance.€€The€Agency€notes€that€monitoring€which€fails€to€takeÏinto€account€significant€process€or€control€device€parameters€is€unlikely€to€provide€theÏreasonable€assurance€of€compliance€with€emissions€limitations€or€standards.€€TheÏAgency€does€not€expect€that€such€parameters€would€normally€include€records€of€regularÏmaintenance€practices€(e.g.,€periodic€inspection€and€replacement€of€parts);€theseÏrecords€may€or€may€not€be€addressed€in€separate€permit€conditions€relative€to€part€70Ïrequirements.€€The€Agency€also€emphasizes€that€a€failure€to€stay€within€the€indicatorÏrange€does€not€automatically€indicate€a€failure€to€satisfy€applicable€requirements.€€TheÏfailure€to€stay€within€an€indicator€range€(over€the€appropriate€averaging€period,€asÏdiscussed€below)€does€indicate€the€need€for€the€owner€or€operator€to€evaluate€andÏdetermine€whether€corrective€action€is€necessary€to€return€operations€within€designÏparameters,€and€to€act€upon€that€determination€as€appropriate.Ìà  àThe€use€of€operational€data€collected€during€performance€testing€is€a€keyÏelement€in€establishing€indicator€ranges;€however,€other€relevant€information€inÏestablishing€indicator€ranges€would€be€engineering€assessments,€historical€data,€andÏvendor€data.€€Indicator€ranges€do€not€need€to€be€correlated€across€the€whole€range€ofÏpotential€emissions.€€Criteria€developed€in€the€design€of€the€control€equipment€for€theÏemissions€unit€may€be€used€in€establishing€operating€indicator€ranges.€€For€example,Ïthe€engineering€specifications€for€a€venturi€scrubber€installed€to€control€particulateÏemissions€from€an€affected€unit€may€include€design€operational€ranges€for€liquid€flowÏrate€and€pressure€drop€across€the€venturi.€€Assume€for€this€simplified€example€that€theÏscrubber€design€conditions€are€intended€to€achieve€the€desired€emission€reduction€forÏuncontrolled€pollutant€rates€that€correspond€to€120€percent€of€the€affected€unitððsÏprocess€design€rate.€€The€results€of€a€performance€test€during€which€the€scrubber€isÏoperated€within€these€design€conditions€and€the€process€is€operated€at€conditionsÏrepresentative€of€high€load€(near€100€percent€of€process€design€rate)€would€be€used€toÏconfirm€that€operating€within€the€design€conditions,€the€design€ranges€for€the€liquid€flowÐ ,`'8 Ðrate€in€conjunction€with€the€pressure€drop€across€the€venturi,€achieves€the€emissionÏreduction€desired€and€provides€a€reasonable€assurance€of€compliance€across€theÏanticipated€range€of€process€conditions€for€ongoing€operation.€Ìà  àReview€of€historical€monitoring€data€may€also€be€used€in€defining€an€indicatorÏrange€that€provides€a€reasonable€assurance€of€compliance€with€emission€limits.€ÏConsider€the€example€of€a€process€dryer€equipped€with€a€low„energy€wet€scrubber€forÏparticulate€matter€control.€€The€scrubber€exhaust€gas€temperature€is€indicative€ofÏadequate€water€flow€(as€a€result€of€the€heat€exchange€between€the€dryer€effluentÏstream€and€the€scrubber€water).€€However,€since€the€inlet€scrubber€water€temperatureÏis€affected€by€ambient€temperature,€the€resulting€scrubber€outlet€temperature€will€beÏaffected€by€ambient€conditions.€€Since€the€scrubber€outlet€temperature€will€varyÏsomewhat€as€a€result€of€ambient€temperature,€it€makes€sense€to€consider€historicalÏdata€from€different€seasons€of€the€year€when€establishing€the€indicator€range€(maximumÏallowable€exhaust€temperature).€€In€other€words,€if€the€performance€test€wereÏconducted€in€the€spring,€one€should€also€consider€the€historical€data€from€the€summerÏmonths€(when€the€exhaust€temperature€would€be€expected€to€be€slightly€higher)€whenÏestablishing€the€indicator€range.Ìà  àb.€€òòPossible€Monitoring€Methodsóó.€€Section€64.4(a)(2)€of€the€1993€proposed€EMÐ ˜è" Ðrule€stated€that€an€enhanced€monitoring€protocol€could€include€existing,€modified,€orÏnew€monitoring€systems.€€It€also€contained€a€list€of€possible€monitoring€methods€whichÏcould€satisfy€the€rule.€€The€basic€elements€of€this€subsection€have€been€moved€in€theÏfinal€rule€to€the€definition€of€"monitoring"€in€ðð€64.1.€€The€Agency€has€made€severalÏtechnical€changes€to€the€list€of€monitoring€methodologies€in€response€to€commentsÏreceived.€€See€Section€II.A.€and€the€Response€to€Comments€Document€for€furtherÏdiscussion.Ìà  àc.€€òòIndicator€Ranges€or€Designated€Conditionsóó.€€Sections€64.3(a)(2)€and€(3)€ofÐ Ø'(#2 Ðthe€final€rule€require€the€owner€or€operator€of€an€affected€pollutant„specific€emissionsÏunit€to€establish€ranges€or€designated€conditions€of€the€indicators€to€be€monitored.€ÏThese€ranges€(e.g.,€minimum€to€maximum€parameter€value)€or€conditions€(e.g.,€specificÐ ,`'8 Ðfuel€or€raw€material€type€or€control€device€adjustment)€must€be€established€at€a€levelÏwhere€the€monitoring€can€assess€whether€there€is€a€reasonable€assurance€ofÏcompliance€with€applicable€requirements.Ìà  àThe€addition€of€indicator€range€requirements€to€the€general€monitoring€designÏcriteria€serves€the€objectives€of€part€64€and€provides€the€permitting€authority€and€theÏowner€or€operator€of€an€affected€source€with€information€about€the€operation€andÏmaintenance€of€control€measures€in€order€to€address€any€problems€with€that€operationÏand€maintenance€before€an€emissions€unit€fails€to€comply€with€applicable€requirements.€ÏAn€excursion€from€an€indicator€range€or€designated€condition€indicates€a€potentialÏproblem€in€the€operation€and€maintenance€of€the€control€device€and€a€possibleÏexception€to€compliance€with€applicable€requirements.€€The€excursion€signals,€at€aÏminimum,€that€the€owner€or€operator€should€take€appropriate€corrective€action€to€returnÏoperations€within€the€established€ranges.€€However,€an€excursion€from€an€indicatorÏrange€does€not€necessarily€constitute€a€failure€to€comply€with€the€underlying€emissionsÏlimitation€or€standard.€€See€Section€II.D.€below€for€further€discussion€on€the€degree€ofÏdocumentation€required€to€establish€indicator€ranges€under€the€final€rule.Ìà  àSections€64.3(a)(3)(i)„(iv)€state€that€ranges€may€be€set€as€follows:€established€asÏa€single€maximum€or€minimum€value€if€appropriate€or€at€different€levels€that€varyÏdepending€on€alternative€operating€conditions;€expressed€as€a€function€of€processÏvariables;€expressed€as€maintaining€the€applicable€parameter€in€a€particular€operationalÏstatus;€or€expressed€as€interdependent€between€more€than€one€indicator.€€TheseÏsections€also€provide€examples€of€how€such€different€forms€of€ranges€might€beÏemployed.€€The€description€of€what€type€of€indicators€and€indicator€ranges€may€beÏemployed€under€part€64€is€designed€to€have€a€great€deal€of€flexibility.€€This€allowsÏowners€or€operators€to€develop€indicators€and€ranges€that€are€most€appropriate€for€theirÏaffected€emissions€units,€so€long€as€the€basic€design€criteria€of€part€64€are€met.€€TheÏAgency€is€also€developing€guidance€materials€that€will€provide€more€specific€examplesÏof€the€various€forms€indicator€ranges€may€take.Ìà  àd.€€òòControl€Device€Bypassóó.€€Another€monitor€design€requirement€in€the€final€ruleÐ ,`'8 Ðaddresses€the€possibility€of€control€device€bypass.€€Section€64.3(a)(2)€requires€that€theÏmonitoring€be€designed€to€detect€any€bypass€of€a€control€device€or€capture€system,€ifÏsuch€bypass€can€occur€based€on€the€design€of€the€pollutant„specific€emissions€unit.€ÏThe€Agency€believes€this€requirement€is€necessary€under€the€CAM€approach.€€OnlyÏpollutant„specific€emissions€units€which€use€control€devices€to€achieve€regulatoryÏcompliance€are€subject€to€part€64.€€Part€64€monitoring€generally€will€consist€ofÏmonitoring€parameters€critical€to€the€operation€of€those€control€devices.€€The€monitoringÏwill€not€be€able€to€provide€a€reasonable€assurance€of€compliance€with€applicableÏrequirements€if€air€pollutant€emissions€are€potentially€circumventing€the€control€devicesÏand/or€capture€systems€being€monitored.€€The€Agency€has€therefore€added€thisÏrequirement€to€ensure€that€no€emissions€are€bypassing€the€control€device€or€captureÏsystem.Ìà  àThe€Agency€notes€that€certain€comments€on€the€1996€part€64€Draft€objected€toÏthis€requirement.€€One€objection€was€that€it€could€be€read€to€require€monitoring€ofÏ"bypass"€that€involves€routine€recycling€of€vent€streams€to€a€process€where€the€controlÏdevice€is€used€as€a€backup€in€case€such€process€recycling€cannot€occur.€€The€final€ruleÏadds€the€phrase€"to€the€atmosphere"€to€clarify€that€only€bypasses€which€result€inÏdischarge€to€the€atmosphere€require€monitoring.€€Another€concern€was€that€whetherÏbypass€monitoring€should€be€required€is€often€negotiated€as€part€of€underlyingÏrulemakings€and€this€requirement€could€undo€agreements€reached€on€those€underlyingÏrules.€€The€Agency€has€added€a€provision€to€clarify€that€bypass€monitoring€is€notÏrequired€if€an€underlying€rule€specifically€provides€that€it€is€not€required€for€certainÏoperations€or€units.€€Finally,€a€concern€was€raised€that€certain€underlying€rules€provideÏfor€design€features€that€obviate€the€need€for€monitoring€(such€as€the€use€of€locking€carÏseals).€€The€final€rule€requires€bypass€monitoring€only€if€the€bypass€can€occur€based€onÏthe€unit's€design.€€Where€features€such€as€locking€car€seals€are€used,€the€design€of€theÏunit€effectively€prevents€bypass€and€thus€monitoring€would€not€be€required.€Ìà  àe.€€òòProcess€and€Capture€System€Monitoringóó.€€Commenters€on€the€1996€part€64Ð ¨*ø%6 ÐDraft€also€objected€to€the€requirement€that€the€monitoring€include€process€monitoring€ifÐ ,`'8 Ðnecessary€to€assure€proper€operation€and€maintenance€of€the€control€device.€€The€finalÏrule€retains€this€requirement,€but€the€language€has€been€rephrased€to€clarify€thatÏprocess€monitoring€must€be€conducted€only€as€necessary€to€document€that€the€controlÏequipment€is€being€operated€properly.€€The€simplest€example€would€be€throughputÏmonitoring€to€assure€that€the€design€capacity€of€the€control€equipment€is€not€exceeded.€ÏThe€Agency€believes€that€this€type€of€monitoring€is€essential€to€assuring€that€the€controlÏequipment€is€used€in€accordance€with€its€design€and€in€a€manner€that€will€provide€aÏreasonable€assurance€of€compliance.Ìà  àSimilarly,€some€commenters€objected€to€the€monitoring€of€capture€systems.€€TheÏAgency€believes€that€this€monitoring€is€essential€for€the€same€reasons€as€bypass€andÏprocess€monitoring€may€be€critical€to€assuring€proper€operation€and€maintenance€ofÏcontrol€equipment€and€providing€a€reasonable€assurance€of€compliance€with€emissionÏlimits.€€If€emissions€are€not€properly€captured,€those€emissions€will€be€releasedÏuncontrolled.€€That€result€likely€would€constitute€a€significant€compliance€problem€evenÏif€the€control€equipment€itself€was€being€operated€and€maintained€properly.€€It€isÏessential€that€the€emissions€which€a€control€device€is€supposed€to€be€controlling€are€inÏfact€sent€to€the€device€for€control.€Thus€the€Agency€believes€that€assuring€that€theÏcapture€system€is€properly€operated€and€maintained€is€also€essential.Ìà  àf.€€òòFugitive€Emissions€Monitoringóó.€€Under€the€1993€EM€proposal,€fugitiveÐ P$ Ðemission€points€for€which€compliance€is€evaluated€on€a€process„wide€or€facility„wideÏbasis€were€potentially€subject€to€part€64€enhanced€monitoring€requirements.€€SectionÏ64.4(d)€of€the€proposed€rule€would€have€established€enhanced€monitoring€protocolÏrequirements€for€such€fugitive€emissions€points.€€Many€commenters€raised€objections€toÏthese€provisions,€arguing€that€ðð€64.4(d)€required€either€burdensome€monitoring€ofÏemissions€from€each€fugitive€emissions€point€or€the€use€of€costly€monitoring€devices€toÏmonitor€fugitive€emissions.€€The€Agency€does€not€necessarily€agree€with€theseÏcomments,€noting€that€proposed€ðð€64.4(d)€was€intended€to€allow€for€cost„effective€multi„¼point€monitoring€at€affected€fugitive€emissions€sources.€€The€final€rule,€however,€appliesÏonly€to€those€emissions€units€for€which€emissions€are€vented€to€a€control€device.€€ByÐ ,`'8 Ðdefinition,€fugitive€emissions€are€those€emissions€which€cannot€reasonably€be€ventedÏthrough€a€stack,€chimney,€vent,€or€similar€opening€and€thus€will€not€be€subject€to€partÏ64.€€Since€there€is€no€need€for€detailed€fugitive€emissions€monitoring€requirementsÏunder€the€final€rule,€the€provisions€in€proposed€ðð€64.4(d)€have€been€eliminated.Ìà  à2.€€òòPerformance€and€Operating€CriteriaóóÐ P   Ðà  àThe€final€part€64,€like€the€1993€EM€proposal,€requires€that€part€64€monitoring€beÏsubject€to€minimum€performance€specifications,€quality€assurance€and€controlÏrequirements,€monitoring€frequency€requirements,€and€data€availability€requirements.€ÏThese€requirements€assure€that€the€data€generated€by€the€monitoring€under€part€64Ïpresent€valid€and€sufficient€information€on€the€actual€conditions€being€monitored.€€TheÏfinal€rule€includes€a€series€of€performance€and€operating€design€criteria€in€ðððð€64.3(b)Ïthrough€(d).€€The€Agency€received€substantial€public€comment€on€the€performance€andÏoperating€criteria€of€the€1993€EM€proposal,€which€were€contained€in€a€series€of€fourÏappendices.€€Many€commenters€raised€concerns€that€the€organization€of€theÏappendices€was€confusing.€€A€number€of€commenters€suggested€that€the€appendicesÏrequired€certain€monitoring€options€to€achieve€inapplicable€specifications€or€did€notÏprovide€adequate€guidance€on€the€requirements€for€non„instrumental€monitoringÏoptions.€€Commenters€also€raised€a€number€of€concerns€specific€to€individualÏrequirements.€€Finally,€a€great€many€commenters€argued€that€the€reliance€on€detailedÏspecifications€in€the€appendices€which€focused€on€the€use€of€certain€monitoringÏmethodologies,€such€as€CEMS,€precluded€the€use€of€more€cost„effective€alternativeÏmethodologies,€creating€a€strong€bias€for€the€use€of€continuous€emission€monitoringÏmethodologies.Ìà  àThe€Agency€agrees€with€a€number€of€those€comments€and€has€substantiallyÏrevised€the€performance€and€operating€criteria€in€the€final€rule€to€address€the€concernsÏthey€raised.€€Overall,€these€requirements€have€been€greatly€streamlined€and€simplified.€ÏThere€are€no€appendices€to€the€final€rule€delineating€more€detailed€performance€andÏoperating€criteria.€€To€assure€consistency€with€existing€monitoring€programs,€theÏperformance€criteria€in€the€final€rule€also€reflect€other€federal€monitoring€requirements,Ð ,`'8 Ðsuch€as€the€NSPS€general€provisions€in€40€CFR€part€60€and€the€NESHAP€generalÏprovisions€in€40€CFR€part€63.€€The€following€discussion€addresses€each€of€the€keyÏperformance€and€operating€criteria€in€the€final€rule.€Ìà  àa.€€òòData€Representativenessóó.€€Section€64.3(b)(1)€of€the€final€rule€requires€that€theÐ è8 Ðmonitoring€proposed€by€the€owner€or€operator€include€location€and€installationÏspecifications€(if€applicable)€that€allow€for€the€obtaining€of€data€which€are€representativeÏof€the€emissions€or€parameters€being€monitored.€€Although€this€provision€describes€noÏspecific€tests€for€monitoring€plan€acceptability,€it€does€establish€an€objective€duty€toÏinsure€that€the€data€collected€are€representative€of€the€operations€being€monitored.€ÏThis€provision€is€similar€to€the€analogous€requirements€included€in€Appendix€B€of€theÏ1993€EM€proposal.€€It€is€also€analogous€to€the€general€monitoring€provisions€applicableÏto€all€monitoring€under€the€NSPS€program€in€ðð€60.13.€€The€Agency€has€added€theÏphrase€"if€applicable"€to€clarify€that€noninstrumental€monitoring€approaches€may€notÏrequire€location€or€installation€specifications.Ìà  àThe€1993€EM€proposal€would€have€required€owners€or€operators€to€"[s]atisfyÏapplicable€performance,€equipment,€installation€and€calibration€gas€specifications€inÏaccordance€with€the€specifications€and€procedures€provided€in€appendices€A€and€B€ofÏthis€part."€€The€appendices€then€required€all€enhanced€monitoring€protocols€to€satisfyÏgenerally€applicable€performance€specifications€including€relative€accuracyÏrequirements;€maximum€levels€of€calibration€error;€measurement€span€requirements;Ïresponse€time€requirements;€measurement€technique€procedures;€and€requirements€forÏequipment€design,€installation,€and€location.€€Many€commenters€observed€that€the€highÏlevel€of€specificity€required€in€the€proposed€appendices€would€limit€the€types€ofÏmonitoring€protocols€that€could€be€approved,€while€many€other€commenters€argued€thatÏthe€performance€and€operating€requirements€were€too€subjective€when€applied€in€theÏcontext€of€demonstrating€compliance€with€the€1993€EM€proposed€rule's€generalÏmonitoring€requirements.€€The€Agency€believes€that€such€detailed€requirements€areÏunnecessary€for€the€type€of€monitoring€that€is€required€to€satisfy€the€final€rule,€but€doesÏbelieve€that€the€general€obligation€to€assure€that€representative€data€are€obtained€isÐ ,`'8 Ðnecessary€in€part€64€just€as€it€is€in€other€programs€such€as€NSPS.Ìà  àb.€€òòVerification€of€Operational€Statusóó.€€Section64.3(b)(2)€requires€verificationÐ h Ðprocedures€to€confirm€the€initial€operational€status€of€new€or€modified€monitoringÏequipment.€€These€requirements€specify€that€the€owner€or€operator€must€considerÏmanufacturer€requirements€or€recommendations€for€installation,€calibration€and€start„upÏoperation.€€Owners€or€operators€must€provide€documentation€where€the€manufacturer'sÏprocedures€are€not€followed.€€The€Agency€notes€that€under€the€NSPS€program€suchÏmanufacturer€requirements€and€recommendations€must€be€followed.€€However,Ïbecause€of€the€breadth€of€part€64€applicability,€the€Agency€believes€that€the€moreÏflexible€language€in€ðð€64.3(b)(2)€is€appropriate,€especially€given€that€the€submittalÏrequirements€in€ðð€64.4€will€require€that€the€owner€or€operator€document€the€changes€itÏproposes.Ìà  àSome€comments€on€the€1996€part€64€Draft€stated€that€the€requirements€to€verifyÏoperational€status€were€overly€burdensome€given€that€many€units€will€rely€on€existingÏmonitoring€to€satisfy€part€64.€€The€final€rule€clarifies€that€verification€of€operational€statusÏis€required€only€for€units€with€new€or€modified€monitoring.Ìà  àc.€€òòQuality€Assurance€and€Controlóó.€€Section€64.3(b)(3)€of€the€final€rule€requiresÐ 0€  Ðquality€assurance€and€control€practices€which€are€"adequate€to€ensure€the€continuingÏvalidity€of€the€data."€€This€language€ensures€that€monitoring€under€part€64€will€have€toÏinclude€adequate€procedures€to€document€that€the€monitoring€remains€operational€andÏcan€provide€suitable€readings€for€the€purpose€of€measuring€changes€in€controlÏperformance.€€Satisfying€this€general€design€criterion€should€not€be€confused€with€theÏdetailed€quality€assurance€provisions€required€for€monitors€that€are€used€to€determineÏdirect€emission€limit€compliance,€such€as€Appendix€F€to€part€60.€€The€1993€EM€proposalÏgenerally€would€have€required€compliance€with€Appendix€F€for€CEMS€or€comparableÏquality€assurance€requirements€for€other€monitoring€approaches.€€NumerousÏcommenters€expressed€concerns€about€the€burdens€of€quality€assurance€under€theÏproposed€EM€rule.€€They€pointed€out€several€instances€in€the€proposed€appendices€thatÏappeared€to€establish€presumptions€of€daily€calibrations€for€all€types€of€enhancedÐ ,`'8 Ðmonitoring€protocols€or€appeared€to€require€overly€frequent€reverification€of€parametricÏcorrelations.Ìà  àIn€contrast,€the€focus€of€the€final€rule's€quality€assurance€requirements€is€on€theÏminimum€degree€of€ongoing€quality€checks€that€are€necessary€to€rely€on€the€data€forÏpurposes€of€indicating€whether€the€unit€remains€in€compliance€and€whether€correctiveÏaction€is€necessary.€€The€Agency€recognizes€that€many€types€of€monitoring€whichÏsatisfy€the€final€rule€will€not€be€based€on€the€type€of€sophisticated€equipment€that€isÏprone€to€calibration€drift€and€loss€of€data€quality€over€time,€and€the€revised€qualityÏassurance€provisions€of€the€final€rule€reflect€this€understanding.€€The€required€level€ofÏquality€assurance€differs€from€certain€existing€quality€assurance€procedures€such€asÏAppendix€F€of€40€CFR€part€60€for€a€CEMS.€€With€respect€to€a€CEMS,€the€generalÏrequirements€for€assuring€ongoing€data€quality€that€are€contained€in€40€CFR€60.13€andÏthe€performance€specifications€in€Appendix€B€of€part€60€(such€as€zero€and€spanÏchecks)€provide€adequate€quality€control€checks€for€the€purpose€of€using€the€CEMS€toÏindicate€control€ñÊ)ñœñÊ)ñperformance€for€providing€assurance€of€compliance.ñÊ)ñ›ñÊ)ñ€€This€approach€ofÏrequiring€only€limited€quality€assurance€is€followed€under€the€NSPS€where€a€CEMS€isÏnot€used€as€the€compliance€test€method€for€direct€continuous€compliance€monitoring.€ÏFor€types€of€monitoring€other€than€CEMS,€ongoing€quality€control€measures€must€beÏadequate€to€ensure€that€the€monitoring€remains€operational€and€can€provide€readingsÏsuitable€for€the€purpose€of€measuring€changes€in€control€performance€that€indicateÏpossible€exceptions€to€compliance.€€An€example€of€this€type€of€requirement€is€theÏquarterly€recalibration€requirement€in€ðð€60.683(c)€for€wet€scrubber€parameter€monitoringÏat€wool€fiberglass€insulation€manufacturing€plants.Ìà  àAgain,€the€final€ðð€64.3(b)€directs€owners€or€operators€to€consider€manufacturerÏrequirements€or€recommendations€in€developing€quality€assurance€practices,€and€ððÏ64.4€requires€the€owner€or€operator€to€document€any€changes€in€recommended€qualityÏassurance€practices.€€The€permitting€authority€and€others€can€then€evaluate€theÏproposed€procedures€during€the€permitting€process.Ìà  àd.€€òòFrequency€of€Monitoringóó.€€Section€64.3(b)(4)€of€the€final€rule€establishes€theÐ ,`'8 Ðgeneral€criteria€for€monitoring€frequency,€data€collection€procedures€(such€as€manualÏlog€entry,€strip€chart,€or€computerized€collection€procedures),€and€data€averagingÏperiods,€if€applicable€to€the€proposed€monitoring.€€The€final€rule€requires€that€theÏmonitoring€frequency€(including€associated€averaging€periods)€be€designed€to€obtainÏdata€at€such€intervals€that€are,€at€a€minimum,€commensurate€with€the€time€period€overÏwhich€an€excursion€from€an€indicator€range€is€likely€to€be€observed€based€on€theÏcharacteristics€and€typical€variability€of€the€pollutant„specific€emissions€unit€(includingÏthe€control€device€and€associated€capture€system).€€In€addition,€the€final€rule€specifiesÏminimum€data€collection€frequency€for€pollutant„specific€emissions€units€in€accordanceÏwith€their€potential€to€emit.€€For€"large"€pollutant„specific€emissions€units€(i.e.,€thoseÏunits€with€the€potential€to€emit€the€applicable€pollutant€emitted€in€an€amount€equivalentÏto€or€in€excess€of€the€amount€established€for€classification€as€a€major€source),€theÏmonitoring€frequency€generally€must€satisfy€a€design€criterion€of€four€or€more€dataÏvalues€equally€spaced€over€each€hour€of€operation.€€This€minimum€data€collectionÏfrequency€is€consistent€with€the€frequency€established€by€the€Agency€for€continuousÏmonitoring€systems.€€Note€that€a€permitting€authority€may€reduce€this€minimum€dataÏcollection€frequency€upon€submission€and€approval€of€a€request€prepared€by€the€ownerÏor€operator,€and€the€rule€provides€a€non„exclusive€list€of€situations€in€which€lessÏfrequent€monitoring€of€certain€parameters€may€be€warranted.€€Other€pollutant„specificÏemissions€units€are€subject€to€a€less€frequent€data€collection€requirement€but€someÏdata€must€be€collected€for€every€unit€subject€to€this€rule€at€least€once€per€day.€€The€finalÏrule€thus€sets€a€monitoring€frequency€standard€appropriate€to€the€focus€on€detectingÏchanges€in€control€device€performance€which€could€indicate€possible€noncomplianceÏand€for€which€corrective€action€is€appropriate.Ìà  àFor€example,€many€types€of€control€devices€are€subject€to€rapid€changes€inÏperformance€and€thus€the€frequency€design€criterion€could€result€in€frequent,€nearÏcontinuous€collection€of€parametric€data€that€are€subsequently€averaged€over€anÏappropriate€period€of€time.€€Many€NSPS€subparts€require€continuous€parametric€controlÏdevice€data,€which€are€then€averaged€over€an€appropriate€interval€(often€consistent€withÐ ,`'8 Ðthe€required€minimum€time€for€conducting€a€compliance€test).€€Recent€NESHAP€haveÏrequired€control€device€parameter€monitoring€for€direct€compliance€purposes.€€In€theseÏinstances,€a€daily€average€of€continuous€data€(i.e.,€data€recorded€at€least€every€15Ïminutes)€is€often€used€(see,€e.g.,€ðð63.152(b)(2)).€€For€some€control€devices,€theÏintervals€between€data€collection€points€may€be€increased.€€The€Agency€is€in€theÏprocess€of€developing€guidance€for€part€64€implementation,€including€exampleÏmonitoring€approaches.€€The€guidance€will€indicate€how€the€frequency€of€monitoring,Ïdata€collection€procedures,€and€averaging€of€data€points€can€vary€based€on€the€type€ofÏemissions€unit€and€the€control€device€involved.Ìà  àe.€€òòData€Availabilityóó.€€The€1996€part€64€Draft€rule€included€a€presumptiveÐ X¨  Ðminimum€data€availability€of€90€percent€for€the€averaging€periods€in€a€reporting€period.€ÏThe€final€rule€does€not€include€such€a€presumptive€requirement€opting€instead€forÏaffording€the€source€owner€or€operator€and€the€permitting€authority€flexibility€inÏestablishing€appropriate€site„specific€conditions.€€Further,€the€final€rule€maintains€theÏgeneral€duty€requirement€in€ðð€64.7€that€the€owner€or€operator€shall€maintain€andÏoperate€the€monitoring€at€all€times€the€pollutant„specific€emissions€unit€is€operatingÏexcept€for€periods€of€monitoring€malfunctions,€associated€repairs,€and€required€qualityÏassurance€or€control€activities€(such€as€calibration€checks€and€(if€applicable)€requiredÏzero€and€span€adjustments).€€This€section€of€the€final€rule€also€requires€that€the€ownerÏor€operator€shall€use€all€the€data€collected€during€all€other€periods€in€assessing€theÏoperation€of€the€control€device€and€associated€control€system.€€Under€the€savingsÏprovisions€of€ðð64.10€of€the€final€rule,€source€owners€or€operators€must€satisfy€anyÏexisting€data€availability€requirement€established€for€monitoring€associated€with€aÏparticular€emission€limitation€or€standard.Ìà  àThe€1993€EM€proposal€would€have€required€that€an€enhanced€monitoringÏprotocol€satisfy€any€minimum€data€availability€requirement€that€is€applicable€to€theÏmonitoring€under€a€separate€applicable€emission€limitation€or€standard€pursuant€to€partÏ60€or€61€of€this€chapter.€€Where€no€existing€data€availability€requirement€would€haveÏapplied,€the€proposed€rule€would€have€required€the€enhanced€monitoring€protocol€toÐ ,`'8 Ðsatisfy€a€data€availability€requirement€that€reflected€obtaining€quality„assured€data€for€allÏemissions€unit€operating€time€periods€excluding€a€fixed€percentage€of€operating€timeÏthat€the€owner€or€operator€justified€to€the€permitting€authority€as€necessary€to€conductÏquality€assurance€procedures.€€The€preamble€to€the€proposed€rule€stated€that€the€onlyÏacceptable€downtime€under€this€requirement€would€be€the€time€necessary€to€performÏquality€assurance€testing€and€routine€maintenance.€€The€primary€concern€expressed€inÏpublic€comments€on€the€data€availability€requirement€was€that€the€default€requirementÏfailed€to€take€into€account€the€likelihood€that€some€repairs€of€instrumental€componentsÏwould€be€necessary€even€if€the€owner€or€operator€performed€all€routine€maintenance€asÏappropriate.€€The€Agency€believes€that€the€general€duty€requirement€in€the€final€ruleÏeffectively€addresses€the€commentersðð€concerns,€while€still€assuring€that€the€owner€orÏoperator€is€responsible€for€collecting€data€at€all€required€intervals,€except€whereÏdowntime€is€necessary€to€conduct€required€quality€assurance€or€to€respond€toÏmalfunctions€that€could€not€reasonably€have€been€prevented.Ìà  àA€number€of€comments€on€the€1996€part€64€Draft€objected€to€the€90€percent€dataÏavailability€presumption.€€Many€pointed€to€a€number€of€applicable€requirements€in€whichÏEPA€has€used€75€percent€as€the€required€minimum€data€availability.€€Others€arguedÏthat€EPA€failed€to€present€any€data€to€document€the€reasonableness€of€theÏpresumption.€€The€Agency€agrees€with€some€of€the€commenters€that€a€presumptiveÏminimum€data€availability€requirement€may€not€be€not€generally€applicable;€although,Ïthe€general€obligations€to€operate€the€monitoring€at€all€times€with€only€specificÏexception€periods€and€to€collect€and€use€all€the€data€for€reporting€purposes€areÏuniversal.€€The€final€rule€reflects€this€position€and€allows€the€source€owner€or€operatorÏand€the€permitting€authority€the€flexibility€to€specify€a€separate€minimum€data€availabilityÏif€justified€or€required€under€a€separate€rule.Ìà  à3.€€òòSpecial€Considerations€for€CEMS,€COMS€and€PEMSóó€Ð Ø'(#2 Ðà  àOne€method€of€assessing€control€performance€is€to€calculate€emission€(orÏopacity)€rates€directly€in€order€to€track€trends€in€emissions€(or€opacity)€that€documentÏdecreased€control€effectiveness.€€This€type€of€monitoring€could€include€a€continuousÐ ,`'8 Ðemission€or€opacity€monitoring€system€(CEMS€or€COMS)€or€a€predictive€emissionÏmonitoring€system€(PEMS)€in€which€various€process€and€control€parameters€areÏevaluated€to€predict€emissions.€€Ô% € Ô(Where€this€type€of€monitoring€is€specified€by€theÏapplicable€standard€to€be€used€to€determine€compliance€with€an€emission€standard€orÏlimitation€on€a€continuous€basis,€the€requirements€of€part€64€do€not€apply€to€thatÏemission€standard€or€limitation.€€òòSeeóó€€ðð€64.2(b)(1)(vi).)Ð ¸   Ðà  àThe€EPA€believes€that€these€types€of€monitoring€are€preferable€from€a€technicalÏand€policy€perspective€as€a€means€of€assuring€compliance€with€applicable€requirementsÏbecause€they€can€provide€data€directly€in€terms€of€the€applicable€emission€limitation€orÏstandard.€€Therefore,€where€such€systems€are€already€required,€ðð64.3(d)(1)€mandatesÏthat€the€design€of€the€monitoring€under€part€64€incorporate€such€systems.€€This€meansÏthat€source€owners€and€or€operators€whose€emission€units€have€had€CEMS,€COMS,Ïand/or€PEMS€imposed€by€underlying€regulations,€emissions€trading€programs,€judicialÏsettlements,€or€through€other€circumstances€must€use€those€CEMS,€COMS,€and/orÏPEMS€when€complying€with€part€64€for€those€emissions€units.€€Even€where€the€use€ofÏsuch€monitoring€is€not€mandated,€the€use€of€any€of€these€types€of€systems€inÏaccordance€with€general€monitoring€requirements€and€performance€specifications€(orÏcomparable€permitting€authority€requirements€if€there€are€no€requirements€specified€forÏa€particular€system)€will€be€sufficient€for€a€CEMS,€COMS€or€PEMS€to€satisfy€generallyÏthe€design€criteria€in€ðð64.3(a)€and€(b).Ìà  àOne€exception€to€this€general€rule€is€that€if€a€COMS€is€used€as€a€controlÏperformance€indicator,€and€both€a€particulate€matter€and€opacity€standard€apply,€theÏmonitoring€will€have€to€include€an€indicator€range€satisfying€ðð64.3(a)(2)€and€(3).€ÏComments€received€in€response€to€the€1996€part€64€Draft€included€the€suggestion€thatÏCOMS€not€be€subject€to€the€requirement€to€establish€indicator€ranges.€€The€Agency€hasÏdecided€to€retain€this€requirement.€€A€CEMS€or€PEMS€will€provide€data€in€terms€of€theÏapplicable€pollutant€and€therefore€the€process€of€identifying€and€reporting€exceedancesÏserves€the€same€purpose€as€an€indicator€range.€€For€assuring€compliance€with€anÏopacity€standard,€a€COMS€also€achieves€this€objective.€€However,€depending€on€theÐ ,`'8 Ðtype€of€control€equipment€being€used€and€the€design€of€an€emissions€unit€(especiallyÏstack€diameter),€opacity€standards€are€often€established€at€a€level€which€represents€aÏlikely€significant€exceedance€of€the€particulate€matter€standard.€€In€thoseÏcircumstances,€an€opacity€level€below€a€required€opacity€standard€would€be€moreÏappropriate€as€a€CAM€indicator.€€Therefore,€the€use€of€a€COMS€may€require€anÏappropriate€indicator€range€to€be€established€that€is€different€than€the€applicable€opacityÏstandard.€€The€Agency€notes€that€the€averaging€period€for€such€an€indicator€rangeÏwould€not€necessarily€have€to€be€consistent€with€the€typical€averaging€time€of€anÏopacity€standard€(i.e.,€six€minutes).Ìà  àThe€final€special€design€criterion€for€a€CEMS,€COMS€or€PEMS€is€to€design€theÏsystem€to€allow€for€reporting€of€exceedances.€€Again,€in€many€cases,€the€reportingÏrequirements€for€exceedances€(or€excess€emissions)€will€already€be€established€inÏexisting€requirements.€€However,€in€some€cases€the€owner€or€operator,€prior€toÏimplementing€part€64,€will€not€have€continuous€monitoring€associated€with€an€applicableÏemission€limit,€and€the€underlying€regulation€may€not€specify€an€appropriate€time€periodÏfor€averaging€data€to€report€excess€emissions.€€For€example,€this€situation€could€arise€inÏthe€example€provided€above€for€a€part€75€Acid€Rain€CEMS€being€used€to€monitorÏcompliance€with€a€SIP€limit.€€In€this€circumstance,€the€owner€or€operator€will€have€toÏdesign€the€system€to€include€an€appropriate€period€for€defining€exceedances€consistentÏwith€the€emission€limitation€or€standard.€€If€the€underlying€applicable€requirement€doesÏnot€require€use€of€a€specific€averaging€period,€the€averaging€period€should€be€designedÏusing€the€same€criteria€as€used€for€other€part€64€monitoring€under€€ðð€64.3(b)(4).Ìà  àThere€was€a€concern€about€a€perceived€bias€towards€continuous€emissionÏmonitoring€methodologies€in€many€public€comments€on€the€monitoring€design€andÏselection€provisions€of€the€1993€EM€proposal.€€In€addition,€many€comments€supportedÏthe€notion€that€existing€monitoring€should€be€used€wherever€possible€to€reduce€theÏburdens€of€part€64.€€Section€64.3(d)€addresses€both€of€these€comment€areas.€€ItÏemphasizes€the€use€of€existing€monitoring€where€that€monitoring€on€its€face€is€able€toÏmeet€the€part€64€design€criteria,€but€it€clarifies€that€the€rule€does€not€mandate€the€use€ofÐ ,`'8 ÐCEMS€in€situations€where€such€monitoring€is€not€already€required.€€See€also€SectionÏII.D.€below€which€discusses€in€further€detail€the€potential€use€of€existing€monitoring€toÏsatisfy€part€64.Ìà  àStakeholders€commented€that€the€1996€part€64€Draft€rule€did€not€addressÏprocedures€for€approving€alternatives€to€CEMS€or€COMS€as€per€the€proceduresÏspecified€in€the€general€provisions€of€40€CFR€parts€60,€61,€and€63.€€The€Agency€alreadyÏhas€procedures€for€documenting,€reviewing,€and€approving€alternatives€to€performanceÏtest€methods€and€monitoring€procedures.€€Part€64€need€not€address€these€procedures.€ÏThe€Agency€recommends€that€source€owners€or€operators€wishing€to€pursueÏalternatives€to€CEMS€or€COMS€follow€existing€alternative€methods€processes.Ìà  à4.€€òòMonitor€FailuresóóÐ À Ðà  àSection€64.4(g)€of€the€1993€EM€proposal€would€have€provided€a€defense€toÏviolations€of€the€data€availability€requirement€where€an€interruption€of€the€normalÏoperation€of€an€enhanced€monitoring€protocol€was€the€result€of€a€monitor€failure€orÏmalfunction.€€This€section€would€have€operated€in€conjunction€with€proposed€ðð€64.5(e)Ïto€establish€general€notification€and€corrective€action€requirements€in€response€toÏmonitor€failures€and€malfunctions.€€The€proposed€rule€would€have€provided€a€defenseÏto€data€availability€violations€where€the€following€criteria€were€met:€the€monitoring€failureÏwas€the€result€of€a€sudden€and€unforeseeable€malfunction;€the€monitoring€systems€andÏprocedures€had€been€properly€operated€and€maintained€prior€to€and€up€to€the€time€ofÏthe€malfunction;€and€the€owner€or€operator€took€all€reasonable€steps€to€minimize€theÏperiod€the€monitoring€system€was€inoperative.Ìà  àThis€section€has€been€eliminated€in€the€final€rule.€€The€Agency€does€not€believeÏthat€there€is€a€need€for€a€data€availability€violation€defense€in€part€64.€€The€final€ruleÏdoes€not€require€that€the€permit€establish€a€specific€data€availability€requirement.€ÏRather,€the€owner€or€operator€is€under€a€general€duty€to€operate€the€monitoring€at€allÏrequired€intervals€whenever€the€emissions€unit€is€operating.€€The€only€exception€to€thisÏduty€is€if€the€inoperation€of€the€monitoring€is€caused€by€a€monitor€malfunction,Ïassociated€repairs€or€required€quality€assurance€or€control€activities.€€MonitorÐ ,`'8 Ðmalfunctions€are€limited€to€those€breakdowns€which€occur€as€a€result€of€a€sudden,Ïinfrequent,€and€not€reasonably€preventable€failure€of€the€monitoring€to€provide€validÏdata.€€Monitoring€failures€that€are€caused€in€part€by€poor€maintenance€or€carelessÏoperation€are€not€considered€malfunctions.€€This€approach€is€similar€to€the€malfunctionÏdefense€included€in€the€proposed€rule,€but€does€not€entail€the€elaborate€proceduralÏelements€of€the€proposed€rule.€€To€the€extent€a€particular€data€availability€requirementÏcannot€be€achieved€for€reasons€that€are€no€fault€of€the€owner€or€operator,€EPA€believesÏthat€the€proper€use€of€oversight€discretion€can€account€for€those€situations.€€Ìà  àD.€€òòSection€64.4€„€Submittal€RequirementsóóÐ ð@  Ðà  àSection€64.4€of€the€final€rule€outlines€what€information€the€owner€or€operatorÏmust€submit€with€a€part€70€permit€application€to€propose€the€monitoring€approachÏselected€by€the€owner€or€operator.€€The€required€information€has€two€basicÏcomponents:€general€information€necessary€to€justify€the€appropriateness€of€theÏproposed€monitoring;€and€information€to€justify€the€appropriateness€of€the€indicatorÏranges€to€be€used€for€reporting€exceedances€or€excursions.€€€Ìà  à1.€€òòGeneral€Information€on€the€Proposed€MonitoringóóÐ È Ðà  àSection€64.4(a)€first€requires€that€the€owner€or€operator€identify€the€basicÏmonitoring€approach€and€indicator€ranges€that€will€form€the€primary€elements€of€theÏmonitoring,€as€well€as€the€key€performance€and€operating€specifications€needed€toÏmeet€the€design€criteria€in€ðð€64.3.€€In€submitting€proposed€indicator€ranges,€the€ownerÏor€operator€can€either€submit€the€actual€proposed€ranges€or€the€methodology€that€willÏbe€followed€to€establish€the€indicator€ranges.Ìà  àSection€64.4(b)€then€requires€that€the€owner€or€operator€submit€relevantÏinformation€to€justify€the€proposed€monitoring€approach.€€The€justification€can€rely€onÏany€available€information,€including€appropriate€reference€materials€and€guidanceÏdocuments.€€If€an€existing€requirement€already€establishes€monitoring€for€the€pollutant„¼specific€emissions€unit,€the€justification€can€rely€in€part€on€that€existing€requirement.€ÏFor€certain€types€of€monitoring,€no€extensive€justification€should€be€necessary€becauseÏthe€final€rule€creates€a€rebuttable€presumption€that€the€monitoring€satisfies€part€64.€Ð ,`'8 ÐWhen€an€owner€or€operator€relies€on€one€of€these€monitoring€approaches,€all€thatÏinitially€should€be€necessary€is€an€explanation€of€why€the€monitoring€is€applicable€to€theÏunit€in€question.€€These€types€of€monitoring€include€CEMS,€COMS,€or€PEMS;€exceptedÏor€alternative€monitoring€approaches€allowed€under€part€75;€and€continuous€complianceÏdetermination€monitoring€or€monitoring€for€post„11/90€NSPS€and€NESHAPÏrequirements€that€are€exempt€under€ðð€64.2(b)€but€that€may€be€applicable€to€the€controlÏequipment€for€other€non„exempt€emissions€limitations€at€the€same€emissions€unit.€€TheÏreason€for€this€presumption€is€similar€to€the€reason€for€excepting€from€part€64€units€thatÏhave€such€monitoring€as€their€compliance€determination€method.€€The€rule€also€notesÏthat€presumptively€acceptable€or€required€monitoring€approaches€established€by€rule€byÏa€State€to€achieve€compliance€with€part€64€are€deemed€presumptively€acceptable.€€ThisÏlast€option€is€included€to€promote€the€adoption€of€State€programmatic€rules€designed€toÏdetail€presumptively€appropriate€part€64€monitoring.Ìà  àFinally,€consistent€with€òòPanhandle€Producers€&€Royalty€Owners€Assððn€v.Ð øH ÐEconomic€Regulatory€Administrationóó,€822€F.2d€1105€(D.C.€Cir.€1987),€the€rule€includesÐ `° Ðas€presumptively€acceptable€monitoring,€monitoring€that€is€so€designated€by€EPAÏthrough€guidance€documents.€€Such€presumptively€acceptable€monitoring€identified€byÏEPA€in€guidance€may€also€serve€as€models€for€permitting€authorities€to€consider€inÏprogrammatic€rulemaking.€€Generally,€EPA€intends€to€issue€such€guidance€only€afterÏproviding€notice€and€seeking€comment€on€such€monitoring.€€After€consideringÏcomments€received€on€the€monitoring€requirements€for€flares€in€40€CFR€60.18,€EPA€isÏdesignating,€at€this€time,€that€monitoring€as€presumptively€acceptable.€€This€designationÏis€being€made€in€recognition€that€some€published€monitoring€practices€or€protocolsÏprovide€sufficient€design€and€monitoring€performance€specifications€to€satisfy€CAMÏrequirements€while€not€fully€satisfying€the€part€64€definition€for€a€continuous€complianceÏdetermination€method.€€Some€presumptively€monitoring€protocols€may€includeÏprocedures€for€calculating€compliance€with€applicable€emission€limitations€or€standardsÏbut€have€some€portions€subject€to€CAM€requirements€(e.g.,€monitoring€to€indicate€aÏreasonable€assurance€that€control€device€efficiency€is€maintained€at€an€assumed€level)Ð ,`'8 Ðas€indicated€in€Ô‡X XX X Ôðð€64.2(b)(1)(vi)€of€the€ruleÔ#† X XXX 3ì#Ô.Ð ° Ðà  àReliance€on€presumptively€acceptable€monitoring€will€relieve€owners€andÏoperators€of€the€initial€burden€of€justifying€that€the€monitoring€selected€satisfies€part€64.€ÏHowever,€this€presumption€of€acceptability€is€rebuttable,€and,€if€information€or€evidenceÏrebutting€the€presumption€is€brought€forward,€the€owner€or€operator€must€bear€theÏburden€of€justifying€that€the€proposed€monitoring€complies€with€part€64.€€Final€decisionsÏas€to€the€acceptability€of€monitoring€rest€with€the€informed€discretion€of€the€permittingÏauthority,€subject€to€permit€review€by€EPA€under€40€CFR€70.8,€taking€into€account€anyÏappropriate€presumption€and€all€other€relevant€information€and€data.Ìà  àFinally,€ðð€64.4(b)€requires€the€owner€or€operator€to€identify€and€explain€anyÏchanges€in€manufacturer€recommendations€or€requirements€applicable€to€installation,Ïverification€and€quality€assurance€of€the€monitoring.€€As€explained€above,€the€ðð€64.3(b)Ïdesign€criteria€allow€for€these€differences€even€though€EPA€generally€requires€theÏowner€or€operator€to€comply€with€such€provisions.€€This€documentation€requirement€isÏimportant€to€allow€an€appropriate€evaluation€of€the€reasons€for€changing€theseÏmanufacturer€specifications.€€Ìà  àThese€submittal€requirements€streamline€the€similar€requirements€in€the€1993ÏEM€proposal.€€First,€ðð€64.7€of€the€proposed€rule€would€have€required€that€a€permitÏapplication€incorporate€a€proposed€enhanced€monitoring€protocol€for€every€applicableÏemission€limitation€or€standard€at€each€emissions€unit€subject€to€the€proposed€rule.€ÏThis€protocol€would€have€had€to€contain€information€about€and€supportingÏdocumentation€for€a€number€of€elements,€including€proposed€performanceÏspecifications,€quality€assurance€procedures,€test€plans€for€conducting€performanceÏverification€tests,€and€a€list€of€all€technologically€feasible€monitoring€methodologiesÏwhich€could€have€been€employed€in€the€proposed€protocol.€€Owners€or€operators€ofÏaffected€emissions€units€would€have€also€been€required€to€identify€new€technologicallyÏfeasible€monitoring€methodologies€when€submitting€a€permit€renewal€application.€ÏSecond,€ðð€64.4(e)(3)€of€the€proposed€rule€also€covered€permit€application€submittalÏrequirements.€€That€section€would€have€required€the€owner€or€operator€of€an€affectedÐ ,`'8 Ðemissions€unit€to€submit€as€part€of€a€permit€application€all€of€the€descriptions,Ïexplanations,€justifications,€and€supporting€data€necessary€to€justify€that€a€proposedÏenhanced€monitoring€protocol€could€satisfy€the€requirements€of€the€proposed€rule.€€ThisÏsection€explicitly€placed€the€burden€of€proof€on€the€owner€or€operator€proposing€anÏenhanced€monitoring€protocol€to€show€that€the€protocol€met€the€rule's€requirements.Ìà  àA€number€of€commenters€raised€concerns€about€these€permit€applicationÏrequirements.€€Some€argued€that€the€specific€information€requested,€such€asÏinformation€pertaining€to€a€parametric€relationship,€may€not€be€available€prior€toÏinstallation€of€control€technology€and€permit€issuance.€€Others€contended€that€theÏrequirements€to€include€information€on€all€technologically€feasible€monitoringÏmethodologies€was€an€illustration€of€a€perceived€bias€towards€the€use€of€costlyÏcontinuous€emission€monitoring€methods€under€the€1993€EM€proposal.€€In€response€toÏsome€of€these€concerns€and€in€furtherance€of€the€goal€of€providing€a€Ô% € Ô€reasonableÏassurance€of€compliance€with€applicable€requirements,€the€Agency€has€replaced€theseÏdetailed€permit€application€requirements€with€the€provisions€described€above€in€the€finalÏrule.Ìà  àThird,€many€industry€commenters€opposed€the€enhanced€monitoring€protocolÏselection€and€proposal€requirements€in€ðð€64.4(f)€of€the€1993€EM€proposal.€€TheÏproposal€would€have€established€a€procedure€for€the€selection€of€enhanced€monitoringÏprotocols€that€required€owners€or€operators€to€justify€the€use€of€a€proposed€enhancedÏmonitoring€protocol€over€other€available€monitoring€methodologies.€€Under€thisÏproposed€procedure,€owners€or€operators€were€first€directed€to€consider€"establishedÏmonitoring,"€defined€as€monitoring€that€had€been€previously€demonstrated€as€a€feasibleÏmeans€of€assessing€compliance€at€a€specific€emissions€unit.€€An€owner€or€operatorÏcould€propose€to€use€the€"best€established€monitoring."€€The€determination€of€whichÏestablished€monitoring€methodology€was€"best"€was€intended€to€be€an€evaluation€ofÏwhat€type€of€monitoring€was€most€appropriate€to€determine€continuous€compliance€at€aÏspecific€emissions€unit.€€If€no€"established"€monitoring€methodology€could€satisfy€theÏperformance€and€operating€requirements€of€the€proposed€rule,€owners€or€operatorsÐ ,`'8 Ðcould€propose€additions€or€modifications€to€an€established€form€of€monitoring.€€If€noÏestablished€monitoring€methodology€applied,€or€if€the€owner€or€operator€considered€theÏestablished€monitoring€inappropriate,€then€an€alternative€monitoring€could€be€proposed.€ÏIn€these€circumstances,€the€proposed€rule€required€the€owner€or€operator€to€identify€allÏmonitoring€methodologies€that€were€technologically€feasible€for€the€particular€emissionsÏunit,€selecting€from€that€list€the€"best"€methodology€for€that€unit€based€on€a€site„specificÏassessment.Ìà  àCommenters€argued€that€the€requirement€to€select€"best€monitoring"€wouldÏimpose€a€"top„down"€selection€process€with€a€bias€towards€selection€of€a€CEMS€orÏsimilar€monitoring€system.€€Several€commenters€contended€that€the€legislative€history€ofÏsection€114(a)(3)€did€not€support€a€requirement€that€the€approved€enhanced€monitoringÏprotocol€be€the€"best"€available.€€Industry€commenters€also€stated€that€requiring€anÏowner€or€operator€who€proposed€alternative€monitoring€to€list€all€technologically€feasibleÏmonitoring€methodologies€would€impose€unnecessary€costs€and€burdens.€€Most€ofÏthose€opposing€the€selection€provisions€suggested€that€the€rule€should€allow€the€ownerÏor€operator€to€propose€any€monitoring€that€met€the€basic€requirements€of€the€rule.€€InÏthe€alternative,€many€commenters€suggested€making€cost€an€explicit€criterion€in€theÏmonitoring€selection€process.Ìà  àUnder€the€CAM€approach,€the€owner€or€operator€may€propose€any€monitoringÏthat€can€meet€the€design€criteria€in€ðð€64.3€of€the€final€rule.€€Thus,€the€commentsÏregarding€whether€1993€EM€proposal€imposed€a€Ô% € Ôtop„down€selection€hierarchy€are€noÏlonger€relevant.Ìà  àIn€response€to€the€1996€draft€part€64,€some€commenters€objected€to€the€need€toÏsubmit€a€rationale€or€justification€for€the€proposed€monitoring.€€The€Agency€disagrees.€ÏThis€information€will€be€necessary€for€the€permitting€authority,€the€public,€and€EPA€toÏjudge€the€appropriateness€of€the€proposed€monitoring€for€satisfying€the€design€criteriaÏin€ðð€64.3.€€In€addition,€this€requirement€builds€on€similar€regulatory€precedents€in€theÏNSPS€and€NESHAP€programs.€€Under€those€programs,€EPA€has€routinely€required€theÏowner€or€operator€to€submit€a€proposed€monitoring€approach€and€supporting€rationaleÐ ,`'8 Ðwhere€the€owner€or€operator€intends€to€use€a€control€device€for€which€the€underlyingÏstandard€does€not€contain€specific€monitoring€procedures.€€(See,€e.g.,€40€CFRÏ60.473(c),€60.544(b),€60.563(e),€60.613(e)€and€60.663(e).)€Ìà  àCommenters€on€the€1996€part€64€Draft€also€raised€concerns€that€the€rule€did€notÏcontain€any€provisions€promoting€the€use€of€existing€monitoring€to€satisfy€part€64.€ÏClearly,€many€existing€monitoring€requirements€include€some€degree€of€monitoring€thatÏis€used€to€indicate€compliance€through€documenting€important€operating€variables.€€AsÏsuch,€these€requirements€are€generally€consistent€with€the€CAM€approach.€€Thus,€ððððÏ64.3(b)€and€64.4(b)€specifically€allow€for€the€owner€or€operator€to€design€and€justifyÏproposed€part€64€monitoring€applying€or€building€on€existing€applicable€requirements.€ÏThe€rule€uses€the€phrase€"in€part"€because€there€is€no€assurance€that€the€existingÏmonitoring€necessarily€satisfies€all€of€the€part€64€design€criteria.€€As€described€above,Ïfor€certain€monitoring€that€the€Agency€believes€already€meets€the€part€64€design€criteriaÏcategorically,€the€owner€or€operator€is€likely€to€be€able€to€rely€completely€on€thoseÏregulatory€precedents€to€justify€the€monitoring€proposed€to€satisfy€part€64.€€The€AgencyÏbelieves€these€provisions€adequately€provide€for€the€consideration€of€existingÏmonitoring€and€build€upon€the€"established€monitoring"€concept€in€the€1993€EMÏproposal€without€the€cumbersome€selection€process€hurdles€included€in€that€proposal.Ìà  àIndustry€commenters€on€the€1996€part€64€Draft€proposed€that€the€cost€ofÏmonitoring€that€will€provide€a€reasonable€assurance€of€compliance€be€considered€inÏlight€of€the€reliability€of€the€pollution€control€technology,€the€margin€of€complianceÏdemonstrated€for€the€emissions€unit,€the€emissions€variability,€and€the€reliability€of€theÏmonitoring.€€State€and€local€agency€commenters€noted€that€a€demonstration€of€aÏcredible€relationship€between€parameter€monitoring€and€actual€emissions€was€primaryÏin€determining€a€reasonable€assurance€of€compliance.€€These€agency€commenters€alsoÏlisted€reliability€of€monitoring,€margin€of€compliance,€and€potential€emissions€variabilityÏas€elements€to€consider€in€such€a€demonstration.€€The€Agency€agrees€that€part€64Ïshould€enable€the€owner€or€operator€and€the€permitting€authority€to€consider€theseÏfactors€in€developing€and€approving€monitoring€in€a€manner€that€both€allows€flexibility€inÐ ,`'8 Ðdesign€and€provides€a€reasonable€assurance€of€compliance.€€As€noted€above,€the€ruleÏspecifically€allows€for€the€use€and€augmentation€of€existing€monitoring€in€lieu€ofÏdeveloping€and€installing€completely€new€monitoring€approaches.€€Further,€ðððð€64.3(c)Ïand€64.6(a)€of€the€final€rule€reference€the€evaluation€factors€mentioned€by€both€groupsÏof€commenters€to€apply€in€developing€and€reviewing€monitoring€to€meet€part€64Ïrequirements.€€The€Agency€believes€that€in€this€manner,€the€owner€or€operator€and€theÏpermitting€authority€can€agree€on€cost„effective€monitoring€that€results€in€theÏreasonable€assurance€of€compliance€required€by€part€64.Ìà  à2.€€òòDocumentation€and€Justification€for€Indicator€RangesóóÐ ð@  Ðà  àSection€64.4(c)€of€the€final€rule€requires€that€an€owner€or€operator€proposeÏindicator€ranges€supported€by€data€obtained€during€the€conduct€of€the€applicableÏcompliance€or€performance€testing€at€the€pollutant„specific€emissions€unit€andÏsupplemented,€as€necessary,€by€engineering€assessments€and€manufacturer'sÏrecommendations.€€An€owner€or€operator€can€satisfy€this€requirement€with€existingÏcompliance€test€method€data,€if€applicable.€€The€use€of€existing€data€is€limited€toÏcircumstances€in€which€no€changes€have€occurred€since€the€data€were€obtained€thatÏcould€significantly€affect€the€conditions€for€which€the€indicator€ranges€were€establishedÏsince€the€performance€testing€was€conducted.€€Such€significant€changes€include,€butÏare€not€limited€to,€an€increase€in€process€capacity,€a€modification€to€the€control€systemÏoperating€conditions,€or€a€change€in€fuel€or€raw€material€type€or€chemical€content.€ÏBecause€of€the€assurances€provided€through€representative€performance€testing€inÏconjunction€with€documentation€provided€by€the€use€of€engineering€and€otherÏinformation,€the€final€rule€also€explicitly€states€that€testing€over€the€entire€indicator€rangeÏor€range€of€potential€emissions€is€not€required.Ìà  àIf€site„specific€compliance€testing€method€data€are€unavailable,€ðð€64.4(c)€givesÏan€owner€or€operator€two€options.€€Indicator€ranges€can€be€based€on€testing€to€beÏconducted€pursuant€to€a€test€plan€and€schedule€for€obtaining€the€necessary€data.€€AnÏowner€or€operator€may€also€choose€to€rely€on€other€forms€of€data€to€establish€theÏproper€indicator€ranges.€€However,€if€the€owner€or€operator€proposes€to€rely€onÐ ,`'8 Ðengineering€assessments€and€other€data€without€conducting€site„specific€complianceÏmethod€testing,€ðð€64.4(c)(2)€requires€submission€of€documentation€to€demonstrate€thatÏfactors€applicable€to€the€owner€or€operator's€specific€circumstances€make€complianceÏmethod€testing€unnecessary.€€Section€64.6(b)€gives€the€permitting€authority€theÏdiscretion€to€require€compliance€method€testing€where€necessary€to€confirm€the€abilityÏof€the€monitoring€to€provide€data€that€are€sufficient€to€satisfy€part€64.Ìà  àThese€provisions€are€similar€to€but€are€less€prescriptive€than€the€comparableÏprovisions€in€the€1993€EM€proposal€as€well€as€less€contingent€upon€a€statisticalÏcorrelation€between€operational€parameters€and€emission€levels.€€Section€64.4(f)€of€theÏ1993€EM€proposal€would€have€operated€with€proposed€ðð€64.4(b)(2)€and€Appendix€C€toÏdescribe€all€requirements€related€to€performance€verification€testing€under€the€1993€EMÏproposal.€€Section€64.4(b)(2)€of€the€EM€proposal€established€a€duty€under€the€proposedÏrule's€general€performance€and€operating€criteria€to€conduct€applicable€performanceÏverification€test€procedures€in€accordance€with€Appendix€C.€€Appendix€C€of€theÏproposal€contained€specifications€on€the€procedures€to€be€used€by€an€owner€orÏoperator€for€validating€the€representativeness€of€a€monitoring€protocol€and€theÏperformance€verification€procedures€for€continuous€monitoring€systems.€€Section€64.4(f)Ïwould€have€required€owners€to€submit€with€a€permit€application€a€test€schedule€and€testÏplan€that€described€the€procedures,€reference€methods,€test€preparations,€locations€andÏother€pertinent€information€for€all€required€performance€verification€tests.Ìà  àSection€64.4(b)(2)€would€have€required€an€owner€or€operator€who€sought€toÏinclude€process€or€control€device€parameter€monitoring€in€an€enhanced€monitoringÏprotocol€to€conduct€verification€testing€in€accordance€with€Appendix€C.€€Section€7€ofÏproposed€Appendix€C€described€the€required€procedures€for€testing€the€correlationÏbetween€the€parameter(s)€to€be€monitored€and€the€applicable€emission€limitations€orÏstandards.€€Section€64.4(f)(1)€of€the€proposed€EM€rule€stated€that€a€test€plan€forÏparameter€monitoring€correlation€tests€must€describe€any€significant€process€or€controlÏdevice€parameters€not€included€in€the€proposed€enhanced€monitoring€protocol€andÏmust€demonstrate€that€excluding€such€parameters€will€not€adversely€affect€the€validityÐ ,`'8 Ðof€the€correlation.€€This€section€also€would€have€required€the€owner€or€operatorÏproposing€the€use€of€parameter€monitoring€to€demonstrate€the€validity€of€the€parameterÏcorrelation€over€the€potential€range€of€facility€operations.€Ìà  àIndustry€commenters€had€a€number€of€objections€to€and€suggestions€forÏimprovement€of€the€proposed€rule's€performance€verification€testing€requirements€andÏrelated€permit€application€requirements.€€To€reduce€costs,€some€commentersÏsuggested€that€performance€verification€tests€should€not€need€to€be€conducted€underÏpart€64€where€adequate€prior€tests€have€been€conducted€pursuant€to€another€applicableÏrequirement.€€The€Agency€agrees€and€has€adopted€this€approach€in€the€final€rule.€€AÏnumber€of€commenters€expressed€concerns€about€the€level€of€detail€which€had€to€beÏincluded€in€the€monitoring€verification€test€plan.€€The€EPA€believes€that€theÏdocumentation€provisions€of€the€final€rule€will€generally€not€require€the€same€level€ofÏdetail€that€would€have€been€required€under€the€proposed€rule.€€Several€commentersÏobjected€to€the€requirement€to€account€in€detail€for€all€potentially€significant€parametersÏwhen€documenting€parameter€range€correlation€testing.€€The€Agency€has€not€included€aÏsimilar€explicit€requirement€in€the€final€rule's€documentation€and€testing€requirements€forÏthe€establishment€of€indicator€ranges.€€The€Agency€does€note€that€an€indicator€rangeÏwhich€fails€to€take€into€account€significant€control€device€parameters€is€unlikely€toÏprovide€the€reasonable€assurance€of€compliance€with€emission€limitations€or€standardsÏrequired€by€ðð€64.3(a).Ìà  àFinally,€a€number€of€commenters€who€supported€the€availability€of€parameterÏmonitoring€under€the€proposed€rule€stated€that€the€correlation€testing€requirementsÏwould€be€difficult€and€expensive€to€meet€and€would€discourage€source€owners€orÏoperators€from€using€parameter€monitoring.€€In€addition,€in€response€to€the€1996€part€64ÏDraft,€a€number€of€commenters€opposed€the€requirement€to€establish€indicator€rangesÏby€conducting€performance€or€compliance€testing.€€They€asserted€that€this€either€wasÏan€improper€attempt€to€revive€the€correlation€requirements€in€the€1993€EM€proposal,€orÏunnecessary€to€establish€the€appropriate€range€for€most€parameters.Ìà  àAs€discussed€above€in€Section€II.C.,€the€CAM€approach€builds€on€the€premiseÐ ,`'8 Ðthat€if€an€emissions€unit€is€proven€to€be€capable€of€achieving€compliance€asÏdocumented€by€a€compliance€or€performance€test€and€is€thereafter€operated€under€theÏconditions€anticipated€and€if€the€control€equipment€is€properly€operated€and€maintained,Ïthen€there€will€be€a€reasonable€assurance€that€the€emissions€unit€will€remain€inÏcompliance.€€In€most€cases,€this€relationship€can€be€shown€to€exist€through€results€fromÏthe€performance€testing€without€additional€site„specific€correlation€of€operationalÏindicators€with€actual€emission€values.€€The€CAM€approach€builds€on€this€fundamentalÏpremise€of€the€regulatory€structure.Ìà  àHowever,€as€raised€in€the€òòPortland€Cementóó€Response€to€Remand€discussed€inÐ ð@  ÐSection€II.C.,€one€difficult€element€of€using€"proper€operation€and€maintenance"€as€aÏregulatory€tool€is€the€potential€difficulty€in€determining€whether€proper€operation€andÏmaintenance€has€in€fact€occurred.€€Thus,€a€critical€issue€that€the€CAM€approach€mustÏaddress€is€establishing€appropriate€objective€indicators€of€whether€a€source€is€"properlyÏoperated€and€maintained."€€In€developing€the€final€rule,€EPA€looked€to€past€regulatoryÏexperience€in€developing€a€balanced€approach€to€establishing€indicator€ranges€andÏusing€the€monitoring€to€assure€compliance€performance.Ìà  àIn€proposing€the€operation€and€maintenance€requirements€in€40€CFR€60.11(d),ÏEPA€required€that€owners€or€operators€maintain€and€operate€their€facilities€"in€a€mannerÏconsistent€with€operations€during€the€most€recent€performance€test€indicatingÏcompliance."€€38€FR€10821,€May€2,€1973.€€The€obvious€rationale€behind€this€originalÏlanguage€was€that€if€the€source€was€in€compliance€during€the€test,€and€it€continued€toÏoperate€its€equipment€as€it€was€operated€during€the€test,€there€was€a€reasonableÏassurance€that€the€source€would€remain€in€compliance.€€This€language,€however,€wasÏrevised€when€the€rule€was€promulgated€on€October€15,€1973.€€In€the€preamble€to€theÏpromulgated€rule,€EPA€explained€that€the€language€was€changed€because€ofÏcomments€which€questioned€"whether€it€would€be€possible€or€wise€to€require€that€all€ofÏthe€operating€conditions€that€happened€to€exist€during€the€most€recent€performance€testÏbe€continually€maintained."€38€FR€28565.€€The€EPA€therefore€revised€ðð€60.11(d)€toÏrequire€that€source€owners€or€operators€operate€and€maintain€their€pollution€controlÐ ,`'8 Ðdevices€"in€a€manner€consistent€with€good€air€pollution€control€practices€for€minimizingÏemissions."€Id.Ìà  àThis€regulatory€history€argues€against€a€strict€requirement€that€part€64€requireÏindicator€ranges€to€be€related€exactly€to€the€operating€conditions€that€existed€during€aÏperformance€test.€€However,€in€many€NSPS€subparts,€and€more€recently€in€MACTÏstandards,€EPA€generally€has€required€that€operation€and€maintenance€indicators€beÏestablished€during€an€initial€performance€test,€with€some€allowance€for€adjusting€theÏindicator€values€observed€during€the€test.€€For€instance,€where€a€thermal€incinerator€isÏused€to€comply€with€a€VOC€emission€limit,€the€NSPS€subparts€usually€require€the€ownerÏor€operator€to€establish€a€baseline€temperature€value€as€an€indication€of€whether€theÏincinerator€is€properly€operated€and€maintained.€€The€baseline€temperature€value€isÏestablished€at€a€value€50€degrees€Fahrenheit€below€the€average€temperature€recordedÏduring€the€most€recent€performance€test€(see,€e.g.,€40€CFR€60.615(c)(1).)€€In€recentÏMACT€examples,€EPA€has€required€the€indicator€ranges€to€be€established€duringÏperformance€testing,€but€with€an€allowance€to€supplement€the€performance€test€dataÏwith€engineering€assessments;€in€addition,€the€MACT€requirements€often€state€thatÏtesting€across€the€full€range€of€operating€conditions€is€not€required€where€the€indicatorÏrange€is€subject€to€review€and€approval.€€(See,€e.g.,€40€CFR€63.654(f)€(3)(ii)(A)€andÏ63.1334(c).)Ìà  àBased€on€these€NSPS€and€MACT€examples,€the€presumptive€approach€forÏestablishing€indicator€ranges€in€part€64€is€to€establish€the€ranges€in€the€context€ofÏperformance€testing.€€To€assure€that€conditions€represented€by€performance€testing€areÏalso€generally€representative€of€anticipated€operating€conditions,€a€performance€testÏshould€be€conducted€under€conditions€specified€by€the€applicable€rule€or,€if€notÏspecified,€generally€under€conditions€representative€of€maximum€emission€potentialÏunder€anticipated€operating€conditions.€€In€addition,€the€rule€allows€for€adjusting€theÏbaseline€values€recorded€during€a€performance€test€to€account€for€theÏinappropriateness€of€requiring€that€indicator€conditions€stay€exactly€the€same€as€duringÏa€test.€€The€use€of€operational€data€collected€during€performance€testing€is€a€keyÐ ,`'8 Ðelement€in€establishing€indicator€ranges;€however,€other€relevant€information€inÏestablishing€indicator€ranges€would€be€engineering€assessments,€historical€data,€andÏvendor€data.€€Indicator€ranges€do€not€need€to€be€correlated€across€the€whole€range€ofÏpotential€emissions.Ìà  àFinally,€because€the€emissions€units€subject€to€part€64€will€not€necessarily€beÏundergoing€performance€testing€absent€part€64€(unlike€the€comparable€units€subject€toÏinitial€compliance€testing€under€the€NSPS€and€MACT€programs),€the€rule€does€notÏrequire€establishment€of€indicator€ranges€during€compliance€or€performance€testing€butÏrather€presumes€the€appropriateness€of€doing€so.€€The€Agency€believes€that€thisÏapproach€makes€part€64€consistent€with€underlying€regulations€but€with€appropriateÏalternatives€that€reflect€the€different€universe€of€emissions€units€subject€to€part€64.€Ìà  àE.€€òòSection€64.5€„€Deadlines€for€SubmittalóóÐ (x Ðà  àThe€final€rule€establishes€two€alternative€schedules€for€implementing€part€64Ïdepending€on€the€size€of€the€pollutant„specific€emissions€unit€involved.€€Under€sectionÏ64.5(a),€"large"€pollutant„specific€emissions€units€are€subject€to€the€shortestÏimplementation€timetable.€€"Large"€units€are€those€that€have€the€potential€to€emit€(afterÏcontrols)€the€applicable€pollutant€at€or€above€the€major€source€threshold.€€If€the€ownerÏor€operator€has€not€submitted€the€permit€application€for€the€applicable€source€prior€to€,Ïòò[insert€date€180€days€after€publication€of€the€final€rule€in€the€Federal€Register]óó,€theÐ P$ Ðowner€or€operator€must€submit€proposed€part€64€monitoring€in€the€next€part€70€permitÏapplication.€€If€a€permit€application€has€been€submitted€by€the€rule's€effective€date,€butÏthe€permitting€authority€has€not€yet€determined€by€that€date€that€the€application€isÏcomplete,€the€owner€or€operator€will€have€to€supplement€the€application€with€theÏrelevant€information€required€under€part€64.€€If€the€application€has€already€been€foundÏcomplete,€then€the€part€64€information€will€generally€not€have€to€be€submitted€until€theÏnext€permit€renewal€application.€€In€the€interim,€the€monitoring€requirements€adopted€byÏpermitting€authorities€in€response€to€the€requirements€in€part€70€will€continue€to€apply.Ìà  àThere€are€two€circumstances€where€information€must€be€submitted€prior€to€theÏnext€permit€renewal€application.€€First,€if€the€owner€or€operator€submits€an€applicationÐ ,`'8 Ðfor€a€significant€permit€modification€after€[òòinsert€date€180€days€after€publication€of€theÐ ° Ðfinal€rule€in€the€Federal€Registeróó],€the€owner€or€operator€must€submit€the€appropriateÐ h Ðpart€64€information€for€any€pollutant„specific€emissions€unit(s)€covered€by€theÏmodification.€€This€requirement€will€assure€that€significant€permit€revisions€affectingÏparticular€emissions€units€are€not€considered€in€a€piecemeal€fashion€and€that€part€64€isÏimplemented€as€quickly€as€reasonably€practicable.€€In€response€to€comments€on€theÏ1996€part€64€Draft,€the€Agency€has€limited€this€provision€to€only€significant€permitÏrevisions€so€that€part€64€requirements€will€not€impede€permit€revisions€made€underÏexpedited€permit€revision€processes,€such€as€administrative€amendments,€notice€onlyÏchanges,€or€de€minimis€permit€revision€procedures€that€are€under€consideration€by€theÏAgency.€€Second,€if€the€permit€application€has€been€found€complete€but€the€permit€hasÏnot€issued,€and€the€owner€or€operator€proposes€to€revise€the€application€to€include€aÏchange€of€a€type€that€would€have€been€subject€to€the€significant€permit€revisionÏprocess,€had€the€permit€been€issued,€then€the€owner€or€operator€must€include€part€64Ïrequired€information€for€the€pollutant„specific€emissions€unit(s)€identified€in€theÏapplication€revision.€€This€circumstance€triggers€part€64€implementation€because€thisÏtype€of€permit€application€revision€would€require€a€second€completeness€determinationÏby€the€permitting€authority,€and€the€implementation€provision€of€ðð€64.5(a)(1)(ii)€would€beÏapplicable.Ìà  àAlso€in€response€to€comments,€the€final€rule€does€not€include€a€provision€in€theÏ1996€part€64€Draft€that€would€have€required€implementation€prior€to€permit€renewal€forÏcertain€permit€applications€being€processed€under€a€part€70€transition€plan€for€initialÏpermit€issuance.€€The€Agency€believes€that€this€provision€unnecessarily€complicates€theÏpart€64€implementation€process.€€The€Agency€also€notes€that€the€current€part€70Ïmonitoring€provisions€will€continue€to€apply€in€the€interim€if€part€64€is€not€implementedÏuntil€permit€renewal.Ìà  àFor€the€remaining€smaller€pollutant„specific€emissions€units,€part€64Ïimplementation€is€delayed€until€permit€renewal.€€This€approach€was€suggested€in€manyÏcomments€as€one€way€to€reduce€the€implementation€burdens€of€the€rule.€€Such€anÐ ,`'8 Ðapproach€will€also€allow€permitting€authorities€and€owners€or€operators€to€gainÏexperience€with€implementing€part€64€for€the€largest€emissions€units€before€having€toÏaddress€the€more€numerous,€but€in€terms€of€overall€site€emissions,€less€significant,Ïsmaller€units.€€As€noted€above,€permitting€authorities€can€use€the€delay€inÏimplementation€to€develop€programmatic€requirements€that€can€be€relied€on€inÏproposing€and€approving€part€64€monitoring;€this€approach€will€be€of€the€most€benefitÏfor€the€smaller€emissions€units€that€can€use€these€generic€requirements€to€reduce€theÏburdens€of€part€64.Ìà  àThe€phased„in€implementation€approach€embodied€in€the€final€part€64€rule€is€aÏdeparture€from€the€implementation€schedule€in€the€1993€EM€proposal.€€The€effectiveÏdate€of€the€proposed€rule€was€to€be€30€days€after€publication€of€the€final€rule€in€theÏòòFederal€Registeróó.€€The€proposed€rule€did€not€specify€how€operating€permits€issued€priorÐ (x Ðto€the€rule's€effective€date€would€be€treated.€€The€preamble€to€the€proposed€ruleÏsuggested€that€these€situations€would€be€covered€by€40€CFR€70.7(f)(1)(i).€€SectionÏ70.7(f)(1)(i)€requires€that€an€operating€permit€be€reopened€to€address€an€applicableÏrequirement€which€becomes€applicable€during€the€permit€term€if€the€permit€has€aÏremaining€term€of€three€or€more€years.€€Thus,€under€the€proposed€rule,€the€owner€orÏoperator€of€any€facility€with€an€operating€permit€that€had€a€remaining€term€of€three€orÏmore€years€after€the€effective€date€of€part€64€would€have€been€required€to€reopen€theÏpermit€and€provide€the€required€part€64€information.Ìà  àThe€Agency€considered€relying€on€this€part€70€provision€to€set€theÏimplementation€schedule€for€the€rule,€but€chose€to€adopt€the€phased„in€approachÏdescribed€above.€€Thus,€the€provisions€in€ðð€64.5(a)€supersede€the€language€ofÏðð70.7(f)(1)(i).€€The€part€70€approach€would€have€required€that€a€great€many€operatingÏpermits€be€reopened€as€soon€as€the€rule€became€effective,€while€the€phased„inÏapproach€initially€focuses€on€new€permit€applications.€€The€former€is€therefore€moreÏlikely€to€cause€initial€burdens€and€delays€in€the€permitting€program.€€The€AgencyÏbelieves€that€the€extended€implementation€timetable€resulting€from€the€phased„inÏapproach€is€better€suited€to€facilitating€implementation€through€the€operating€permitsÐ ,`'8 Ðprogram.€€In€the€December€1994€notice€reopening€the€1993€EM€proposal€for€comment,ÏEPA€discussed€the€possibility€of€using€a€phased„in€implementation€approach€as€well€asÏa€"hammer"€provision,€which€would€have€required€enhanced€monitoring€to€beÏimplemented€by€all€affected€sources€by€January€1,€2000.€€Multiple€commentersÏexpressed€concerns€that€an€absolute€deadline€of€this€type€would€cause€systemicÏlogjams€and€delays€in€the€operating€permits€program€because€it€could€requireÏnumerous€permit€revisions€or€reopenings€outside€of€the€normal€permit€renewal€process.Ìà  àIn€lieu€of€a€ð ðhammerðð€provision€and€to€clarify€that€the€monitoring€requirements€ofÏpart€70€apply€irrespective€of€the€part€64€requirements,€the€Agency€has€added€explicitÏlanguage€to€the€rule€stating€that€prior€to€approval€and€operation€of€part€64€monitoring,Ïpart€70€monitoring€requirements€apply.€€These€part€70€monitoring€requirementsÏcontinue€to€apply€even€after€approval€and€operation€of€part€64€monitoring;€however,Ïbecause€part€64€contains€applicable€monitoring€requirements€sufficient€to€demonstrateÏcompliance€with€applicable€emission€limitations€or€standards,€the€part€64€monitoringÏrequirements€can€serve€in€the€place€of€part€70€monitoring€requirements.€€Ìà  àF.€€òòSection€64.6€„€Approval€of€MonitoringóóÐ È Ðà  àConsistent€with€the€part€64€implementation€approach,€ðð€64.6€requires€theÏpermitting€authority€to€approve€or€disapprove€the€monitoring€proposed€by€the€owner€orÏoperator.€€The€following€discussion€highlights€the€key€elements€of€this€section€and€theÏkey€issues€raised€during€development€of€the€rule.Ìà  à1.€€òòApproval€and€Permit€IncorporationóóÐ Ð ( Ðà  àIf€the€monitoring€is€approved,€the€permitting€authority€must€act€in€accordanceÏwith€ðð€70.6(a)(3)€to€include€appropriate€permit€terms€that€reflect€the€part€64€monitoringÏrequirements.€€The€requirements€that€must€be€reflected€in€the€permit€are:€the€monitoringÏapproach€(including€the€basic€method,€appropriate€performance€specifications,Ô  Ô€andÏrequired€quality€assurance€checks),€any€specific€data€availability€requirements,€theÏindicator€range(s),€and€a€general€statement€that€the€owner€or€operator€will€conduct€theÏmonitoring,€submit€reports,€maintain€records,€and,€if€applicable,€identify€any€QIPÏobligations,€all€as€required€by€ðððð€64.7€through€64.9.€€Ð ,`'8 Ðà  àIt€is€important€to€note€that€the€rule€provides€for€two€different€options€forÏincorporating€indicator€range(s)€in€the€permit.€€First,€the€actual€range€can€be€includedÏ(such€as€maintaining€temperature€of€an€incinerator€at€or€above€a€specific€number).€ÏSecond,€the€permit€can€include€a€statement€that€describes€how€the€indicator€range€willÏbe€established€(such€as€ð ðThe€incinerator€will€be€maintained€at€a€temperature€at€orÏabove€a€temperature€which€is€50€degrees€Fahrenheit€lower€than€the€baselineÏtemperature€recorded€during€the€most€recent€performance€test.ðð).€€This€latter€type€ofÏcondition€would€allow€for€reestablishment€of€the€indicator€range€without€the€need€for€aÏpermit€modification.€€Several€commenters€raised€concerns€that€there€would€be€a€needÏfor€changes€to€indicator€ranges,€especially€near€the€beginning€of€the€program,€and€thatÏrequiring€permit€modifications€for€all€such€changes€would€be€burdensome€and€unwieldy.€ÏThe€Agency€agrees€and€believes€this€latter€option€addresses€the€commenters'€concernsÏwhile€still€providing€adequate€public€comment€and€review€on€the€establishment€ofÏindicator€ranges€at€specific€sources.€€If€this€type€of€approach€is€used,€the€permit€wouldÏalso€need€to€specify€how€the€permitting€authority€will€be€notified€of€the€currentlyÏapplicable€indicator€range(s).Ìà  àThese€provisions€are€generally€the€same€as€required€in€ðð€64.8€of€the€1993€EMÏproposal,€although€the€requirements€have€been€modified€to€reflect€the€changes€in€theÏdesign€criteria€for€the€monitoring€required€by€part€64.€€The€1995€and€1996€part€64€DraftsÏincluded€more€elaborate€conditions€than€are€included€in€the€final€rule,€including€certainÏenforceability€components€that€the€Agency€does€not€believe€are€necessary€for€effectiveÏimplementation€of€part€64.€€These€deleted€components€include€provisions€in€the€1996Ïpart€64€Draft€that€would€have€enabled€a€permitting€authority€to€establish€an€indicatorÏrange€as€an€enforceable€condition€and€that€would€have€established€a€second€QIPÏduring€a€permit€term€as€a€permit€violation.Ìà  àWhether€the€failure€to€meet€an€indicator€range€is€an€enforceable€violation€will€beÏa€matter€of€examining€the€relevant€underlying€applicable€requirements,€as€well€as€theÏability€of€the€permitting€authority€to€establish€that€type€of€requirement€as€a€federally„¼enforceable€element€of€a€permit€pursuant€to€approved€SIP€authority€or€as€a€State„onlyÐ ,`'8 Ðrequirement€pursuant€to€State€law.€€As€described€above,€for€purposes€of€part€64,€ðð€64.6Ïclarifies€that€the€indicator€ranges€or€the€means€by€which€they€are€to€be€established€areÏto€be€included€in€the€permit€to€indicate€when€an€owner€or€operator€is€required€to€reportÏexcursions€or€exceedances.€€In€addition,€it€should€be€noted€that€ðð€64.7€establishes€theÏindependent€obligation€for€the€owner€or€operator€to€take€appropriate€corrective€action€inÏresponse€to€excursions€or€exceedances€that€occur.Ìà  àThe€Agency€also€decided€to€delete€the€draft€requirement€that€a€second€QIPÏduring€a€permit€term€constitutes€a€violation.€€This€provision€was€widely€criticized€by€bothÏindustry€and€State€commenters.€€The€Agency€had€specifically€noted€in€the€discussionÏaccompanying€the€1996€part€64€Draft€that€it€was€concerned€that€this€approach€may€notÏbe€appropriate.€€As€discussed€in€Sections€II.G.€and€H.,€the€final€rule,€consistent€with€theÏprecedent€of€40€CFR€60.11(d),€provides€for€the€general€use€of€part€64€data€and€otherÏinformation€to€document€that€the€owner€or€operator€has€failed€to€operate€and€maintainÏan€emission€unit€properly€and€provides€for€the€QIP€mechanism€as€one€option€forÏaddressing€situations€in€which€such€a€failure€has€occurred.€€In€that€respect,€any€time€aÏQIP€is€required€there€will€be€an€underlying€finding€that€the€owner€or€operator€has€failedÏto€take€appropriate€action€and€may€be€subject€to€enforcement€for€that€violation.€€Thus,Ïthere€is€no€need€for€the€final€rule€to€include€separate€enforcement€consequencesÏrelated€to€multiple€QIPs.Ìà  àThe€Agency€notes€that€many€commenters€on€the€1996€part€64€Draft€suggestedÏthat€the€rule€would€impose€too€many€permit€requirements€and€that€the€permit€shouldÏmerely€state€that€compliance€with€part€64€is€required€and€that€the€owner€or€operator€willÏtake€appropriate€action€in€response€to€the€data.€€Commenters€pointed€to€theÏrequirements€for€startup,€shutdown,€malfunction€plans€(SSMPs)€under€part€63€andÏsection€112(r)€risk€management€plans€(RMPs)€required€under€part€68€as€examples€ofÏthis€approach€to€referencing€applicable€requirements€in€a€part€70€permit.Ìà  àThe€Agency€disagrees€with€the€approach€suggested€and€the€use€of€the€SSMPÏand€RMP€examples€cited€in€the€comments.€The€two€examples€both€involve€plans€whichÏan€owner€or€operator€is€required€to€develop€in€accordance€with€general€criteria€butÐ ,`'8 Ðwhich€are€not€subject€to€approval,€although€there€are€provisions€which€allow€EPA€or€theÏpermitting€authority€to€require€changes€in€the€plans€under€certain€conditions.€€(See€40ÏCFR€63.6(e)(3)€and€68.220.)€€The€Agency€notes€that€it€proposed€this€concept€toÏimplementing€part€64€in€the€1995€part€64€Draft€but€that€numerous€commenters€opposedÏthis€approach€because€there€would€be€no€final€approval€process€for€the€monitoring.€Ï(See€ðð€64.3(c)€of€the€1995€part€64€Draft€and€the€comments€in,€for€example,€VI„D„38€andÏ45).€€Many€commenters€then€seemed€to€request€that€EPA€use€the€SSMP€or€RMPÏapproach€after€reviewing€the€1996€part€64€Draft.Ìà  àAfter€evaluating€all€of€the€comments,€the€Agency€believes€that€part€64€monitoringÏshould€be€incorporated€into€permits€in€the€same€fashion€as€all€other€requiredÏmonitoring.€€The€following€discussion€provides€a€list€of€the€various€components€of€theÏbasic€monitoring€approach€that€need€to€be€incorporated€in€the€permit.€€To€provide€aÏpractical€example€of€what€the€"basic€monitoring€approach"€entails,€the€followingÏexample€is€based€on€the€use€of€incineration€to€control€TRS€emissions€from€certainÏaffected€facilities€at€kraft€pulp€mills€(see€40€CFR€60.280€et€seq.);€the€example€isÏintended€to€indicate€the€level€of€detail€required,€and€not€necessarily€the€appropriatenessÏof€the€example€monitoring€for€satisfying€part€64:€€ð ðCompany€A€will€monitor€theÏcombustion€temperature€in€the€incinerator€at€the€point€of€incineration€of€the€effluentÏgases.€€Combustion€temperature€will€be€recorded€continuously€during€all€periods€ofÏincinerator€operation€using€a€strip€chart€recorder.€€Company€A€will€use€a€5„minute€rollingÏaverage€of€combustion€temperatures€to€determine€whether€an€excursion€fromÏ(combustion€temperature€limit€or€range)€has€occurred.€€The€thermocouple€used€toÏdetermine€the€temperature€will€be€accurate€to€within€1€percent€of€the€temperature€beingÏmeasured.€€Company€A€will€conduct€daily€operational€checks€of€the€thermocouple,€stripÏchart€recorder,€and€the€temperature€recording€process€system.€€Company€A€willÏconduct€an€annual€accuracy€check€of€the€temperature€measurement€and€recordingÏsystem.ðð€€This€example€mirrors€the€basic€monitoring€information€required€under€theÏrelevant€portions€of€subpart€BB.€€Another€example€that€might€apply€in€other€cases€couldÏinclude€a€permit€condition€which:€€(1)€identifies€the€pollutant„specific€emissions€unit,€(2)Ð ,`'8 Ðstates€that€the€owner€or€operator€will€install,€operate,€maintain€and€reduce€data€from€aÏCEMS€for€that€pollutant€in€accordance€with€both€the€general€provisions€in€40€CFR€60.13Ïand€the€applicable€performance€specifications€in€Appendix€B€to€40€CFR€part€60;€and€(3)Ïspecifies€the€appropriate€period€for€averaging€data€to€determine€if€an€exceedanceÏoccurs.€€That€type€of€permit€condition€would€address€the€components€of€the€basicÏmonitoring€approach€identified€above.Ìà  àAs€noted€in€the€above€examples,€there€is€no€substantive€difference€for€how€anÏowner€or€operator€will€be€required€to€address€existing€monitoring€in€a€permit€versus€partÏ64€monitoring.€€For€the€one€element€of€the€monitoring€(indicator€ranges)€which€theÏowner€or€operator€is€most€likely€to€need€to€adjust,€especially€at€the€beginning€of€theÏprogram,€the€final€rule€includes€the€option€discussed€earlier€that€can€provide€theÏnecessary€flexibility€to€adjust€indicator€ranges€without€the€need€for€a€permit€revision.€ÏThus,€EPA€believes€that€the€level€of€detail€required€in€the€permit€is€appropriate€andÏconsistent€with€the€level€of€detail€originally€included€in€the€1993€EM€proposal€andÏrequired€for€existing€monitoring.Ìà  à2.€€òòApproval€Prior€to€Installation€and/or€VerificationóóÐ È Ðà  àA€number€of€those€commenting€on€the€1993€EM€proposal€expressed€concernsÏabout€the€costs€of€installing€equipment€and€performing€testing€for€proposed€monitoringÏprior€to€approval€in€the€permit.€€The€Agency€understands€that€an€owner€or€operator€mayÏbe€unwilling€to€proceed€with€such€installation,€testing,€or€other€monitor€verificationÏactivities€until€after€the€proposed€approach€to€complying€with€part€64€is€approved.€ÏUnder€the€final€rule,€these€activities€may€be€completed€after€approval€of€the€monitoring.€ÏThe€owner€or€operator€must€propose€a€schedule€for€making€the€monitoring€operationalÏas€expeditiously€as€practicable€after€approval€(see€ðð€64.4(e))€and€then€the€permit€mustÏinclude€an€enforceable€schedule€with€milestones€that€reflect€the€approved€schedule.€ÏThe€schedule€must€provide€for€the€monitoring€being€fully€operational€as€expeditiously€asÏpracticable,€but€in€no€event€more€than€180€days€from€the€date€of€issuance€of€the€finalÏpermit.€€The€general€requirements€in€ðð€64.7€to€operate€the€monitoring€in€accordanceÏwith€part€64€will€not€apply€until€the€final€verification€is€complete.Ð ,`'8 Ðà  à3.à  àòòConditional€Approval€of€the€MonitoringóóÐ ° Ðà  àUnder€ðð€64.6(b),€the€permitting€authority€may€Ô‡X XX X Ôcondition€the€approval€on€theÐ h Ðowner€or€operator€collecting€additional€data€on€the€indicators€to€be€monitored€for€aÏpollutant„specific€emissions€unit,€including€required€compliance€or€performance€testing,Ïto€confirm€the€ability€of€the€monitoring€to€provide€data€that€are€sufficient€to€satisfy€theÏrequirements€of€this€part,€and€to€confirm€the€appropriateness€of€an€indicator€range(s)€Ô#† X XXX #ÔorÐ ¸   Ðdesignated€condition(s)€proposed€to€satisfy€the€design€criteria€in€the€rule.€€SuchÏconditional€approval€should€also€be€consistent€with€the€requirement€in€the€rule€thatÏmonitoring€be€designed,€installed,€and€begin€operation€within€180€days€of€permitÏapproval.Ìà  à4.à  àòòDisapproval€of€the€MonitoringóóÐ À Ðà  àIf€a€permitting€authority€determines€that€the€monitoring€proposed€by€an€owner€orÏoperator€fails€to€satisfy€part€64,€the€permit€must€include€monitoring€that€at€a€minimumÏmeets€the€monitoring€provisions€in€part€70.€€Moreover,€ðð€64.6(e)(2)€requires€theÏpermitting€authority€to€impose€a€compliance€plan€requirement€in€the€permit€whichÏdirects€the€owner€or€operator€to€repropose€monitoring€in€accordance€with€ðððð€64.3€andÏ64.4€within€no€more€than€180€days€after€disapproval.€€Under€ðð€64.6(e)(3),€the€owner€orÏoperator€will€be€in€noncompliance€with€part€64€if:€€(1)€the€owner€or€operator€fails€toÏsubmit€monitoring€within€the€required€compliance€schedule;€or€(2)€the€permittingÏauthority€disapproves€the€monitoring€submitted,€subject€to€the€owner€or€operatorððs€rightÏto€appeal€any€such€disapproval.€€Note€that€the€decision€to€disapprove€the€initiallyÏproposed€monitoring€would€also€constitute€final€agency€action€for€purposes€of€appeal.€€Ìà  àThis€disapproval€process€was€implied€but€not€explicitly€addressed€in€the€1993ÏEM€proposal€or€the€subsequent€drafts€of€part€64.€€However,€comments€on€these€earlierÏversions€of€the€rule€did€raise€concerns€about€when€an€owner€or€operator€could€appeal€aÏdecision€as€to€the€monitoring€and€whether€a€permitting€authority€could€insert€in€theÏpermit€the€monitoring€which€the€permitting€authority€believes€should€be€used.€€TheÏAgency€believes€that€in€most€cases,€the€permit€process€provides€ample€opportunity€forÏthe€permitting€authority€and€the€owner€or€operator€to€confer€about€the€appropriateÐ ,`'8 Ðmonitoring€to€satisfy€part€64€and€agree€upon€an€approach,€with€public€and€EPA€review,Ïwithout€having€to€reach€the€point€of€disapproving€the€monitoring€in€the€final€permitÏaction.€€Nevertheless,€the€Agency€also€believes€that€the€final€rule€should€clarify€how€aÏmonitoring€disapproval€will€be€handled.Ìà  àThe€Agency€notes€further€that,€unlike€the€procedures€for€most€applicableÏrequirements,€the€part€70€permit€process€will€be€used€as€the€process€for€approving€theÏspecific€monitoring€that€is€used€to€satisfy€part€64.€€In€that€respect,€the€part€70€processÏwill€be€essential€to€assuring€adequate€public,€permitting€authority,€and,€as€necessary,ÏEPA€input€on€part€64€monitoring.€€The€Agency€believes€that€the€approval/disapprovalÏprocedures€in€the€final€rule€highlight€this€important€aspect€of€part€64€and€will€provide€forÏadequate€public€and€EPA€review€of€the€monitoring€used€to€satisfy€part€64.Ìà  à5.à  àòòPermit€ShieldóóÐ (x Ðà  àThe€Agency€notes€that,€after€approval€of€the€part€64€monitoring€in€a€permit,€theÏpermit€shield€provisions€in€part€70€may€extend€to€the€part€64€monitoring€approved€in€theÏpermit.€€A€significant€area€of€comment€on€the€1993€proposed€EM€rule€was€the€effect€ofÏimplementing€part€64€on€these€permit€shield€provisions.€€Some€commenters€wereÏconcerned€that€the€linking€of€part€64€and€the€permitting€process€would€hamper€theÏtimely€processing€of€permits,€and€in€some€cases,€result€in€the€loss€of€the€permitÏapplication€shield.€€The€Agency€has€addressed€these€concerns€in€the€changes€to€theÏimplementation€schedule€of€the€final€rule.€€Other€commenters€suggested€that€the€non„¼specific€nature€of€part€64€monitoring€requirements€could€lead€to€a€situation€where€theÏpermit€shield€could€be€lost€even€if€the€monitoring€was€originally€developed€in€good€faithÏand€was€approved€by€the€permitting€authority.€€These€commenters€argued€that€if€suchÏmonitoring€is€later€determined€to€be€inadequate€by€the€permitting€authority€or€the€ownerÏor€operator,€there€should€be€a€process€for€correcting€the€monitoring€without€finding€theÏowner€or€operator€in€violation€of€the€general€part€64€substantive€requirements.Ìà  àEPA€believes€that,€if€a€permitting€authority€extends€the€permit€shield€to€theÏmonitoring€requirements€included€in€an€operating€permit,€the€owner€or€operator€will€beÏshielded€from€any€retrospective€action€based€on€a€claim€that€the€monitoring€approved€inÐ ,`'8 Ðthe€permit€fails€to€satisfy€part€64€requirements.€€This€protection€is€only€available€so€longÏas€the€owner€or€operator€conducts€the€monitoring€in€accordance€with€the€permit.€€Also,Ïthe€shield€will€not€prevent€the€permitting€authority€or€the€EPA€from€reopening€the€permitÏif,€after€approval,€the€permitting€authority€or€the€Agency€finds€cause€to€reopen€theÏpermit€based€on€a€deficiency€in€the€approved€monitoring.Ìà  àWhere€an€owner€or€operator€discovers€that€the€originally€approved€monitoring€isÏinadequate,€the€final€rule€does€require€the€owner€or€operator€to€correct€the€defect€in€theÏmonitoring€expeditiously.€€Section€64.7(e)€requires€an€owner€or€operator€to€promptlyÏnotify€the€permitting€authority€and€submit€a€proposed€modification€to€the€source's€partÏ70€permit€under€at€least€two€circumstances.€€First,€if€the€owner€or€operator€documentsÏthat€a€violation€of€an€emission€limitation€or€standard€occurs€but€the€part€64€monitoringÏfailed€to€indicate€an€excursion€or€exceedance€for€the€same€period,€there€will€be€a€needÏto€address€that€type€of€deficiency.€€Second,€if€the€results€of€performance€or€complianceÏtesting€document€a€need€to€modify€the€approved€indicator€ranges,€that€type€ofÏcorrection€will€also€be€required.€€The€appropriate€permit€modifications€may€includeÏmonitoring€additional€parameters,€increasing€monitoring€frequency,€reestablishingÏindicator€ranges,€or€other€changes€appropriate€for€the€circumstances.€Ìà  àG.€€òòSection€64.7€„€Operation€of€MonitoringóóÐ ˜è" Ðà  à1.€€òòGeneral€Conduct€of€MonitoringóóÐ P$ Ðà  àAs€soon€as€the€permitting€authority€has€approved€the€operating€permit,€ðð€64.7(a)Ïrequires€the€owner€or€operator€of€an€affected€source€to€begin€conducting€monitoring€ofÏthe€source€in€accordance€with€the€permit.€€If€the€permit€includes€a€scheduled€date€forÏthe€completion€of€testing,€installation,€and€final€verification€of€the€approved€monitoringÏpursuant€to€ðð€64.6(d),€then€the€owner€or€operator€is€not€required€to€begin€conductingÏmonitoring€until€that€completion€date.€€This€provision€does€not€excuse€the€owner€orÏoperator€from€complying€with€monitoring€required€under€separate€authority€if€theÏmonitoring€being€used€to€comply€with€part€64€is€also€required€under€that€separateÏauthority.Ìà  àSection€64.7(b)€requires€an€owner€or€operator€to€properly€maintain€the€approvedÐ ,`'8 Ðmonitoring.€€The€provision€states€that€the€maintenance€and€operation€obligationsÏinclude€an€obligation€to€maintain€necessary€parts€for€routine€repairs€of€the€monitoringÏequipment.Ìà  àUnder€ðð€64.7(c),€the€monitoring€must€be€conducted€continuously€or€shall€collectÏdata€at€all€required€intervals€during€emissions€unit€operating€periods€unless€theÏmonitoring€cannot€be€conducted€because€of€monitor€malfunctions,€associated€repairs€orÏrequired€quality€assurance€or€control€activities€(including,€as€applicable,€calibrationÏchecks€and€zero€and€span€adjustments).€€Data€collected€during€such€periods€is€not€toÏbe€used€for€purposes€of€part€64,€including€data€averages€and€calculations,€or€fulfilling€aÏdata€availability€requirement.€€Data€recorded€during€all€other€periods€is€to€be€used€inÏassessing€the€operation€of€the€control€device€and€associated€capture€system.Ìà  àThe€Agency€notes€that€the€requirements€in€ðððð€64.7(b)€and€(c)€are€generallyÏconsistent€with€monitoring€requirements€promulgated€under€the€NSPS€program€(see€40ÏCFR€60.13(e))€and€the€new€NESHAP€program€(see€40€CFR€63.8(c)(1)€and€(4)).€€TheÏobligation€to€keep€parts€necessary€for€routine€repairs€is€based€on€a€similar€requirementÏin€ðð€63.8(c)(1).€€The€requirement€that€part€64€monitoring€be€operational€duringÏemissions€unit€operation€except€during€monitor€malfunctions€and€similar€events€isÏconsistent€with€ðð€60.13(e)€and€ðð€63.8(c)(4).€€It€is€important€to€note€that€this€provisionÏdoes€not€excuse€a€failure€to€comply€with€a€data€availability€requirement.€€Even€if€a€dataÏavailability€requirement€is€met,€this€provision€requires€an€owner€or€operator€to€continueÏoperating€the€monitoring€unless€it€is€technically€infeasible€to€do€so.Ìà  àThe€Agency€believes€that€these€general€operating€requirements€were€implicit€inÏthe€1993€EM€proposal,€including€proposed€ðð€64.4(b)(4)€which€required€the€owner€orÏoperator€to€obtain€quality„assured€data€from€the€monitoring€sufficient€to€satisfy€minimumÏdata€availability€requirements.€€However,€EPA€notes€that€in€comments€on€theÏsubsequent€drafts€of€part€64,€certain€commenters€objected€to€these€types€of€provisions,Ïand€specifically€requested€that€the€rule€exempt€the€source€owner€or€operator€fromÏhaving€to€conduct€monitoring€during€periods€when€the€source€is€not€required€to€complyÏwith€the€underlying€standard€(such€as€startup€and€shutdown€conditions).€€The€AgencyÐ ,`'8 Ðdisagrees€with€these€comments,€and€notes€that€existing€general€monitoringÏrequirements€under€NSPS€and€NESHAP€do€not€provide€for€that€type€of€exception€toÏmonitoring.€€In€fact,€EPA€has€previously€rejected€the€idea€of€exempting€sources€fromÏmonitoring€during€startup€and€shutdown€conditions€in€other€rulemakings.€(See,€e.g.,€òòAirÐ è8 ÐOxidation€Processes€in€Synthetic€Organic€Chemical€Manufacturing€Industry„„¼Background€Information€for€Promulgated€Standards,óó€EPA„€450/3„82„001b,€June€1990,€Ð ¸   Ðpp.€2„37€and€2„38.€€For€a€copy€of€this€document,€see€EPA€Air€Docket€A„81„22„V„B„1.)€ÏAlthough€compliance€with€emission€limitations€may€be€exempted€in€someÏcircumstances€during€conditions€such€as€startup€and€shutdown,€an€owner€or€operatorÏstill€is€required€to€operate€and€maintain€a€source€in€accordance€with€good€air€pollutionÏcontrol€practices€for€minimizing€emissions€during€such€periods.€€The€monitoring€underÏpart€64€is€essential€to€evaluate€the€extent€to€which€this€duty€is€fulfilled.€€Therefore,€toÏclarify€the€intent€of€part€64€and€assure€that€it€is€implemented€consistently€with€otherÏEPA€monitoring€programs,€the€final€rule€includes€these€general€operating€requirementsÏin€ðððð€64.7(b)€and€(c).Ìà  à2.€€òòCorrective€Action€ObligationsóóÐ È Ðà  àSection€64.7(d)€of€the€final€rule€requires€that,€upon€detecting€an€excursion€orÏexceedance,€the€owner€or€operator€will€restore€the€pollutant„specific€emissions€unit€toÏits€normal€or€usual€manner€of€operation€as€expeditiously€as€practicable€in€accordanceÏwith€good€air€pollution€control€practices€for€minimizing€emissions.€€This€requiresÏminimizing€periods€of€startup,€shutdown€or€malfunction,€and€taking€corrective€action€toÏrestore€normal€operation€and€prevent€recurrence€of€the€problem€that€led€to€theÏexcursion€or€exceedance€except€where€the€excursion€or€exceedance€was€related€to€anÏexcused€startup€or€shutdown€condition.€€Corrective€action€may€include€inspection€andÏevaluation€where€operations€returned€to€normal€without€operator€action,€or€anyÏappropriate€follow€up€activities,€including€shutting€down€a€pollutant„specific€emissionsÏunit€until€necessary€repairs€are€completed,€to€return€the€operation€to€within€the€indicatorÏrange€or€below€the€applicable€emission€limitation€or€standard,€as€applicable.€€ConsistentÏwith€existing€general€duty€provisions€such€as€ðð€60.11(d),€determination€of€whether€theÐ ,`'8 Ðowner€or€operator€has€used€acceptable€procedures€in€response€to€an€excursion€orÏexceedance€will€be€based€on€available€information,€including€monitoring€data.€€A€relatedÏprovision€found€at€ðð€64.8(a)€of€the€final€rule€provides€that€a€source€owner€or€operatorÏcan€be€required€to€implement€a€quality€improvement€plan€(QIP)€after€a€determination€byÏthe€permitting€authority€or€the€Administrator€that€the€source€owner€has€failed€to€conductÏproper€operation€and€maintenance€as€documented€through€part€64€monitoring€andÏother€available€information€(see€Section€II.H.).€Ìà  àBecause€the€Agency's€emphasis€for€part€64€monitoring€shifted€away€from€theÏdirect€compliance€determination€requirements€of€the€1993€EM€proposal€to€the€CAMÏapproach,€the€Agency€believes€it€is€critical€to€underscore€the€need€to€maintain€operationÏwithin€the€established€indicator€ranges.€€Therefore,€the€rule€includes€the€requirement€toÏtake€prompt€and€effective€corrective€action€when€the€monitored€indicators€of€complianceÏshow€that€there€may€be€a€problem.€€Requiring€that€owners€and€operators€are€attentiveÏand€respond€to€the€data€gathered€by€part€64€monitoring€has€always€been€central€to€theÏCAM€approach.€€Certain€comments€received€on€the€1996€part€64€Draft€questioned€theÏappropriateness€of€the€corrective€action€provisions€with€some€commenters€finding€theÏrequirements€unnecessary€and€others€alleging€that€they€were€inadequate.€€The€AgencyÏreiterates€its€belief€that€part€64€monitoring€can€provide€a€reasonable€assurance€ofÏcompliance€with€applicable€requirements.€This€is€consistent€with€the€approachÏsuggested€by€many€commenters€throughout€the€development€of€part€64;€however,Ïbecause€the€data€will€not€necessarily€allow€a€direct€determination€of€compliance,€theÏAgency€believes€that€it€is€essential€to€the€CAM€goal€of€ongoing€compliance€operationÏthat€part€64€require€that€owners€or€operators€respond€to€the€data€so€that€any€problemsÏindicated€by€the€monitoring€are€corrected€as€soon€as€possible.€€Without€this€correctiveÏaction€obligation,€owners€or€operators€might€tend€to€ignore€excursions€because€suchÏexcursions€may€not€necessarily€allow€a€determination€of€a€violation.€€Thus,€EPAÏbelieves€that€the€corrective€action€component€of€part€64€is€critical€to€assuring€that€theÏinformation€from€the€enhanced€monitoring€required€by€part€64€is€heeded€by€owners€orÏoperators.Ð ,`'8 Ðà  àAs€described€in€the€discussion€accompanying€the€1996€part€64€Draft,€the€AgencyÏdid€consider€requiring€owners€or€operators€to€specify€maximum€periods€for€conductingÏvarious€types€of€corrective€action,€but€stakeholders€raised€concerns€that€it€would€beÏextremely€difficult€to€establish€the€appropriate€time€frames€for€every€possibleÏcontingency€(see,€e.g.,€docket€items€VI„D„45,€p.€12;€VI„E„9,€p.€5„6).€€The€AgencyÏcontinues€to€agree€that€it€would€be€difficult€to€establish€appropriate€time€frames€for€allÏcorrective€action€scenarios€and€therefore€has€adopted€the€general€obligationÏrequirement€in€the€final€rule.€€The€Agency€also€believes,€however,€that€as€situationsÏdevelop€at€a€particular€facility€it€may€be€possible€in€subsequent€rounds€of€permitting€toÏprovide€specific€timetables€for€certain€high€priority€concerns€if€a€permitting€authorityÏdesires€to€make€this€requirement€more€specific.€€In€addition,€if€an€existing€site„specificÏplan,€such€as€a€malfunction€abatement€plan,€already€establishes€required€time€framesÏfor€certain€types€of€excursions,€the€owner€or€operator€or€the€permitting€authority€couldÏincorporate€those€specific€time€frames€into€the€permit.€Ìà  àThe€obligation€to€correct€excursions€as€expeditiously€as€practicable€is€theÏenforceable€component€associated€with€establishing€an€indicator€range€under€part€64.€ÏPart€64€does€not€establish€that€an€excursion€from€an€indicator€range€constitutes€anÏindependent€violation€by€itself.€€The€1996€part€64€Draft€did€provide€that€the€permit€mayÏspecify€that€an€excursion€could€be€considered€a€failure€to€satisfy€an€applicable€permitÏterm€or€condition€in€various€situations.€€First,€if€existing€requirements€already€require€theÏowner€or€operator€to€comply€with€the€indicator€ranges,€the€1996€Draft€indicated€that€theÏranges€would€be€enforceable€requirements.€€Second,€the€1996€Draft€indicated€that€anÏowner€or€operator€could€propose€this€approach.€€Finally,€the€1996€Draft€stated€that,€ifÏconsistent€with€existing€authority,€the€permitting€authority€could€specify€in€the€permit€thatÏexcursions€from€the€indicator€ranges€will€be€considered€enforceable€permit€deviations.€ÏIn€comments€submitted€during€the€development€of€the€rule,€State€and€local€agencyÏorganizations€stated€their€support€for€including€control€device€performance€indicatorÏranges€as€enforceable€permit€requirements€even€if€such€indicator€ranges€are€not€usedÏdirectly€to€determine€compliance€or€noncompliance€with€applicable€emission€limitationsÐ ,`'8 Ðor€standards.€€(See,€for€example,€docket€item€VI„D„49€and€IV„D„274).€€However,Ïnumerous€industry€commenters€opposed€the€provisions€in€the€1996€part€64€Draft€whichÏaddressed€this€issue.Ìà  àThe€Agency€has€considered€all€of€the€relevant€comments€and€has€determinedÏthat€part€64€need€not€address€this€issue.€€First,€if€an€underlying€requirement€makes€anÏindicator€range€enforceable,€then€that€will€have€to€be€addressed€in€the€permit€under€theÏexisting€requirements€in€part€70.€€Second,€a€source€owner€can€always€propose€to€makeÏthe€indicator€range€enforceable€and€part€64€need€not€address€this€possibility.€€Third,€if€aÏState€agency€has€independent€authority€to€make€indicator€ranges€enforceable,€that€canÏbe€done€irrespective€of€the€authority€provided€in€part€64.€€Finally,€as€discussed€inÏSection€I.E.,€the€CE€revisions€clarify€that€an€excursion€from€an€indicator€range€in€someÏcircumstances€may€be€sufficiently€probative€of€compliance€that€it€could€be€used€toÏdocument€a€violation€of€an€underlying€requirement.€€Based€on€these€considerations,€theÏfinal€rule€simply€requires€the€permit€to€establish€an€indicator€range,€and€then€imposesÏthe€obligation€to€take€appropriate€corrective€action€in€response€to€an€excursion€and€toÏreport€the€excursion€in€applicable€periodic€reports€and€compliance€certifications.€€Ìà  à3.€€òòMonitoring€Revisionsóó€Ð 0€  Ðà  àSection€64.3(d)€of€the€1993€EM€proposal€would€have€required€a€significant€permitÏmodification€pursuant€to€ðð€70.7€whenever€a€change€was€made€to€an€enhancedÏmonitoring€protocol€or€whenever€a€pollutant„specific€emissions€unit€was€modified€inÏsuch€a€way€as€to€make€an€existing€protocol€no€longer€appropriate.€€A€great€number€ofÏindustry€commenters€objected€to€the€permit€modification€provisions€in€the€proposedÏrule.€€The€vast€majority€objected€to€the€scope€of€this€provision,€under€which€any€changeÏto€an€enhanced€monitoring€protocol€triggered€a€requirement€to€obtain€a€significantÏpermit€modification.€€A€number€of€commenters€noted€that€the€proposed€rule€wouldÏrequire€significant€permit€modifications€for€changes€that€would€not€have€triggered€suchÏa€requirement€under€part€70€itself.Ìà  àThe€Agency€agrees€with€those€commenters€that€believe€the€part€70€proceduresÏgenerally€should€be€relied€on€for€determining€when€and€what€type€of€a€permit€change€isÐ ,`'8 Ðrequired€for€different€types€of€monitoring€modifications.€€In€keeping€with€this€approach,ÏEPA€has€removed€the€permit€modification€provisions€from€the€final€rule.€€Instead,€theÏAgency€intends€that€permit€revisions€involving€part€64€requirements€be€made€pursuantÏto€part€70€permit€revision€procedures.€€The€EPA€has€proposed€revisions€to€part€70€inÏorder€to€streamline€the€existing€permit€modification€procedures€(see€59€FR€44460,ÏAugust€29,€1994,€and€60€FR€45530,€August€23,€1995).€€The€preamble€to€thoseÏproposed€revisions€discusses€what€types€of€permit€revisions€would€be€appropriate€forÏdifferent€types€of€monitoring€changes.€€The€EPA€intends€to€promulgate€permit€revisionÏprocedures€based€on€the€proposed€part€70€revisions€that€will€clarify€when€and€how€aÏchange€in€monitoring€will€trigger€the€need€to€modify€the€underlying€operating€permit.Ìà  àAs€noted€in€the€discussion€of€the€permit€shield€above,€ðð€64.7(e)€does€require€anÏowner€or€operator€to€follow€permit€modification€procedures€upon€discovery€ofÏdeficiencies€in€approved€part€64€monitoring.€€In€addition,€the€part€70€procedures€willÏapply€if€the€owner€or€operator€wants€to€change€certain€aspects€of€its€approvedÏmonitoring,€or€if€the€owner€or€operator€intends€to€make€certain€types€of€emissions€unitÏmodifications€that€could€trigger€the€need€for€a€permit€revision€to€address€part€64Ïrequirements.€€For€instance,€if€an€owner€or€operator€switched€from€a€pollutionÏprevention€method€of€controlling€emissions€to€a€control€device€within€the€definition€ofÏpart€64,€that€change€could€impose€the€part€64€monitoring€requirements€for€a€unit€whichÏhad€been€subject€only€to€part€70€monitoring€before€the€change.€€In€such€a€case,€theÏrevised€part€70€procedures€would€require€the€owner€or€operator€to€submit€a€request€forÏa€part€70€permit€modification€which€includes€proposed€part€64€monitoring€and€requiredÏsupporting€documentation.Ìà  àH.€€òòSection€64.8€„„€Quality€Improvement€Plans€(QIPs)óóÐ %X . Ðà  àRequirements€for€responding€to€the€monitoring€data€if€potential€control€problemsÏare€detected€have€been€included€in€the€final€rule.€€Requiring€that€owners€or€operatorsÏare€attentive€to€the€data€obtained€by€part€64€monitoring€and€take€corrective€action€whenÏproblems€are€detected€has€always€been€part€of€the€CAM€approach.€€The€discussionsÏaccompanying€the€1995€and€1996€part€64€Drafts€describe€the€CAM€approach€asÐ ,`'8 Ðpromoting€compliance€by€making€the€owner€or€operator€pay€attention€and€respond€toÏthe€monitoring€data.€€Because€the€approach€of€establishing€indicator€ranges€and€thenÏimposing€an€obligation€to€respond€to€excursions€could€potentially€allow€owners€orÏoperators€to€comply€with€part€64€even€though€they€may€be€in€a€near€constant€state€ofÏcorrecting€excursions,€the€related€concept€of€quality€improvement€plans€(QIPs)€wasÏdeveloped.€€This€concept€was€designed€to€avoid€perpetual€corrective€action€whichÏwould€frustrate€the€compliance€promotion€and€compliance€assurance€goals€of€part€64.€Ìà  à1.€€òòQIPs€in€the€1995€Part€64€DraftóóÐ ˆØ  Ðà  àIn€the€discussion€accompanying€the€1995€part€64€Draft,€the€requirements€forÏresponding€to€monitoring€data€were€described€as€including:€operating€ranges€forÏmonitored€parameters,€time€periods€for€corrective€action€in€the€event€discrepanciesÏfrom€the€established€operating€ranges€occur,€and€a€maximum€number€of€discrepanciesÏfrom€the€established€operating€ranges€to€occur€in€a€reporting€period.€The€1995€part€64ÏDraft€provided€that€source€owners€could€establish€this€maximum€number€ofÏdiscrepancies€as€a€not„to„exceed€limit€or€as€a€requirement€that,€initially,€triggersÏimplementation€of€a€QIP.€€The€QIP€option€would€require€evaluation€of€why€the€maximumÏnumber€of€discrepancies€was€exceeded.€€Based€on€that€evaluation,€the€QIP€wouldÏrequire€the€owner€or€operator€to€take€steps€to€improve€control€performance€includingÏimproved€preventive€maintenance€procedures,€process€operation€changes,€controlÏsystem€improvements€or€similar€actions.€Ìà  àThe€QIP€option€was€described€as€a€means€of€allowing€an€owner€or€operator€toÏestablish€site„specific€maximum€discrepancy€numbers€without€facing€automaticÏenforcement€exposure€for€failure€to€comply€with€those€numbers€during€the€early€stagesÏof€part€64€applicability/implementation,€while€at€the€same€time€assuring€that€a€largeÏnumber€of€discrepancies€would€trigger€additional€steps€to€decrease€the€incidence€ofÏreduced€control€performance.€€In€addition,€the€1995€part€64€Draft€contained€limits€toÏguard€against€the€use€of€an€ineffective€QIP.€€Owners€or€operators€would€be€allowed€toÏexceed€the€maximum€number€of€corrective€actions€trigger€twice€during€a€permit€term.€€AÏthird€or€subsequent€exceedance€of€the€trigger€would€have€been€treated€as€a€failure€toÐ ,`'8 Ðcomply€with€the€requirements€of€part€64€as€well€as€still€requiring€a€QIP€to€improveÏcontrol€performance.€€These€situations€potentially€would€have€also€required€the€QIP€toÏbe€revised€to€more€adequately€serve€its€purpose€of€improved€control€performance.€Ìà  àThe€discussion€accompanying€the€1995€part€64€Draft€noted€that€the€provisionsÏon€the€length€of€corrective€action€periods€and€the€maximum€number€of€corrective€actionÏperiods€per€reporting€period€provided€significant€flexibility€and€solicited€comment€onÏwhether€the€final€rule€should€establish€additional€objective€criteria€such€as€a€maximumÏlength€for€corrective€actions€or€a€limit€on€the€number€of€corrective€actions€permitted.€Ìà  àThe€Agency€received€a€number€of€comments€on€the€QIP€concept€after€releasingÏthe€1995€part€64€Draft.€€A€number€of€industry€commenters€supported€the€QIP€conceptÏbut€raised€concerns€about€the€provisions€limiting€the€number€of€allowable€QIPs€andÏabout€the€specificity€of€certain€requirements.Ìà  à2.€€òòQIPs€in€the€1996€Part€64€Draftóó€Ð à Ðà  àIn€the€1996€part€64€Draft€the€owner€or€operator€was€required€to€implement€a€QIPÏif€the€duration€of€excursions€occurring€in€any€reporting€period€exceeded€a€setÏpercentage€of€the€operating€time€for€the€pollutant„specific€emissions€unit€over€thatÏreporting€period,€or€if€the€number€of€excursions€exceeded€a€set€percentage€of€theÏmonitored€averaging€periods€during€the€applicable€reporting€period.€€If€the€approvedÏmonitoring€involved€the€use€of€a€CEMS€or€PEMS,€then€the€appropriate€trigger€for€a€QIPÏwould€be€exceedances€instead€of€excursions.Ìà  àThe€appropriate€percentage€was€to€be€set€in€the€context€of€the€permittingÏprocess.€€The€permitting€authority€was€to€take€into€account€all€relevant€factors,€but€theÏpercentage€of€operating€time€was€not€to€exceed€5€percent.€€The€Agency€solicitedÏcomment€on€whether€that€was€an€appropriate€percentage€and€information€that€couldÏsupport€another€percentage€limit.€€An€exception€was€provided€in€the€1996€part€64€DraftÏfor€circumstances€in€which€specific€applicable€requirements€established€a€higherÏpercentage.€€Finally,€the€draft€rule€stated€that€the€permit€must€include€a€condition€that€inÏthe€event€that€either€percent€trigger€was€exceeded,€the€owner€or€operator€wouldÏdevelop€and€implement€a€QIP€that€met€specific€criteria.Ð ,`'8 Ðà  àLike€the€1995€part€64€Draft,€the€1996€part€64€Draft€described€two€basic€parts€of€aÏQIP.€€The€first€part€would€consist€of€evaluation€procedures€to€determine€the€cause€ofÏthe€excessive€number€of€excursions€(or€exceedances,€if€applicable).€€Based€on€thatÏevaluation,€the€owner€or€operator€would€develop€the€second€part€of€the€QIP.€€TheÏsecond€part€would€detail€the€steps€the€owner€or€operator€would€take€to€improve€theÏquality€of€control€performance,€and€the€schedule€for€taking€those€steps.€€Again,Ïdepending€on€the€nature€of€the€problem,€the€appropriate€steps€could€include€improvedÏpreventive€maintenance€procedures,€process€operation€changes,€control€systemÏimprovements€or€similar€types€of€steps.€€In€conjunction€with€those€procedures,€the€QIPÏalso€might€include€improved€monitoring€procedures.Ìà  àThe€discussion€accompanying€the€1996€part€64€Draft€described€theseÏrequirements€as€assuring€that€the€monitoring€conducted€under€part€64€would€result€inÏowners€or€operators€taking€the€necessary€steps€to€prevent€pollution€through€reasonableÏoptimization€of€control€performance.€€The€Agency€stated€in€that€discussion€and€the€draftÏitself€that€compliance€with€a€QIP€is€not€a€substitute€for€compliance€with€underlyingÏapplicable€requirements,€including€general€duties€to€operate€and€maintain€facilities€inÏaccordance€with€good€air€pollution€control€practices,€and€the€1996€part€64€Draft€alsoÏrequired€the€owner€or€operator€to€report€as€a€deviation€any€period€during€which€a€QIP€isÏbeing€implemented.Ìà  àAgain€the€Agency€expressed€concern€about€owners€or€operators€performingÏrepeated€QIPs,€and€the€1996€part€64€Draft€provided€that€the€necessity€to€implement€aÏsecond€QIP€for€the€same€pollutant„specific€emissions€unit€during€the€same€permit€termÏwould€constitute€a€specific€permit€term€violation.€€The€Agency€acknowledged€that€anÏenforceable€permit€condition€placing€a€limit€on€the€number€of€QIPs€might€be€perceivedÏas€an€unnecessary€restriction€on€the€operation€of€highly€efficient€and€well„operatedÏcontrol€measures.€€The€EPA€noted€that€a€high€level€of€excursions€could€result€fromÏtightly€set€indicator€ranges€that€are€not€at€all€indicative€of€potential€excess€emissions,Ïand€that€the€"second€QIP€as€a€violation"€approach€could€inappropriately€put€an€owner€orÏoperator€in€violation€under€such€circumstances.Ð ,`'8 Ðà  àThe€Agency€then€noted€that€the€second€QIP€as€a€deviation€approach€mightÏencourage€source€owners€to€set€unrepresentatively€broad€indicator€ranges€and€therebyÏavoid€excursions.€€The€Agency€sought€comment€on€other€means€to€encourage€theÏsetting€of€the€indicator€ranges€in€a€manner€consistent€with€the€best€level€of€emissionsÏcontrol€that€can€be€achieved.€€As€one€possible€alternative,€EPA€suggested€that€insteadÏof€a€permit€violation€associated€with€the€need€to€implement€a€second€QIP€the€final€ruleÏcould€instead€require€that€the€second€QIP€be€implemented€only€through€a€permittingÏauthority€approval€process.€€Such€a€plan€could€also€include€restricted€processÏoperations€until€completion€of€the€approved€QIP.€The€agency€also€suggested€as€aÏsecond€possible€alternative€that€the€time€period€for€limiting€the€owner€or€operator€to€oneÏQIP€could€be€reduced€from€the€5„year€permit€term€to€3€years€or€other€appropriateÏperiod.Ìà  àIn€addition,€the€1996€part€64€Draft€contained€a€number€of€other€QIP„relatedÏrequirements.€€First,€it€required€the€owner€or€operator€to€notify€the€permitting€authorityÏwithin€2€days€after€determining€that€a€QIP€is€necessary.€€Second,€the€QIP€would€notÏbecome€part€of€the€permit€and€would€not€require€permitting€authority€approval.€€Third,Ïthe€QIP€was€to€be€implemented€as€soon€as€practicable,€and€completed€within€180€daysÏfrom€the€date€notice€of€the€QIP€was€given€to€the€permitting€authority.€€Exceptions€to€theÏ180„day€limit€were€to€be€granted€only€after€the€owner€or€operator€obtained€a€site„¼specific€resolution€and€affirmative€approval€from€the€permitting€authority€or,€ifÏnecessary,€the€EPA€of€a€plan€to€complete€the€improvement€activities.€€An€approvedÏextension€could€include€an€enforceable,€site„specific€schedule€with€milestones€andÏcompletion€dates.Ìà  àThe€1996€part€64€Draft€also€required€the€owner€or€operator€to€report€on€theÏactivities€taken€in€conjunction€with€a€QIP.€€QIP€activities€would€be€summarized€in€theÏsemiannual€report€covering€the€period€in€which€the€QIP€began,€and€in€any€subsequentÏsemiannual€reports€covering€periods€during€which€the€QIP€continued.€€In€addition,€theÏowner€or€operator€was€required€to€maintain€a€copy€of€the€QIP€and€records€of€QIPÏimplementation€activities€for€a€period€of€five€years€in€accordance€with€part€64Ð ,`'8 Ðrecordkeeping€provisions.Ìà  àFinally,€a€QIP€could€lead€to€changes€in€previously€approved€monitoring€or€otherÏchanges€at€the€source€that€require€a€permit€revision.€€Therefore,€the€1996€part€64€DraftÏrequired€the€owner€or€operator€to€submit€a€proposed€revision€to€the€approvedÏmonitoring€in€these€circumstances.€€Even€if€such€changes€did€not€require€a€permitÏrevision,€a€source€owner€or€operator€who€intended€to€retain€the€previously€approvedÏmonitoring€was€required€to€reestablish€the€rationale€that€justified€the€monitoring.Ìà  à3.€€òòQIPs€in€the€Final€Ruleóó€Ð ˆØ  Ðà  àIn€response€to€comments€received€on€the€1995€and€1996€part€64€Drafts,€ðð€64.8Ïof€the€final€rule€reflects€a€number€of€significant€changes€to€the€QIP€requirements.Ìà  àA€number€of€commenters€challenged€the€5€percent€QIP€trigger€in€the€1996€partÏ64€Draft€and€some€questioned€whether€a€single€percentage€threshold€was€appropriateÏregardless€of€exactly€where€the€threshold€was€set.€€Section€64.8(a)€of€the€final€ruleÏprovides€that€a€QIP€trigger€may€be€set€in€the€permit€but€does€not€require€it.€€Where€suchÏa€trigger€is€used,€a€level€of€5€percent€is€suggested€as€a€potentially€appropriateÏthreshold.€€The€final€rule€also€provides€that€a€QIP€can€be€required€after€a€determinationÏby€the€permitting€authority€or€the€Administrator€that€an€owner€or€operator€has€failed€toÏconduct€proper€operation€and€maintenance€as€documented€through€part€64€monitoringÏand€other€available€information.€€In€this€respect,€the€QIP€provisions€are€analogous€toÏexisting€corrective€action€remedies€available€to€address€compliance€problems.Ìà  àCommenters€also€argued€that€the€180„day€limit€for€completion€of€a€QIP€that€wasÏincluded€in€the€1996€draft€part€64€was€not€reasonable,€with€various€commenters€arguingÏfor€more€or€less€time.€€Some€commenters€also€noted€that€QIPs€that€lead€to€the€need€forÏa€permit€modification€would€be€particularly€problematic€in€terms€of€meeting€a€specificÏdeadline.€€Section€64.8(c)€of€the€final€rule€requires€owners€or€operators€to€complete€anyÏQIP€as€expeditiously€as€practicable€and€to€notify€the€permitting€authority€if€theyÏdetermine€that€a€QIP€will€take€longer€than€180€days€rather€than€establishing€a€specificÏamount€of€time€within€which€the€QIP€must€be€completed.€Ìà  àMany€commenters€objected€to€the€requirement€that€a€second€QIP€within€a€permitÐ ,`'8 Ðterm€be€treated€as€a€violation.€€A€number€of€commenters€pointed€out€that€a€subsequentÏQIP€might€be€completely€unrelated€to€the€first€QIP,€that€more€room€for€error€should€beÏallowed€in€the€early€stages€of€part€64€applicability/implementation,€and€that€theÏexistence€of€such€penalties€would€frustrate€the€goals€of€part€64€by€discouraging€sourceÏowners€from€setting€indicator€ranges€at€levels€that€would€provide€early€warning€ofÏproblems.€€Commenters€also€noted€generally€in€other€comments€on€part€64€that€theÏAgency€should€consider€the€part€63€startup,€shutdown,€malfunction€plan€(SSMP)Ïrequirements€as€an€appropriate€precedent€for€implementing€part€64.€€Based€on€EPA'sÏconsideration€of€the€comments,€EPA€has€deleted€the€concept€that€a€second€QIP€duringÏa€permit€term€is€a€violation.€€Instead,€the€final€rule€allows€permitting€authorities€to€useÏrecurring€problems€as€an€indication€that€a€QIP€should€be€required€in€order€to€bringÏabout€improvements€in€control€device€operation€and€maintenance.€€In€addition,€the€finalÏrule€provides€that€the€permitting€authority€or€the€Administrator€may€follow€up€on€QIPsÏand€make€changes€to€the€plan€if€the€QIP€has€not€addressed€the€problem€adequately.€ÏThis€latter€requirement€is€analogous€to€the€comparable€procedures€for€requiringÏchanges€to€SSMPs€pursuant€to€ðð€63.6(e)(3).€€Ìà  àOther€changes€made€in€response€to€comments€received€on€the€1996€part€64ÏDraft€include€deleting€the€requirement€that€source€owners€notify€the€permitting€authorityÏwithin€two€days€of€the€need€to€implement€a€QIP,€the€requirement€that€periods€duringÏwhich€an€owner€or€operator€is€implementing€a€QIP€be€reported€as€deviations€inÏmonitoring€reports€and€compliance€certifications,€and€the€requirement€to€report€testÏmethod€results€after€QIP€implementation.€€The€Agency€does€not€believe€that€these€draftÏrequirements€are€necessary,€especially€given€that€under€the€final€rule,€QIPs€generallyÏwill€be€implemented€only€after€a€determination€that€an€owner€or€operator€has€failed€toÏmeet€a€general€duty€to€properly€operate€and€maintain€a€source.Ìà  àSome€commenters€objected€to€the€requirement€that€owners€or€operators€stateÏthat€a€QIP€has€reduced€the€likelihood€of€similar€problems€occurring€in€the€future.€€TheÏAgency€believes€that€this€type€of€information€is€appropriate,€but€has€changed€the€finalÏrule€so€that€rather€than€a€certification„style€requirement,€the€owner€or€operator€isÐ ,`'8 Ðrequired€to€submit€documentation€that€the€QIP€has€been€completed€and€reduced€theÏlikelihood€of€similar€levels€of€excursions€or€exceedances€occurring.€€This€provision€willÏprovide€the€permitting€authority€with€the€information€necessary€to€gauge€the€completionÏof€a€QIP€and€whether€follow„up€is€necessary.€€Ìà  àCommenters€on€the€1996€part€64€Draft€also€requested€that€an€owner€or€operatorÏbe€allowed€to€implement€a€QIP€that€involves€only€monitoring€changes.€€The€AgencyÏnotes€that€the€final€rule,€like€the€1996€part€64€Draft,€does€not€provide€for€QIPs€thatÏaddress€monitoring€only.€€This€type€of€change€should€not€be€made€through€a€QIP.€€ByÏits€nature,€a€QIP€focuses€on€situations€where€the€owner€or€operator€has€failed€to€meetÏits€obligation€to€properly€operate€and€maintain€a€source.€€The€QIP€requirements€in€theÏfinal€rule€clarify€this€approach€and€no€longer€mandate€that€a€QIP€be€implemented€solelyÏbecause€a€set€duration€of€excursions€or€exceedances€occurs.€€A€source€owner€whoÏneeds€to€change€approved€part€64€monitoring€can€address€any€monitoring€problemsÏdirectly€through€the€appropriate€permit€modification€process.€€For€indicator€rangeÏchanges,€the€final€rule€allows€owners€or€operators€to€avoid€the€need€for€a€permitÏmodification€by€specifying€in€the€permit€the€method€by€which€such€ranges€will€beÏestablished€rather€than€the€actual€ranges.€€See€Section€II.F.€for€further€discussion€ofÏthat€issue.Ìà  àI.€€òòSection€64.9€„€Reporting€and€Recordkeeping€ProvisionsóóÐ P$ Ðà  àPart€64€generally€relies€on€the€requirements€for€reporting,€complianceÏcertification,€and€recordkeeping€already€established€in€part€70.€€Beyond€generalÏcompliance€with€the€part€70€requirements,€ðð€64.9(a)(2)€clarifies€that€part€70€reports€thatÏinvolve€part€64€monitoring€data€must€identify€summary€data€on€the€number,€durationÏand€cause€of:€excursions€from€indicator€ranges;€emission€limit€exceedances;€anyÏcorrective€actions€taken;€and€monitor€downtime€incidents€other€than€those€associatedÏwith€daily€calibration€checks.€€If€applicable,€the€report€must€also€document€QIPÏimplementation€and€completion€activities.€€See€Section€II.H.€for€further€discussion€of€thisÏQIP€reporting€provision.€Ìà  àThe€Agency€believes€that€the€additional€information€that€is€required€to€beÐ ,`'8 Ðreported€under€part€64€is€consistent€with€streamlined€reporting€requirements€underÏother€monitoring€programs€(such€as€NSPS€reporting€under€40€CFR€60.7(d)).€€TheÏAgency€also€believes€that€this€information€is€necessary€to€allow€permitting€authorities€toÏuse€part€64€data€to€track€overall€control€performance€and€assure€that€owners€orÏoperators€are€operating€part€64€monitoring€appropriately€and€responding€appropriatelyÏto€excursions€from€established€indicator€ranges.Ìà  àThe€recordkeeping€requirements€similarly€require€the€owner€or€operator€toÏmaintain€records€in€conformance€with€part€70.€€The€provisions€clarify€what€part€64Ïrecords€need€to€be€maintained€and€the€acceptable€formats€for€recordkeeping.Ìà  àThe€Agency€solicited€and€received€comments€on€several€aspects€of€the€reportingÏand€recordkeeping€requirements€that€were€included€in€the€1993€EM€proposal.€ThoseÏrequirements,€comments€and€the€changes€made€by€EPA€in€response€to€the€commentsÏare€described€below.Ìà  à1.€€òòCommencement€of€Reporting€DutyóóÐ øH Ðà  àUnder€the€1993€EM€proposal,€affected€owners€or€operators€were€required€toÏsubmit€"enhanced€monitoring€reports."€€These€enhanced€monitoring€reports€would€haveÏfulfilled€essentially€the€same€function€as€the€part€70€reports€required€by€ððÏ70.6(a)(3)(iii)(A),€providing€permitting€authorities€with€more€regular€data€on€monitoringÏcompliance€than€is€required€under€other€provisions.€€The€1993€EM€proposal€requiredÏsubmission€of€these€reports€"[o]n€and€after€the€effective€date€of€this€part€.€.€.€."€€ÏCommenters€were€concerned€that€this€language€could€be€interpreted€to€requireÏreporting€prior€to€approval€of€a€monitoring€plan.€€They€contended€that€it€would€beÏdifficult,€if€not€impossible,€to€fulfill€the€reporting€requirement€without€knowledge€of€whatÏmonitoring€would€ultimately€be€required.€€The€Agency€agrees€with€these€concerns.€€TheÏfinal€part€64€rule€clarifies€that€the€obligation€to€begin€reporting€does€not€commence€untilÏthe€specified€date€by€which€the€owner€or€operator€must€begin€monitoring€under€part€64.Ìà  à2.€€òòReporting€FrequencyóóÐ @)$4 Ðà  àThe€1993€EM€proposal€also€required€quarterly€submission€of€the€above„¼mentioned€enhanced€monitoring€report€for€each€enhanced€monitoring€protocol.€€ManyÐ ,`'8 Ðcommenters€argued€that€quarterly€reporting€would€be€too€costly€and/or€burdensome.€ÏThe€quarterly€reporting€requirement€is€eliminated€in€the€final€rule.€€By€explicitly€relyingÏon€part€70€reporting€requirements,€the€Agency€has€adopted€a€requirement€that€reportsÏbe€submitted€at€least€semiannually.€€The€EPA€believes€that€the€minimum€part€70Ïreporting€frequency€is€sufficient€to€meet€the€goals€of€compliance€assurance€monitoringÏwithout€imposing€undue€costs€or€burdens€on€affected€sources.€€The€Agency€also€notesÏthat€the€1993€EM€proposal€justified€quarterly€reporting€in€part€on€the€similar€provisionÏthat€existed€at€that€time€in€part€60€for€quarterly€reporting€of€direct€compliance€data.€€TheÏAgency€has€since€modified€part€60€reporting€provisions€and€no€longer€requires€quarterlyÏreporting€where€the€source€remains€in€compliance.€€(See€ðð€60.7(e)€added€at€59€FRÏ12417,€March€16,€1994.)€€The€Agency€also€notes€that€part€70€authorizes€permittingÏauthorities€to€require€more€frequent€reporting€of€monitoring€data,€when€appropriate.Ìà  àA€related€provision€in€the€1993€EM€proposal€required€that€each€enhancedÏmonitoring€report€be€postmarked€no€later€than€thirty€days€after€the€last€day€of€theÏreporting€period.€€A€number€of€commenters€objected€to€this€due€date€provision,€arguingÏthat€thirty€days€was€insufficient€time€to€analyze€and€verify€the€necessary€data€and€toÏthen€assemble€a€report€reflecting€that€data,€especially€where€such€data€is€received€fromÏindependent€laboratories.€€Although€the€Agency€believes€that€thirty€days€is€generallyÏsufficient€time€to€compile€the€reports€required€under€the€revised€part€64,€the€due€dateÏprovision€has€been€eliminated.€€Instead,€by€relying€on€the€reporting€requirements€of€partÏ70,€the€Agency€requires€"prompt"€submission€of€monitoring€reports€as€defined€by€theÏpermitting€authority.Ìà  à3.€€òòReport€Signature€RequirementóóÐ  #ð, Ðà  àThe€1993€EM€proposal€required€that€certification€by€a€responsible€official€beÏincluded€in€each€enhanced€monitoring€report.€€Under€this€requirement€the€official€had€toÏcertify€by€his€or€her€signature€that€he€or€she€had€personally€examined€the€informationÏcontained€in€the€report€and€its€attachments,€that€the€statements€and€information€wereÏtrue€to€the€best€of€his€or€her€knowledge€and€belief,€and€that€he€or€she€was€aware€of€theÏpenalties€(including€the€possibility€of€fine€or€imprisonment)€that€could€accrue€forÐ ,`'8 Ðsubmitting€false€statements€and€information€or€omitting€required€statements€andÏinformation.€€A€number€of€commenters€were€concerned€that€the€requirement€that€anÏofficial€personally€examine€all€information€in€the€report€and€its€attachments€wasÏimpractical,€given€the€amount€of€data€that€would€have€to€be€examined€and€theÏresponsible€official's€probable€lack€of€expertise€in€the€specific€areas€of€the€documents.€ÏCommenters€also€expressed€concerns€that€the€penalty€language€of€the€proposed€ruleÏimposed€liability€on€the€responsible€official€instead€of€the€persons€who€might€beÏresponsible€for€violations,€or€on€the€company€itself.Ìà  àThe€EPA€has€eliminated€the€proposed€report€signature€requirement€in€the€finalÏrule.€€Instead,€part€64€reporting€will€be€subject€to€the€same€certification€requirements€asÏrequired€for€all€reports€submitted€under€ðð€70.5(d).€€The€Agency€believes€the€use€of€theÏpart€70€signature€requirements€is€appropriate€given€the€general€reliance€on€part€70Ïreporting€requirements€in€part€64.Ìà  à4.€€òòConfidentiality€of€Report€InformationóóÐ øH Ðà  àThe€1993€EM€proposal€explicitly€provided€that€an€owner€or€operator€could€assertÏa€confidentiality€claim€for€information€reported€under€part€64€to€the€extent€suchÏinformation€was€entitled€to€protection€under€section€114(c)€of€the€Act.€€This€provisionÏreceived€a€generally€favorable€response€from€industry€commenters,€some€of€whomÏproposed€that€the€confidentiality€provisions€be€expanded.€€This€provision€is€not€includedÏin€ðð€64.9€of€the€final€rule.€€As€noted€above,€part€64€reporting€is€governed€by€part€70.€ÏInformation€submitted€under€part€70€reporting€requirements€is€already€subject€toÏconfidentiality€protection€pursuant€to€ðð€70.4(b)(3)(viii),€as€well€as€section€503(e)€of€theÏAct.€€Any€such€information€accompanied€by€a€claim€of€confidentiality€will€be€treated€inÏaccordance€with€the€regulations€of€40€CFR€part€2.€€The€Agency€believes€that€theÏinclusion€of€confidentiality€provisions€in€part€64€is€unnecessary€due€to€the€applicability€ofÏthe€protections€contained€in€part€70.Ìà  à5.€€òòRecordkeeping€RequirementsóóÐ @)$4 Ðà  àSection€64.9(b)(1)€requires€owners€and€operators€of€affected€sources€to€complyÏwith€the€recordkeeping€obligations€set€forth€in€ðð€70.6(a)(3)(ii).€€Part€70€requires€thatÐ ,`'8 Ðrecords€of€the€required€monitoring€including€the€following€information€be€maintained€forÏa€period€of€at€least€five€years:€the€date,€place,€and€time€of€sampling€or€measurements;Ïthe€date(s)€analyses€were€performed;€the€company€or€entity€that€performed€theÏanalyses;€the€analytical€techniques€or€methods€used;€the€results€of€such€analyses;€andÏthe€operating€conditions€as€existing€at€the€time€of€sampling€or€measurement.€€SectionÏ64.9(b)€clarifies€that€for€purposes€of€part€64,€the€records€to€be€maintained€include:Ïmonitoring€data,€monitor€performance€data,€corrective€actions€taken,€the€written€qualityÏimprovement€plan€and€related€implementation€activities,€and€other€supportingÏinformation€required€to€be€maintained€under€part€64.€€The€Agency€notes€that€the€part€64Ïrequirement€to€keep€these€records€is€not€a€separate€recordkeeping€requirement.€€TheÏAgency€believes€all€of€these€records€are€already€required€to€be€maintained€under€theÏgeneral€part€70€provisions,€but€includes€these€specific€types€of€records€in€the€final€ruleÏto€clarify€the€general€part€70€language.€€Ìà  àRecordkeeping€requirements€under€the€final€rule€are€not€significantly€differentÏfrom€those€in€the€1993€EM€proposal.€€Although€the€1993€EM€proposal€did€not€explicitlyÏrefer€to€part€70€recordkeeping€provisions,€its€requirements€were€essentially€aÏrestatement€of€part€70€requirements€in€an€enhanced€monitoring€context.€€Owners€orÏoperators€would€have€been€required€to€maintain€the€same€general€information€requiredÏby€part€70€for€the€same€minimum€period€of€five€years.€€The€preamble€to€the€1993€EMÏproposal€did€state€that€the€requirements€were€"consistent€with€the€minimumÏrecordkeeping€provisions€in€40€CFR€70.6(a)(3)."Ìà  àBoth€the€requirements€of€the€1993€EM€proposal€and€the€currently€applicable€partÏ70€provisions€require€the€maintenance€of€records€for€a€period€of€at€least€five€years€fromÏthe€date€of€the€monitoring€sample,€measurement,€report€or€application.€€A€number€ofÏcommenters€expressed€objections€to€the€five€year€data€retention€period,€arguing€thatÏthe€burden€of€retaining€records€for€such€an€extended€period€was€excessive.€€Among€theÏproposed€alternatives€were€a€3„year€data€retention€period,€consistent€with€the€Acid€RainÏProgram,€or€a€shorter€period€for€records€covering€periods€for€which€there€were€noÏdeviations.€€The€EPA€had€included€the€5„year€period€in€the€1993€EM€proposal€to€beÐ ,`'8 Ðconsistent€with€the€minimum€requirements€of€ðð€70.6.€€The€Agency€continues€to€believeÏthat€this€period€is€appropriate,€as€part€70€has€established€the€5„year€retention€period€asÏthe€standard€even€where€less€than€five€years€is€required€in€underlying€rules.€€ForÏexample,€part€70€has€changed€the€record€retention€time€for€NSPS€and€similarÏprovisions,€establishing€the€5„year€period€for€such€provisions.€€By€explicitly€relying€onÏpart€70€recordkeeping€requirements,€the€Agency€has€further€affirmed€theÏappropriateness€of€employing€the€5„year€period€for€part€64€records.Ìà  àSection€64.6(b)€of€the€1993€EM€proposal€stated€that€records€had€to€be€availableÏfor€inspection€at€the€site€of€an€affected€source€or€at€a€different€site€approved€by€theÏpermitting€authority.€€In€addition,€the€proposed€rule€required€that€such€records€beÏmaintained€so€as€to€permit€prompt€submittal€if€requested€by€EPA€or€the€permittingÏauthority.€€A€number€of€commenters€on€the€1993€EM€proposal€and€the€1996€part€64ÏDraft€recommended€that€owners€or€operators€should€be€free€to€decide€where€facilityÏrecords€would€be€kept,€arguing€that€permitting€authority€approval€should€not€be€requiredÏsince€most€facilities€cannot€handle€the€storage€of€the€data€required€by€the€rule.€ÏBecause€the€final€rule€relies€directly€on€the€reporting€and€recordkeeping€requirements€ofÏpart€70,€the€requirement€that€source€owners€get€permitting€authority€approval€for€off„siteÏstorage€of€part€64€records€has€been€deleted.Ìà  àThe€recordkeeping€provisions€of€the€1993€EM€proposal€did€not€specificallyÏaddress€the€form€in€which€records€must€be€maintained.€€Several€commenters€supportedÏthe€idea€of€storing€data€in€a€non„paper€media€such€as€microfiche€or€a€form€of€electronicÏdata€storage.€€They€contended€that€such€storage€methods€would€reduce€the€costs€andÏburdens€associated€with€storing€records€for€the€minimum€5„year€period.€€The€AgencyÏagrees€with€these€comments€and€encourages€the€use€of€alternative€recordkeeping,Ïprovided€appropriate€safeguards€are€adopted€to€insure€the€integrity€and€accessibility€ofÏthe€data€over€time.€€Section€64.9(b)(2)€of€the€final€rule€therefore€explicitly€allows€theÏmaintenance€of€records€on€alternative€media,€such€as€microfilm,€computer€files,Ïmagnetic€tape€disks,€or€microfiche,€so€long€as€the€data€are€readily€available€forÏinspection€and€review€and€the€alternative€format€does€not€conflict€with€other€applicableÐ ,`'8 Ðrecordkeeping€provisions.€€This€approach€is€consistent€with€recent€generalÏrecordkeeping€provisions,€such€as€the€NESHAP€general€provisions€in€40€CFR€63.10(b).€Ìà  àJ.€€òòSection€64.10€„„€Savings€Provisionsóó€Ð €Ð Ðà  àBecause€part€64€requirements€may€overlap€with€many€other€applicableÏrequirements,€ðð64.10€of€the€final€rule€clarifies€that€nothing€in€part€64€is€intended€toÏexcuse€the€owner€or€operator€from€applicable€requirements€under€the€Act€(includingÏemission€limitations€or€standards€as€well€as€other€monitoring€requirements)€or€to€restrictÏthe€authority€of€the€EPA€or€the€permitting€authority€to€impose€additional€monitoringÏunder€the€Act€or€State€law,€as€applicable.€€For€example,€it€would€be€possible€for€aÏsource€to€be€in€compliance€with€its€QIP,€but€out€of€compliance€with€an€applicableÏemission€limitation€or€standard.€€The€owner€of€such€a€source€could€expect€enforcementÏaction€for€violation€of€the€applicable€emission€limitation€or€standard,€even€though€thereÏmay€not€be€a€violation€of€part€64.€€Simply€put,€adherence€to€a€QIP€does€not€insulate€an€Ïowner€or€operator€against€enforcement€action€for€violations€of€an€underlying€emissionÏlimitation€or€standard.€€This€section€also€clarifies€that€the€requirements€may€not€be€usedÏto€justify€the€imposition€of€less€stringent€monitoring€under€other€programs€than€wouldÏotherwise€be€required€under€those€programs.€€For€instance,€in€acting€on€a€new€sourceÏreview€permit€under€title€I€of€the€Act,€the€part€64€requirements€may€not€be€used€to€judgeÏthe€adequacy€of€the€monitoring€in€that€permit;€instead,€the€general€procedures€andÏpractices€under€the€title€I€permit€program€will€be€used.Ìà  àThe€1993€EM€proposal€contained€specific€savings€provisions€in€the€applicabilityÏsection€(then€ðð€64.1)€and€the€permit€application€section€(then€ðð€64.7).€€The€applicabilityÏsavings€provision€in€proposed€ðð€64.1(d)€clarified€that€nothing€in€part€64€was€intended€toÏexcuse€owners€or€operators€from€other€monitoring,€recordkeeping€and€reportingÏrequirements€that€apply€pursuant€to€other€provisions€of€the€Act,€or€to€restrict€theÏauthority€of€the€Administrator€or€permitting€authority€to€impose€additional€or€moreÏrestrictive€monitoring,€recordkeeping€or€reporting€requirements€under€other€provisionsÏof€the€Act.€€The€permit€application€provision€in€proposed€ðð64.7(d)€stated€that€owners€orÏoperators€must€still€comply€with€all€other€permit€application€requirements€andÐ ,`'8 Ðrequirements€established€by€federal€regulations€or€by€permitting€authorities€underÏfederally„approved€permit€programs.€€These€savings€provisions€are€brought€together€inÏa€single€section€of€the€final€rule€without€significant€changes€from€the€original€proposal.Ìà  àSection€64.10€of€the€final€rule€also€states€that€nothing€in€part€64€will€interfere€withÏthe€permitting€authority's€or€EPA's€ability€to€enforce€against€violations€of€applicableÏrequirements€under€the€Act€or€the€authority€of€a€citizen€to€enforce€against€violationsÏpursuant€to€section€304.€€This€savings€provision€was€added€to€the€final€rule€to€clarify€theÏAgency's€position€on€the€relationship€of€part€64€to€certain€enforcement€issues.€€AÏnumber€of€commenters€requested€that€EPA€include€a€provision€that€would€shield€Ïowners€or€operators€who€comply€with€part€64€from€enforcement€for€violations€of€theirÏemission€limits.€€As€discussed€in€Section€I.E.3.,€the€Agency€disagrees€with€this€concept.€ÏIn€cases€where€the€part€64€data€indicate€noncompliance€with€emission€limits,€includingÏexceedances,€permitting€authorities€and€the€Agency€will€be€able€to€take€enforcementÏaction.€€In€other€cases,€where€the€part€64€monitoring€indicates,€but€does€not€directlyÏestablish,€the€compliance€status€of€a€source,€the€reasonable€assurance€of€complianceÏbased€on€part€64€data€does€not€prohibit€the€Agency€from€taking€appropriateÏinvestigatory€or€enforcement€steps€when€noncompliance€is€shown€by€other€means.€ÏThis€same€point€was€clarified€in€the€discussions€accompanying€both€the€1995€and€1996Ïpart€64€Drafts.€€Ìà  àK.€€òòRevisions€to€40€CFR€Part€70€and€Part€71óóÐ h¸& Ðà  àThe€final€rule€includes€revisions€to€parts€70€and€71€to€clarify€the€relationshipÏbetween€part€64€and€the€operating€permits€program.€€These€revisions€are€outlinedÏbelow.Ìà  à1.€€òòMonitoring€Requirementsóó€Ð %X . Ðà  àThe€revisions€to€part€70€allow€for€streamlining€multiple€monitoring€requirements€ifÏthe€streamlined€monitoring€is€able€to€assure€compliance€at€least€to€the€same€extent€asÏthe€applicable€requirements€not€included€as€a€result€of€the€streamlining.€€The€AgencyÏnotes€that€the€language€in€these€revisions€is€designed€to€be€consistent€with€aÏdiscussion€in€section€A.5.€of€White€Paper€2€(See€docket€item€VI„I„2)€concerning€theÐ ,`'8 Ðpossibility€of€streamlining€applicable€monitoring€and€testing€requirements€("ðð70.6(a)(3)Ïappears€to€restrict€streamlining€by€requiring€that€all€"applicable"€monitoring€.€.€.Ïrequirements€be€placed€in€the€permit.€.€.€.€The€EPA€intends€to€revise€part€70€to€reflectÏthis€understanding€in€a€future€rulemaking.").€€The€Agency€indicated€in€the€1996€part€64ÏDraft€that€it€intended€to€fulfill€its€intent€to€modify€part€70€as€discussed€in€White€Paper€2Ïby€including€the€appropriate€revisions€to€ðð70.6(a)(3)(i)€in€conjunction€with€the€part€64Ïrulemaking.€€Because€the€Agency€received€strong€support€for€this€proposed€action€andÏno€negative€comments,€the€Agency€has€proceeded€to€add€this€part€70€revision€(and€theÏcorresponding€revision€to€part€71)€as€part€of€this€rulemaking.Ìà  à2.€òòCompliance€Certification€Requirementsóó€Ð X¨  Ðà  àTo€tailor€compliance€certification€to€the€monitoring€imposed€by€part€64,€EPA€hasÏrevised€ðð70.6(c)(5)(iii)€(and€ðð€71.6(c)(5)(iii))€so€that€a€compliance€certification€includesÏthe€following€elements.Ìà  àFirst,€the€permit€conditions€being€certified€must€be€identified.€€Second,€theÏmethod(s)€and€other€information€used€to€determine€compliance€status€of€each€term€andÏcondition€must€be€identified.€€These€method(s)€will€have€to€include€at€a€minimum€anyÏtesting€and€monitoring€methods€identified€in€ðð70.6(a)(3)€that€were€conducted€during€theÏrelevant€time€period.€€In€addition,€if€the€owner€or€operator€knows€of€other€materialÏinformation€(i.e.,€information€beyond€required€monitoring€that€has€been€specificallyÏassessed€in€relation€to€how€the€information€potentially€affects€compliance€status),€thatÏinformation€must€be€identified€and€addressed€in€the€compliance€certification.€€ThisÏrequirement€merely€emphasizes€the€general€prohibition€in€section€113(c)(2)€of€the€ActÏon€knowingly€making€a€false€certification€or€omitting€material€information€and€theÏgeneral€criminal€section€on€submitting€false€information€to€the€government€codified€atÏ18€USC€1001.€€The€revised€part€70€provision€does€not€impose€a€duty€on€the€owner€orÏoperator€to€assess€every€possible€piece€of€information€that€may€have€someÏundetermined€bearing€on€compliance.€€The€description€of€the€methods€relied€on€by€theÏsource€owner€also€will€have€to€indicate€whether€the€methods€provide€continuous€orÏintermittent€data.€€In€accordance€with€section€114€of€the€Act€that€specifies€that€theÐ ,`'8 Ðcertification€include€whether€compliance€is€continuous€or€intermittent,€the€Agency€willÏinterpret€the€compliance€certification€that€is€based€on€monitoring€that€providesÏintermittent€data€as€compliance€on€an€intermittent€basis.Ìà  àThird,€the€responsible€official€will€have€to€certify€compliance€based€on€the€resultsÏof€the€identified€methods.€€The€certification€must€state€the€compliance€status€with€theÏpart€70€permit,€taking€into€account€any€deviations€and€noting€as€possible€exceptions€toÏcompliance€any€deviations€or€excursions/exceedances€as€defined€in€part€64€or€otherÏunderlying€applicable€requirements.€€Because€ð ðdeviationðð€was€defined€under€part€71€asÏoriginally€promulgated,€the€revisions€to€part€71€incorporate€the€concepts€of€excursionÏand€exceedance€into€the€ðð€71.6(a)(3)€definition€of€ð ðdeviation.ðð€€Therefore,€unlike€the€partÏ70€revisions,€the€revised€compliance€certification€provision€in€part€71€refers€only€toÏð ðdeviations.ððÌà  àThe€owner€or€operator€may€include€information€in€the€certification€to€documentÏthat€compliance€was€achieved€during€any€periods€in€which€a€possible€exception€isÏnoted€(such€as€information€that€an€excursion€or€exceedance€occurred€during€a€period€ofÏstartup€or€shutdown€for€which€compliance€with€an€emission€limitation€or€standards€wasÏexcused).€The€requirement€to€take€into€account€deviations,€excursions,€andÏexceedances€together€with€the€requirement€to€identify€whether€the€method€usedÏprovides€continuous€or€intermittent€data€ensures€that€the€compliance€certification€willÏshow€whether€compliance€is€continuous€or€intermittent.€For€example,€a€complianceÏcertification€based€on€a€method€providing€intermittent€data€or€that€notes€any€deviationsÏor€certain€possible€exceptions€to€compliance€as€a€result€of€exceedances€or€excursionsÏbased€on€monitoring€required€by€this€rule€will€be€interpreted€as€showing€intermittentÏcompliance.€The€Agency€does€not€interpret€a€certification€of€intermittent€compliance€toÏÔ% € Ônecessarily€mean€that€the€responsible€official€is€certifying€that€there€are€periods€ofÏnoncompliance.€€Ô% € ÔSuch€a€certification€can€mean€€that€there€are€periods€of€time€in€whichÏthe€sourceððs€compliance€status€is€unknown.€€When€a€responsible€official€certifiesÏcompliance€based€on€a€method€providing€continuous€data€and€no€deviations,Ïexcursions,€or€exceedances€have€occurred€(or€all€such€occurrences€have€beenÐ ,`'8 Ðadequately€addressed€by€other€information,€as€explained€above),€this€will€Ô% €- Ôbe€interpretedÏas€a€certification€of€continuous€compliance.€€These€provisions€implement€theÏrequirements€in€section€114(a)(3)(B),€(C),€and€(D)€that€the€certification€include€theÏmethods€used€to€determine€the€compliance€status€and€whether€compliance€isÏcontinuous€or€intermittent.Ìà  àThe€certification€also€will€have€to€include€any€other€facts€required€by€theÏpermitting€authority.€€This€requirement€is€already€included€in€parts€70€and€71€asÏpromulgated.€€Finally,€the€Agency€notes€that€the€rule€allows€the€owner€or€operator€toÏcross„reference€the€permit€or€previous€reports€to€identify€the€various€informationÏelements€required€in€a€certification.€€This€provision€allows€the€actual€certification€to€be€aÏshort,€concise€compliance€statement€that€is€not€burdened€by€restating€detailedÏinformation€that€has€already€been€provided.€€Ìà  àThe€goal€of€part€64€is€to€provide€improved€compliance€data€for€significantÏemissions€units€at€title€V€major€sources.€€This€improvement€will€in€turn€provideÏadditional€data€for€the€owner€or€operator€to€rely€on€in€certifying€compliance.€€AsÏdiscussed€in€Section€I.C.€above,€EPA€believes€that€the€part€64€data€will€provide€aÏreliable€means€for€owners€or€operators€to€reach€a€conclusion€about€their€complianceÏstatus.€€However,€since€the€part€64€data€will€not€necessarily€always€provide€unequivocalÏproof€of€compliance€or€noncompliance€(as€a€performance€or€compliance€test€methodÏwould),€there€will€be€excursions€or€exceedances€identified€through€part€64€which€raiseÏquestions€about€compliance€status€but€may€not€confirm€conclusively€that€a€source€is€inÏnoncompliance.€€The€existence€of€these€occurrences€only€indicates€the€need€to€reviewÏthe€compliance€information€provided€in€order€to€determine€what,€if€any,€compliance€orÏenforcement€actions€may€be€warranted.€à  àÐ %X . Ðà  àThese€changes€to€parts€70€and€71€have€been€developed€based€on€theÏprovisions€included€in€the€1993€EM€proposal,€as€supplemented€by€the€December€1994Ïreopened€comment€period,€as€well€as€based€on€the€1995€and€1996€part€64€Drafts.€€TheÏreporting€requirements€of€the€1993€EM€proposal€would€have€required€that€a€responsibleÏofficial€for€an€affected€source€use€enhanced€monitoring€data€as€the€basis€for€theÐ ,`'8 Ðrequired€title€V€compliance€certification.€€The€1993€EM€proposal€also€required€the€use€ofÏany€other€data€collected€for€the€purpose€of€determining€compliance€during€theÏmonitoring€period.€€These€provisions€were€the€subject€of€significant€public€comment.€ÏSome€of€these€comments€seemed€to€be€based€on€the€belief€that€the€proposed€ruleÏcreated€a€separate€compliance€certification€requirement.€€The€EPA€always€intended€forÏthese€provisions€to€operate€within€the€title€V€compliance€certification€process,Ïestablishing€additional€requirements€that€units€subject€to€part€64€had€to€meet€in€order€toÏsatisfy€title€V€compliance€certification€requirements.€€To€clarify€this€approach,€theÏcompliance€certification€provisions€in€the€final€rule€were€removed€from€part€64.€€Instead,Ïðð€70.6(c)(5)(iii)€of€part€70€(and€the€corresponding€section€in€part€71)€has€been€amendedÏto€reflect€the€requirements€of€compliance€certification€for€those€units€subject€to€part€64.Ìà  àIn€addition,€as€discussed€above€in€Section€I.C.,€EPA€reopened€the€publicÏcomment€period€on€the€1993€EM€proposal€and€stated€EPA's€intent€that€it€mayÏreconsider€how€to€interpret€the€meaning€of€"continuous€or€intermittent"€in€the€context€ofÏcertifying€compliance.€€The€revisions€to€parts€70€and€71€in€today's€rulemaking€reflect€theÏposition€taken€by€EPA€in€that€December€1994€notice.€€Finally,€the€revisions€reflect€theÏposition€taken€in€the€final€part€64€rule€that€monitoring€data€that€do€not€constitute€formalÏperformance€or€compliance€test€method€data€may€still€be€used€by€the€owner€or€operatorÏto€determine€compliance€status€and€to€note€any€possible€exceptions€to€compliance€thatÏare€indicated€by€the€monitoring.€€This€interpretation€is€consistent€with€the€existing€partÏ70€which€specifically€references€the€fact€that€a€certification€must€consider€all€of€theÏrelevant€data€under€ðð€70.6(a)(3),€which€includes€non„test€method€monitoring€data.€ÏBecause€of€the€possible€misinterpretations€of€the€existing€language,€EPA€believes€thatÏclarifying€the€compliance€certification€requirements€in€conjunction€with€promulgatingÏpart€64€is€appropriate.ÌIII.€€òòAdministrative€RequirementsóóÐ Ø'(#2 Ðà  àA.€€òòDocketóóÐ @)$4 Ðà  àThe€EPA€is€relying€on€the€procedural€requirements€of€section€307(d)€of€the€ActÏfor€the€regulations.€€In€accordance€with€those€requirements,€EPA€has€establishedÐ ,`'8 Ðdocket€A„91„52€for€the€regulations.€€The€docket€is€an€organized€and€complete€file€of€allÏthe€information€submitted€to,€or€otherwise€considered€by,€EPA€in€the€development€ofÏthis€rulemaking.€€The€principal€purposes€of€the€docket€are:€(1)€to€allow€interested€partiesÏa€means€to€identify€and€locate€documents€so€that€they€can€effectively€participate€in€theÏrulemaking€process,€and€(2)€to€serve€as€the€record€in€case€of€judicial€review.€€TheÏdocket€is€available€for€public€inspection€at€EPA's€Air€Docket,€which€is€listed€under€theÏò òADDRESSESó ó€section€of€this€notice.€€Ð  p  Ðà  àB.€€òòExecutive€Order€12866óóÐ ˆØ  Ðà  àUnder€Executive€Order€12866€(58€FR€51735,€October€4,€1993),€EPA€mustÏdetermine€whether€a€regulatory€action€is€"significant"€and€therefore€subject€to€Office€ofÏManagement€and€Budget€(OMB)€review€and€the€requirements€of€the€Executive€Order.€ÏThe€order€defines€"significant€regulatory€action"€as€one€that€is€likely€to€result€in€a€ruleÏthat€may:Ìà  à(1)€have€an€annual€effect€on€the€economy€of€$100€million€or€more€or€adverselyÏaffect€in€a€material€way€the€economy,€a€sector€of€the€economy,€productivity,Ïcompetition,€jobs,€the€environment,€public€health€or€safety,€or€State,€local,€or€tribalÏgovernments€or€communities;Ìà  à(2)€create€a€serious€inconsistency€or€otherwise€interfere€with€an€action€taken€orÏplanned€by€another€agency;Ìà  à(3)€materially€alter€the€budgetary€impact€of€entitlements,€grants,€user€fees,€orÏloan€programs€or€the€rights€and€obligations€of€recipients€thereof;€orÌà  à(4)€raise€novel€legal€or€policy€issues€arising€out€of€legal€mandates,€theÏPresident's€priorities,€or€the€principles€set€forth€in€the€Executive€Order.Ìà  àEPA€assumes€as€the€baseline€for€its€analysis€of€part€64€that€affected€emissionsÏsources€are€currently€in€compliance€with€their€underlying€emission€standards€100Ïpercent€of€the€time.€€Thus,€there€are€no€emissions€reductions€benefits€(and€health€andÏwelfare€benefits),€nor€costs€for€additional€control€technology,€operation€andÏmaintenance,€associated€with€part€64.€€EPA€believes€that€some€sources,€in€response€toÏmonitoring€data€gathered€under€part€64,€may€indeed€have€to€make€investments€inÐ ,`'8 Ðcontrol€equipment€technology,€operation€and€maintenance€to€reduce€emissions€toÏcomply€with€their€underlying€emissions€standards;€however,€EPA€believes€theseÏemission€reductions€benefits€and€costs€are€not€attributable€to€part€64€„„€but€to€theÏunderlying€emissions€standards.€€As€such,€EPA€has€not€estimated€the€benefits€ñÊ)ñœñÊ)ññÅ)ñorñÅ)ññÅ)ñ›ofñÅ)ññÊ)ñ›ñÊ)ñ€costsÏthat€may€result€from€such€actions€to€reduce€emissions.Ìà  àEPA€has€estimated€the€cost€of€part€64€to€include€the€cost€of€development€andÏimplementation€of€CAM€plans,€$50€million€per€year.€($1995).€€This€includes€the€cost€ofÏdetermining€the€monitoring€approach€and€implementing€the€approved€design,€includingÏreporting,€recordkeeping,€and€certification€activities.Ìà  àPursuant€to€the€terms€of€Executive€Order€12866,€it€has€been€determined€that€thisÏrule€is€a€"significant€regulatory€action"€due€to€its€policy€implications€and€was€submittedÏto€OMB€for€review.€€Any€written€comments€from€OMB€to€EPA€and€any€written€EPAÏresponse€to€those€comments€are€included€in€the€docket.€€The€docket€is€available€forÏpublic€inspection€at€EPA's€Air€Docket€Section,€which€is€listed€in€the€ò òADDRESSESó óÐ øH Ðsection€of€this€preamble.€€The€Regulatory€Impact€Analysis€(RIA)€for€this€rulemaking€isÏincluded€in€the€docket.Ìà  àC.€€òòUnfunded€Mandates€Actóóà0 À àÐ0€ À(#À(# ÐÔ% € Ôà  àSection€202€of€the€Unfunded€Mandates€Reform€Act€of€1995€("UnfundedÏMandates€Act")€(signed€into€law€on€March€22,€1995)€requires€that€the€Agency€mustÏprepare€a€budgetary€impact€statement€before€promulgating€a€rule€that€includes€aÏFederal€mandate€that€may€result€in€expenditure€by€State,€local,€and€tribal€governments,Ïin€the€aggregate,€or€by€the€private€sector,€of€$100€million€or€more€in€any€one€year.€€TheÏbudgetary€impact€statement€must€include:€(i)€identification€of€the€Federal€law€underÏwhich€the€rule€is€promulgated;€(ii)€a€qualitative€and€quantitative€assessment€ofÏanticipated€costs€and€benefits€of€the€Federal€mandate€and€an€analysis€of€the€extent€toÏwhich€such€costs€to€State,€local,€and€tribal€governments€may€be€paid€with€FederalÏfinancial€assistance;€(iii)€if€feasible,€estimates€of€the€future€compliance€costs€and€anyÏdisproportionate€budgetary€effects€of€the€mandate;€(iv)€if€feasible,€estimates€of€theÏeffect€on€the€national€economy;€and€(v)€a€description€of€the€Agency's€prior€consultationÐ ,`'8 Ðwith€elected€representatives€of€State,€local,€and€tribal€governments€and€a€summary€andÏevaluation€of€the€comments€and€concerns€presented.€€Section€203€requires€the€AgencyÏto€establish€a€plan€for€obtaining€input€from€and€informing,€educating,€and€advising€anyÏsmall€governments€that€may€be€significantly€or€uniquely€impacted€by€the€rule.Ìà  àUnder€section€205€of€the€Unfunded€Mandates€Act,€EPA€must€identify€andÏconsider€a€reasonable€number€of€regulatory€alternatives€before€promulgating€a€rule€forÏwhich€a€budgetary€impact€statement€must€be€prepared.€€The€Agency€must€select€fromÏthose€alternatives€the€most€cost„effective€and€least€burdensome€alternative€thatÏachieves€the€objectives€of€the€rule€unless€the€Agency€explains€why€this€alternative€isÏnot€selected€or€unless€the€selection€of€this€alternative€is€inconsistent€with€law.€€òòÐ X¨  Ðóóà  àBecause€this€rule€is€not€estimated€to€result€in€the€expenditure€by€State,€local,€andÐ À Ðtribal€governments€and€the€private€sector,€in€aggregate,€of€over€$100€million€per€year,ÏEPA€is€not€required€under€UMRA€to€develop€a€budgetary€impact€statement€or€toÏundertake€the€analysis€under€section€205.€€However,€because€certain€optionsÏconsidered€by€EPA€would€have€resulted€in€a€total€cost€in€excess€of€$100€million,€EPAÏdid€prepare€such€statement€and€analysis€and€they€are€€included€as€part€of€theÏRegulatory€Impact€Analysis,€which€is€included€in€the€docket.Ìà  àTo€the€extent€governmental€entities€are€affected€by€the€rule€as€permittingÏauthorities,€the€costs€of€the€rule€are€offset€or€mitigated€by€receipt€of€title€V€permit€fees,Ïsince€thñÊ)ñÔ% € ÔñÊ)ñe€rule€affects€only€title€V€sources.€€Part€70€requires€sources€of€pollution€to€payÏpermit€fees€sufficient€to€offset€the€costs€incurred€by€the€permitting€authority€in€managingÏits€operating€permits€program.€€Since€part€64€introduces€additional€requirements€forÏpermitting€authorities,€these€incremental€costs€must€be€incorporated€into€the€operatingÏpermit€fee.€€Because€Permitting€Authority€costs€may€be€transferred€to€sources€ofÏpollution€through€the€permit€fee,€the€administrative€and€recordkeeping€cost€of€thisÏrulemaking€to€State,€local,€and€tribal€governments€is,€for€practical€purposes,€zero.€€EPAÏhas€also€concluded€that,€to€the€extent€small€governments€are€impacted€by€thisÏregulation€because€they€are€major€stationary€sources,€the€impact€will€not€be€significant.€ÏòòSeeóó€Section€III.E.€As€a€result,€UMRA€requirements€do€not€apply€to€this€rulemaking.Ð ,`'8 Ðà  àD.€€òòPaperwork€Reduction€ActóóÐ ° Ðà  àThe€information€collection€requirements€in€this€rule€have€been€submitted€forÏapproval€to€the€Office€of€Management€and€Budget€(OMB)€under€the€PaperworkÏReduction€Act,€44€U.S.C.€3501€òòet€seq.óó€€An€Information€Collection€Request€(ICR)Ð è8 Ðdocument€has€been€prepared€by€EPA€(ICR€No.€1663.02)€and€a€copy€may€be€obtainedÏfrom€Sandy€Farmer,€ñÊ)ñ¢ñÊ)ñOPPEñÊ)ñ£ñÊ)ñ€Regulatory€Information€Division;€U.S.€EnvironmentalÏProtection€Agency€(2137);€401€M€St.,€ñÊ)ñ¢ñÊ)ñS.W.ñÊ)ñ£ñÊ)ñ;€Washington,€DC€20460€or€by€calling€(202)Ï260„2740.€€The€information€requirements€are€not€effective€until€OMB€approves€them.Ìà  àThe€information€is€planned€to€be€collected€to€fulfill€requirements€in€both€the€title€VÏoperating€permit€program€and€part€64€programs.€€The€operating€permit€programÏrequires€owners€or€operators€of€units€that€emit€air€pollutants€to€submit€annualÏcompliance€certifications,€to€submit€monitoring€results€at€least€semiannually,€and€toÏreport€deviations€promptly.€€Part€64€requires€monitoring€for€certain€emissions€units€atÏmajor€sources€subject€to€the€title€V€operating€permits€program.€€Therefore,€the€collectionÏof€information€is€mandated€by€the€Act.€€Generally,€emissions€data€cannot€be€consideredÏconfidential€under€the€Act.€€However,€to€the€extent€allowable€under€the€Act,€theÏcollection€of€information€will€be€entitled€to€confidential€treatment€in€accordance€withÏEPA's€procedures€established€in€40€CFR€part€2.Ìà  àThe€part€64€rulemaking€requires€monitoring,€compliance€certification,€periodicÏreporting,€and€recordkeeping€information€collections€by€owners€and€operators€of€title€VÏsources€with€controlled€pollutant„specific€emissions€units€that€have€a€pre„controlÏpotential€to€emit€major€amounts€of€regulated€air€pollutants.€€€Owners€or€operators€ofÏaffected€emissions€units€will€use€the€information€as€the€basis€for€the€complianceÏcertification€required€by€the€operating€permit€program,€and€as€the€basis€for€complianceÏassurance€monitoring€reports.€€Sources€may€also€use€the€information€to€determine€andÏmaintain€the€efficiency€of€process€or€emissions€control€devices.€€Permitting€authoritiesÏwill€use€the€information€to€determining€acceptability€of€proposed€compliance€assuranceÏmonitoring,€to€assess€compliance,€to€input€into€reports€to€other€agencies,€and,€whenÏnecessary,€in€enforcement€proceedings€and€Quality€Improvement€Plans€(QIPs).€€TheÐ ,`'8 Ðinformation€may€be€used€by€other€entities,€including€federal€entities€and€citizens.€€EPAÏwill€use€the€information€to€perform€activities€such€as€providing€oversight€and€guidanceÏto€State€and€local€agencies,€and€to€assess€requests€for€alternative€monitoring.Ìà  àThe€implementation€schedule€for€part€64€will€phase„in€implementation€over€aÏnumber€of€years,€so€that€not€all€sources€will€have€reporting€and€recordkeeping€impactsÏin€the€first€three€years€of€implementation.€€The€estimated€annualized€cost€of€CAM€on€aÏnational€level€for€the€first€three€years€of€implementation€is€$7,891,000€(in€1995€dollars).€ÏThe€annual€average€total€capital€and€operation€and€maintenance€costs€are€estimated€atÏ$1,230,000€(in€1995€dollars)€for€the€first€three€years€of€implementation.€€The€annualÏaverage€burden€hours€for€the€first€three€years€of€implementation€are€estimated€atÏ147,560.€€The€Agency€estimated€the€incremental€reporting€burden€for€this€collection€toÏaverage€1€hour€annually€per€response,€and€to€require€between€26€and€390€hoursÏannually€for€recordkeeping€per€response.€€This€includes€time€for€conducting€activitiesÏover€and€above€the€requirements€of€part€70€such€as€an€accounting€of€the€number,Ïduration€and€cause€of€monitor€downtime€incidents€and€exceedances,€a€reporting€ofÏcorrective€actions,€and€keeping€records€of€data€used€to€document€the€adequacy€ofÏmonitoring.€€Note€that€the€average€burden€hours€and€costs€represent€those€estimatedÏfor€the€first€three€years€of€the€ruleððs€implementation€during€which€a€relatively€smallÏpercentage€of€the€affected€pollutant„specific€emission€units€will€be€subject€to€part€64Ïrequirements.€€More€units€will€be€affected€per€year€in€the€six€to€eight€years€following€theÏruleððs€publication€and€the€reporting€and€recordkeeping€burden€will€also€increase.€€SeeÏthe€RIA€for€more€discussion€of€the€costs€associated€with€years€beyond€the€first€threeÏyears.Ìà  àBurden€means€the€total€time,€effort,€or€financial€resources€expended€by€personsÏto€generate,€maintain,€retain,€or€disclose€or€provide€information€to€or€for€a€FederalÏagency.€€This€includes€the€time€needed€to€review€instructions;€develop,€acquire,€install,Ïand€utilize€technology€and€systems€for€the€purposes€of€collecting,€validating,€andÏverifying€information,€processing€and€maintaining€information,€and€disclosing€andÏproviding€information;€adjust€the€existing€ways€to€comply€with€any€previously€applicableÐ ,`'8 Ðinstructions€and€requirements;€train€personnel€to€be€able€to€respond€to€a€collection€ofÏinformation;€and€transmit€or€otherwise€disclose€the€information.Ìà  àòò€óóAn€Agency€may€not€conduct€or€sponsor,€and€a€person€is€not€required€to€respondÐ €Ð Ðto€a€collection€of€information€unless€it€displays€a€currently€valid€OMB€control€number.€ÏThe€OMB€control€numbers€for€EPAððs€regulations€are€listed€in€40€CFR€Part€9€and€48ÏCFR€Chapter€15.€€Ìà  àSend€comments€on€the€Agencyððs€need€for€this€information,€the€accuracy€of€theÏprovided€burden€estimates,€and€any€suggested€methods€for€minimizing€respondentÏburden,€including€through€the€use€of€automated€collection€techniques€to€the€Director,ÏñÊ)ñ¢ñÊ)ñOPPEñÊ)ñ£ñÊ)ñ€Regulatory€Information€Division;€U.S.€Environmental€Protection€Agency€(2137);Ï401€M€St.,€S.W.;€Washington€DC€20460;€and€to€the€Office€of€Information€andÏRegulatory€Affairs,€Office€of€Management€and€Budget,€725€17òòthóó€St.,€N.W.€Washington,Ð (x ÐDC€20503,€marked€ð ðAttention:€Desk€Officer€for€EPA.ðð€€Comments€are€requested€withinÏ[òòInsert€date€30€days€after€publication€in€the€Federal€Registeróó].€€Include€the€ICR€numberÐ øH Ðin€any€correspondence.€€Ìà  àE.€€òòRegulatory€Flexibility€ActóóÐ È Ðà  àThe€Agency€has€determined€that€it€is€not€necessary€to€prepare€a€regulatoryÏflexibility€analysis€in€connection€with€this€rule.€€A€screening€analysis€was€prepared€toÏexamine€the€potential€for€significant€adverse€impacts€on€small€entities€associated€withÏspecific€monitoring€and€certification€provisions.€€For€small€governmental€entities€thatÏmay€own€or€operate€affected€sources,€EPA€determined€that€the€most€likely€smallÏgovernment€and€organization€sources€affected€by€the€rule€are€municipal€power€plantsÏand€hospitals.€€After€analysis,€EPA€determined€that,€given€the€relatively€low€numbers€ofÏimpacted€sources(140€small€government€utilities€and€70€small€organizationsÏ(hospitals)),€the€low€percentage€of€impacted€sources€out€of€the€total€number€of€similarÏsources€(11€„€18€percent€of€small€government€utilities€and€3€percent€of€hospitals),€andÏthe€low€cost€impacts€associated€with€CAM€(assumed€similar€to€the€cost€impact€on€smallÏñÊ)ñœñÊ)ñbusiness€as€discussed€below),ñÊ)ñ›ñÊ)ñ€there€will€not€be€a€significant€impact€upon€a€substantialÏnumber€of€small€ñÊ)ñœñÊ)ñgovernments€and€organizations.ñÊ)ñ›ñÊ)ñ€€See€Section€V€of€the€RegulatoryÐ ,`'8 ÐImpact€Analysis€included€in€the€docket.€€ñÊ)ñœñÊ)ñNevertheless,ñÊ)ñ›ñÊ)ñ€€in€developing€the€rule,€EPA€didÏprovide€numerous€opportunities€for€consultation€with€interested€parties,€including€State,Ïlocal,€and€tribal€governments,€at€public€conferences€and€meetings.€€The€EPA€evaluatedÏthe€comments€and€concerns€expressed,€and€the€rule€reflects,€to€the€extent€consistentÏwith€the€Act,€those€comments€and€concerns.€€Most€importantly,€the€Agency€receivedÏcomments€from€approximately€80€representatives€of€municipally„owned€electric€utilitiesÏthat€suggested€exemptions€for€small€municipal€utility€units.€€In€response,€the€ruleÏincludes€an€exemption€for€certain€municipally„owned€electric€utility€units€that€could€beÏaffected€by€the€rule.€€These€procedures€ensured€State€and€local€governments€anÏopportunity€to€give€meaningful€and€timely€input€and€obtain€information,€education€andÏadvice€on€compliance.€ÌñÊ)ñœñÊ)ñà  àEPAñÊ)ñ›ñÊ)ñ€estimates€4,957€small€firms€nationwide€could€be€affected€by€CAM.€€A€totalÏof€40€affected€small€firms€within€this€group€could€have€a€potential€impact€over€oneÏpercent€of€average€annual€revenues.€€The€ratio€is€0.0087,€or€less€than€one€percent,Ïwhich€represents€the€percent€of€small€affected€firms€that€may€experience€greater€than€aÏ1€percent€(but€less€than€a€3€percent)€increase€in€costs€due€to€CAM.€€EPA€believes€thatÏthese€estimates€of€the€number€of€firms€affected€and€the€level€of€cost€impact€areÏoverstated€due€to€several€conservative€assumptions€in€the€analysis.€€TheseÏassumptions€are€described€in€Chapter€5€of€the€Regulatory€Impact€Analysis.€€Given€theÏconservativeness€of€this€assessment€and€the€fact€that€99€percent€of€the€affected€smallÏbusinesses€are€expected€to€have€impacts€of€less€than€1€percent€and€no€small€businessÏis€likely€to€experience€costs€exceeding€3€percent,€the€EPA€concludes€that€CAM€will€notÏhave€a€significant€economic€impact€on€a€substantial€number€of€small€businesses.€€InÏaddition,€EPA€also€notes€that€the€use€of€general€permits€under€title€V€and€assistanceÏthrough€the€small€business€assistance€program€provisions€of€title€V€will€assist€inÏreducing€the€impacts€of€the€part€64€requirements€on€small€businesses.€€ñÊ)ñœñÊ)ñÌà  àAccordingly,€considering€all€of€the€above€information,€EPA€concludes€that€thisÏrule€will€not€have€a€significant€economic€impact€on€a€substantial€number€of€smallÏentities.ñÊ)ñ›ñÊ)ñÐ ,`'8 ÐñÊ)ñœñÊ)ññÊ)ñ›ñÊ)ñà  àF.€€òòSubmission€to€Congress€and€the€General€Accounting€OfficeóóÐ ° Ðà  àUnder€5€U.S.C.€801(a)(1)(A)€as€added€by€the€Small€Business€RegulatoryÏEnforcement€Fairness€Act€of€1996,€EPA€submitted€a€report€containing€this€rule€andÏother€required€information€to€the€U.S.€Senate,€the€U.S.€House€of€Representatives,€andÏthe€Comptroller€General€of€the€General€Accounting€Office€prior€to€publication€of€the€ruleÏin€todayððs€òòFederal€Registeróó.€€This€rule€is€not€a€ð ðmajor€ruleðð€as€defined€by€U.S.C.€804(2).Ð ¸   ÐòòList€of€SubjectsÐ  p  Ð40€CFR€Part€64óóÐ ˆØ  ÐAir€pollution€control,€Monitoring,€Operating€permits,€Reporting€and€recordkeepingÏrequirements.Ìòò40€CFR€Part€70óóÐ À ÐAir€pollution€control,€Monitoring,€Operating€permits,€Reporting€and€recordkeepingÏrequirements.ÌñÊ)ñœñÊ)ñòòÌÌóóCompliance€Assurance€Monitoring€„„€Page€138€of€175òòÐ È Ðà  àà  àà « àà A àà ¸ àÌ40ñÊ)ñ›ñÊ)ñ€CFR€Part€71óóÐ ˜è" ÐAir€pollution€control,€Monitoring,€Operating€permits,€Reporting€and€recordkeepingÏrequirements.ÌÓ€Ó_________________€€€€€€€€_________________________________ÌDateà  àà  àà « àà A àà ¸ àà  àCarol€M.€Browner,Ð À!) Ðà  àà  àà « àà A àà ¸ àà  àñÊ)ñœñÊ)ñAdministratorñÊ)ñ›ñÊ)ñ