Approval of Plan of the Commonwealth of Pennsylvania; Clean Air Mercury Rule, 52325-52332 [E7-18057]
Download as PDF
Federal Register / Vol. 72, No. 177 / Thursday, September 13, 2007 / Proposed Rules
ENVIRONMENTAL PROTECTION
AGENCY
40 CFR Parts 52 and 97
[EPA–R03–OAR–2007–0448; FRL–8465–7]
Approval and Promulgation of Air
Quality Implementation Plans; West
Virginia; Clean Air Interstate Rule
Environmental Protection
Agency (EPA).
ACTION: Proposed rule.
ebenthall on PRODPC61 with PROPOSALS
AGENCY:
SUMMARY: EPA proposes to approve the
State Implementation Plan (SIP)
revision submitted on June 8, 2007 by
the State of West Virginia for the Clean
Air Interstate Rule (CAIR) Nitrogen
Oxides (NOX) Annual and NOX Ozone
Season Abbreviated SIP. The
abbreviated SIP revision EPA is
proposing to approve includes West
Virginia’s methodology for allocation of
annual NOX and ozone season NOX
allowances for Phase 1 of CAIR, which
is comprised of control periods 2009
through 2014. EPA is not proposing to
make any changes to the CAIR Federal
Implementation Plan currently in effect
in West Virginia, but is proposing, to the
extent EPA approves West Virginia’s SIP
revision, to amend the appropriate
appendices in the CAIR FIP trading
rules simply to note that approval. The
intended effect of this action is to
reduce NOX emissions in West Virginia
that are contributing to nonattainment
of the 8 hour ozone and PM2.5 National
Ambient Air Quality Standard (NAAQS)
in downwind states. This action is being
taken under section 110 of the Clean Air
Act.
In the Final Rules section of this
Federal Register, EPA is approving the
State’s SIP submittal as a direct final
rule without prior proposal because the
Agency views this as a noncontroversial
submittal and anticipates no adverse
comments. If no adverse comments are
received in response to this action, no
further activity is contemplated. If EPA
receives adverse comments, the direct
final rule will be withdrawn and all
public comments received will be
addressed in a subsequent final rule
based on this proposed rule. EPA will
not institute a second comment period.
Any parties interested in commenting
on this action should do so at this time.
DATES: Comments must be received in
writing by October 15, 2007.
ADDRESSES: Submit your comments,
identified by Docket ID Number EPA–
R03–OAR–2007–0448 by one of the
following methods:
A. www.regulations.gov. Follow the
on-line instructions for submitting
comments.
VerDate Aug<31>2005
15:17 Sep 12, 2007
Jkt 211001
B. E-mail: powers.marilyn@epa.gov.
C. Mail: EPA–R03–OAR–2007–0448,
Marilyn Powers, Acting Branch Chief,
Air Quality Planning Branch, Mailcode
3AP21, U.S. Environmental Protection
Agency, Region III, 1650 Arch Street,
Philadelphia, Pennsylvania 19103.
D. Hand Delivery: At the previouslylisted EPA Region III address. Such
deliveries are only accepted during the
Docket’s normal hours of operation, and
special arrangements should be made
for deliveries of boxed information.
Instructions: Direct your comments to
Docket ID No. EPA–R03–OAR–2007–
0448. EPA’s policy is that all comments
received will be included in the public
docket without change, and may be
made available online at
www.regulations.gov, including any
personal information provided, unless
the comment includes information
claimed to be Confidential Business
Information (CBI) or other information
whose disclosure is restricted by statute.
Do not submit information that you
consider to be CBI or otherwise
protected through www.regulations.gov
or e-mail. The www.regulations.gov Web
site is an ‘‘anonymous access’’ system,
which means EPA will not know your
identity or contact information unless
you provide it in the body of your
comment. If you send an e-mail
comment directly to EPA without going
through www.regulations.gov, your email address will be automatically
captured and included as part of the
comment that is placed in the public
docket and made available on the
Internet. If you submit an electronic
comment, EPA recommends that you
include your name and other contact
information in the body of your
comment and with any disk or CD–ROM
you submit. If EPA cannot read your
comment due to technical difficulties
and cannot contact you for clarification,
EPA may not be able to consider your
comment. Electronic files should avoid
the use of special characters, any form
of encryption, and be free of any defects
or viruses.
Docket: All documents in the
electronic docket are listed in the
www.regulations.gov index. Although
listed in the index, some information is
not publicly available, i.e., CBI or other
information whose disclosure is
restricted by statute. Certain other
material, such as copyrighted material,
is not placed on the Internet and will be
publicly available only in hard copy
form. Publicly available docket
materials are available either
electronically in www.regulations.gov or
in hard copy during normal business
hours at the Air Protection Division,
U.S. Environmental Protection Agency,
PO 00000
Frm 00025
Fmt 4702
Sfmt 4702
52325
Region III, 1650 Arch Street,
Philadelphia, Pennsylvania 19103.
Copies of the State submittal are
available at the West Virginia
Department of Environmental
Protection, Division of Air Quality, 601
57th Street, SE.
FOR FURTHER INFORMATION CONTACT:
Marilyn Powers, (215) 814–2308, or by
e-mail at powers.marilyn@epa.gov.
SUPPLEMENTARY INFORMATION: For
further information, please see the
information provided in the direct final
action, with the same title, that is
located in the ‘‘Rules and Regulations’’
section of this Federal Register
publication. Please note that if EPA
receives adverse comment on an
amendment, paragraph, or section of
this rule and if that provision may be
severed from the remainder of the rule,
EPA may adopt as final those provisions
of the rule that are not the subject of an
adverse comment.
Dated: August 30, 2007.
Donald S. Welsh,
Regional Administrator, Region III.
[FR Doc. E7–17876 Filed 9–12–07; 8:45 am]
BILLING CODE 6560–50–P
ENVIRONMENTAL PROTECTION
AGENCY
40 CFR Part 62
[EPA–R03–OAR–2007–0345; FRL–8467–8]
Approval of Plan of the Commonwealth
of Pennsylvania; Clean Air Mercury
Rule
Environmental Protection
Agency (EPA).
ACTION: Proposed rule.
AGENCY:
SUMMARY: EPA is proposing to approve
a State Plan submitted by the
Commonwealth of Pennsylvania
(Pennsylvania) which addresses the
requirements of EPA’s Clean Air
Mercury Rule (CAMR), which EPA
promulgated on May 18, 2005 and
subsequently revised on June 9, 2006.
EPA is proposing to determine that the
submitted State Plan fully implements
the CAMR requirements for
Pennsylvania.
CAMR requires States to regulate
emissions of mercury (Hg) from large
coal-fired electric generating units
(EGUs). CAMR establishes State budgets
for annual EGU mercury emissions and
requires States to submit State Plans
that ensure that annual EGU mercury
emissions will not exceed the applicable
State budget. States have the flexibility
to choose which control measures to
adopt to achieve the budgets, including
E:\FR\FM\13SEP1.SGM
13SEP1
52326
Federal Register / Vol. 72, No. 177 / Thursday, September 13, 2007 / Proposed Rules
participating in the EPA-administered
CAMR cap-and-trade program.
Pennsylvania chose to adopt a Statespecific plan for the control of mercury
emissions from EGUs within the State
instead of participating in the EPAadministered CAMR cap-and-trade
program. Pennsylvania’s plan includes a
Pennsylvania-specific mercury control
regulation for coal-fired EGUs and other
elements which the State intends to
implement to ensure that Pennsylvania
meets its mercury budget.
Pennsylvania’s state-specific mercury
control regulation establishes annual
mercury emission limitations for EGUs
as part of a Statewide nontradable
mercury allowance program; sets
mercury emissions standards for EGUs;
and includes monitoring,
recordkeeping, reporting and other
provisions.
Comments must be received on
or before October 15, 2007.
ADDRESSES: Submit your comments,
identified by Docket ID Number EPA–
R03–OAR–2007–0345, by one of the
following methods:
1. https://www.regulations.gov: Follow
the on-line instructions for submitting
comments.
2. E-mail: Campbell.Dave@epa.gov.
3. Mail: EPA–R03–OAR–2007–0345,
Dave Campbell, Chief, Permits and
Technical Assessment Branch, Mailcode
3AP11, U.S. Environmental Protection
Agency, Region III, 1650 Arch Street,
Philadelphia, Pennsylvania 19103.
4. Hand Delivery or Courier: At the
previously-listed EPA Region III
address. Such deliveries are only
accepted during the Regional Office’s
normal hours of operation.
Instructions: Direct your comments to
Docket ID No. EPA–R03–OAR–2007–
0345. EPA’s policy is that all comments
received will be included in the public
docket without change and may be
made available online at
www.regulations.gov, including any
personal information provided, unless
the comment includes information
claimed to be Confidential Business
Information (CBI) or other information
whose disclosure is restricted by statute.
Do not submit through
www.regulations.gov or e-mail,
information that you consider to be CBI
or otherwise protected. The
www.regulations.gov Web site is an
‘‘anonymous access’’ system, which
means EPA will not know your identity
or contact information unless you
provide it in the body of your comment.
If you send an e-mail comment directly
to EPA without going through
www.regulations.gov, your e-mail
address will be automatically captured
ebenthall on PRODPC61 with PROPOSALS
DATES:
VerDate Aug<31>2005
15:17 Sep 12, 2007
Jkt 211001
and included as part of the comment
that is placed in the public docket and
made available on the Internet. If you
submit an electronic comment, EPA
recommends that you include your
name and other contact information in
the body of your comment and with any
disk or CD–ROM you submit. If EPA
cannot read your comment due to
technical difficulties and cannot contact
you for clarification, EPA may not be
able to consider your comment.
Electronic files should avoid the use of
special characters and any form of
encryption and should be free of any
defects or viruses. For additional
information about EPA’s public docket
visit the EPA Docket Center homepage
at https://www.epa.gov/epahome/
dockets.htm.
Docket: All documents in the
electronic docket are listed in the
www.regulations.gov index. Although
listed in the index, some information is
not publicly available, i.e., CBI or other
information whose disclosure is
restricted by statute. Certain other
material, such as copyrighted material,
is not placed on the Internet and will be
publicly available only in hard copy
form. Publicly available docket
materials are available either
electronically in www.regulations.gov or
in hard copy during normal business
hours at the Air Protection Division,
U.S. Environmental Protection Agency,
Region III, 1650 Arch Street,
Philadelphia, Pennsylvania 19103.
Copies of the State submittal are also
available at the Pennsylvania
Department of Environmental
Resources, Bureau of Air Quality
Control, P.O. Box 8468, 400 Market
Street, Harrisburg, Pennsylvania 17105.
FOR FURTHER INFORMATION CONTACT: Mr.
Ray Chalmers at 215–814–2061, or by email at chalmers.ray@epa.gov.
SUPPLEMENTARY INFORMATION:
Table of Contents
I. What Action Is EPA Proposing To Take?
II. What Is the Regulatory History of CAMR?
III. What Are the General Requirements of
CAMR?
IV. How Can States Comply With CAMR?
V. Analysis of Pennsylvania’s CAMR State
Plan Submittal
A. EPA Is Proposing To Find That
Pennsylvania’s State Plan Meets All
CAMR Budget Related and Other
Requirements for Approval
B. Summary of State Plan
VI. Statutory and Executive Order Reviews
I. What Action Is EPA Proposing To
Take?
EPA is proposing to approve
Pennsylvania’s State Plan for the control
of mercury emissions from coal-fired
EGUs, as submitted by Pennsylvania on
PO 00000
Frm 00026
Fmt 4702
Sfmt 4702
November 6, 2006, and as subsequently
revised by Pennsylvania on March 16,
2007. EPA is proposing to determine
that the State Plan will meet the
applicable requirements of CAMR. In its
State Plan, Pennsylvania would meet
CAMR requirements by implementing a
Pennsylvania-specific mercury control
regulation for coal-fired EGUs, rather
than through participation in the EPAadministered CAMR cap-and-trade
program. Pennsylvania’s state-specific
regulation establishes annual emission
limitations as part of a Statewide
mercury nontradable allowance
program; sets mercury emissions
standards; and includes other
requirements for the purpose of
controlling mercury emissions from
coal-fired EGUs.
II. What Is the Regulatory History of
CAMR?
CAMR was published by EPA on May
18, 2005 (70 FR 28606, ‘‘Standards of
Performance for New and Existing
Stationary Sources: Electric Utility
Steam Generating Units; Final Rule’’). In
this rule, acting pursuant to its authority
under section 111(d) of the Clean Air
Act (CAA), 42 U.S.C. 7411(d), EPA
required that all States and the District
of Columbia (all of which are referred to
herein as States) meet Statewide annual
budgets limiting mercury emissions
from coal-fired EGUs (as defined in 40
CFR 60.24(h)(8)) under Clean Air Act
(CAA) section 111(d). EPA required all
States to submit State Plans with control
measures that ensure that total, annual
mercury emissions from the coal-fired
EGUs located in the respective States do
not exceed the applicable Statewide
annual EGU mercury budget. Under
CAMR, States may implement and
enforce these reduction requirements by
participating in the EPA-administered
cap-and-trade program or by adopting
any other effective and enforceable
control measures.
CAA section 111(d) requires States,
and, along with CAA section 301(d) and
the Tribal Air Rule (40 CFR part 49),
allows Tribes granted treatment as
States (TAS), to submit State Plans to
EPA that implement and enforce the
standards of performance. CAMR
explains what must be included in State
Plans to address the requirements of
CAA section 111(d). The State Plans
were due to EPA by November 17, 2006.
Under 40 CFR 60.27(b), the
Administrator will approve or
disapprove the State Plans.
III. What Are the General Requirements
of CAMR State Plans?
CAMR establishes Statewide annual
EGU mercury emission budgets and is to
E:\FR\FM\13SEP1.SGM
13SEP1
Federal Register / Vol. 72, No. 177 / Thursday, September 13, 2007 / Proposed Rules
ebenthall on PRODPC61 with PROPOSALS
be implemented in two Phases. The first
Phase of reductions starts in 2010 and
continues through 2017. The second
Phase of reductions starts in 2018 and
continues thereafter. CAMR requires
States to implement the budgets by
either: (1) Requiring coal-fired EGUs to
participate in the EPA-administered
cap-and-trade program; or (2) adopting
other coal-fired EGU control measures
of the respective State’s choosing and
demonstrating that such control
measures will result in compliance with
the applicable State annual EGU
mercury budget.
Each State Plan must require coalfired EGUs to comply with the
monitoring, recordkeeping, and
reporting provisions of 40 CFR part 75
concerning mercury mass emissions.
Each State Plan must also show that the
State has the legal authority to adopt
emission standards and compliance
schedules necessary for attainment and
maintenance of the State’s annual EGU
mercury budget and to require the
owners and operators of coal-fired EGUs
in the State to meet the monitoring,
recordkeeping, and reporting
requirements of 40 CFR part 75.
IV. How Can States Comply With
CAMR?
Each State Plan must impose control
requirements that the State
demonstrates will limit Statewide
annual mercury emissions from new
and existing coal-fired EGUs to the
amount of the State’s applicable annual
EGU mercury budget. States have the
flexibility to choose the type of EGU
control measures they will use to meet
the requirements of CAMR. EPA
anticipates that many States will choose
to meet the CAMR requirements by
selecting an option that requires EGUs
to participate in the EPA-administered
CAMR cap-and-trade program. EPA also
anticipates that many States may choose
to control Statewide annual mercury
emissions for new and existing coalfired EGUs through an alternative
mechanism other than the EPAadministered CAMR cap-and-trade
program. Each State that chooses an
alternative mechanism must include
with its plan a demonstration that the
State Plan will ensure that the State will
meet its assigned State annual EGU
mercury emission budget.
A State submitting a State Plan that
requires coal-fired EGUs to participate
in the EPA-administered CAMR capand-trade program may either adopt
regulations that are substantively
identical to the EPA model mercury
trading rule (40 CFR part 60, subpart
HHHH) or incorporate by reference the
model rule. CAMR provides that States
VerDate Aug<31>2005
15:17 Sep 12, 2007
Jkt 211001
may only make limited changes to the
model rule if the States want to
participate in the EPA-administered
trading program. A State Plan may
change the model rule only by altering
the allowance allocation provisions to
provide for State-specific allocation of
mercury allowances using a
methodology chosen by the State. A
State’s alternative allowance allocation
provisions must meet certain allocation
timing requirements and must ensure
that total allocations for each calendar
year will not exceed the State’s annual
EGU mercury budget for that year.
V. Analysis of Pennsylvania’s CAMR
State Plan Submittal
A. EPA Is Proposing To Find That
Pennsylvania’s State Plan Meets All
CAMR Budget Related and Other
Requirements for Approval
In today’s action, EPA is proposing to
approve Pennsylvania’s State Plan as
assuring that mercury emissions from
the State’s EGUs will not exceed the
levels specified in the CAMR budget for
Pennsylvania found at 40 CFR
60.24(h)(3), i.e., 1.779 tons per year for
EGU mercury emissions in Phase 1 and
0.702 tons per year for EGU mercury
emissions in Phase 2.
The State Plan includes a Statespecific regulation which requires
owners or operators of affected new or
existing coal-fired EGUs 1 to comply
with a Statewide mercury nontradable
allowance program among other
provisions. Pennsylvania assured that
the regulation would apply to all of the
EGUs which have emissions required to
be accounted for under the CAMR
budget for Pennsylvania by using in the
regulation a definition of EGU
consistent with the definition specified
in CAMR at 40 CFR 60.24(h)(8).
Pennsylvania’s Statewide mercury
nontradable allowance program, limits
total mercury emissions from EGUs in
the State to the same Phase 1 and Phase
2 amounts as are set forth in the CAMR
budget for Pennsylvania found at 40
CFR 60.24(h)(3). Pennsylvania’s
mercury nontradeable allowance
program requires its Phase 1 reductions
to be achieved starting January 1, 2010,
the same date as the Phase 1 reductions
are required to be achieved under the
CAMR, but requires its Phase 2
1 EPA notes that Pennsylvania’s definitions of
‘‘existing EGU’’ and ‘‘new EGU’’ overlap in that an
EGU that ‘‘commenced construction, modification,
or reconstruction’’ on January 1, 2004 would be
covered by both definitions. EPA believes that this
technical problem with the rule will likely have no
practical consequence since it is unlikely that there
will be such a unit and Pennsylvania can resolve
this if and when a problem arises. Therefore, EPA’s
proposed approval includes these definitions.
PO 00000
Frm 00027
Fmt 4702
Sfmt 4702
52327
reductions to be achieved starting
January 1, 2015, earlier than the
required Phase 2 reductions under
CAMR.
Pennsylvania’s State-specific
regulation implements the annual limits
on total mercury emissions of EGUs in
the State by setting aside for each EGU
an amount of nontradable allowances
that comprises the annual emission
limitation (in ounces of mercury
emissions) for that EGU. The amount set
aside may include allowances requested
by the owner or operator and provided
from an annual emission limitation
supplement pool. Further, the
regulation states, in § 123.207(p), that an
owner or operator must demonstrate
compliance with annual emission
limitation on a unit-by-unit, facilitywide, or system-wide basis and
explains, in § 123.207(q) and (r), that,
under facility-wide or system-wide
compliance, the total annual emissions
from the EGUs involved must be less
than the total amount of allowable
annual emissions for such EGUs.
However, the regulation also provides,
in §§ 123.207(j)(5) and 123.209, that
each ounce of emissions by an EGU,
facility, or system, as applicable, in
excess of the amount of allowances set
aside for the EGU, facility, or system,
including any set aside under § 123.209,
constitutes a violation. EPA interprets
§ 123.207(j)(5) and (p) through (r) and
§ 123.209 as requiring that the total
mercury emissions from an EGU, or
from the appropriate group of EGUs
where compliance is on a facility-wide
or system-wide basis, determined in
accordance with §§ 123.210–123.215,
must not exceed the total amount of
allowances set aside for the EGU or the
appropriate group of EGUs, including
any allowances set aside from the
annual emission limitation supplement
pool, for the year.
It should be noted that Pennsylvania’s
mercury reduction regulation also
restricts the emissions of mercury from
existing and new coal-fired EGUs
through the imposition of emission
standards. These standards, established
in § 123.205, are to be achieved in
addition to the Statewide mercury
nontradeable allowance program
provisions described above. The CAMR
does not establish or require similar
emissions standards to be applied to
individual emission units. As discussed
above, CAMR requires a demonstration
that the State Plan will ensure that the
State will meet its assigned State annual
EGU mercury emission budget.
Pennsylvania meets this requirement
through the establishment of its
Statewide nontradeable mercury
allowance program and not through the
E:\FR\FM\13SEP1.SGM
13SEP1
ebenthall on PRODPC61 with PROPOSALS
52328
Federal Register / Vol. 72, No. 177 / Thursday, September 13, 2007 / Proposed Rules
emission limitations required by
§ 123.205.
In addition, EPA is proposing to
approve Pennsylvania’s Plan,
interpreted as discussed below, as
meeting the CAMR provision that State
plans must require owners and
operators of coal-fired EGUs to meet the
monitoring, recordkeeping, and
reporting requirements of 40 CFR part
75. The provisions of the regulation
included in the State’s plan concerning
monitoring, recordkeeping, and
reporting, found at §§ 123.210–123.215,
are intended to be consistent with the
monitoring, reporting, and
recordkeeping requirements for mercury
mass emissions in 40 CFR part 75,
Subpart I and in EPA’s CAMR model
rule, which is based on and references
40 CFR part 75, Subpart I. Section
123.210(a) and (b) states that, for
purposes of compliance with 12-month
rolling average mercury emission
requirements in § 123.205 and annual
mercury mass emission requirements in
§ 123.207, the monitoring, reporting,
and recordkeeping requirements of
§§ 123.210–123.215 and 139.101, 40
CFR part 75, Subpart I, and
Pennsylvania’s Continuous Source
Monitoring Manual (DEP 274–0300–
001) apply. The manual (at 1), in turn,
states that part 75 applies to
‘‘monitoring systems required pursuant
to only’’ part 75 (e.g., mercury mass
monitoring systems) and that
‘‘[a]pproval for compliance with [part
75] must be obtained from’’ EPA. In
addition, § 123.210(k) states that an
owner or operator may not use any
alternative to a part 75 requirement
unless the alternative is approved by the
Administrator in writing. EPA therefore
interprets the monitoring, reporting, and
recordkeeping requirements in
Pennsylvania’s regulation as requiring
owners and operators to meet the
requirements of 40 CFR part 75, Subpart
I and providing that, if there is any
conflict between those requirements and
any other requirements set forth in
§§ 123.210–123.215, the part 75
provisions will take precedence for the
purpose of compliance with annual
mercury mass emission requirements.
Specifically, Pennsylvania’s
regulation includes provisions, in
§ 123.210(n)(1), allowing
discontinuation of use of an approved
monitoring system when the owner or
operator is using another certified
monitoring system for the appropriate
parameter that is approved by the
department in accordance with
§§ 123.210–123.215 and Chapter 139,
Subchapter C. In light of the other
provisions of Pennsylvania’s regulation
discussed above, EPA interprets
VerDate Aug<31>2005
15:17 Sep 12, 2007
Jkt 211001
§ 123.210(n)(1) as allowing
discontinuation of an approved
monitoring system used for determining
compliance with the annual mercury
mass emission requirements in
§ 123.207 only if another monitoring
system for the appropriate parameter is
approved in accordance with part 75,
subpart I.2
Further, Pennsylvania’s regulation
includes provisions, in
§ 123.211(a)(5)(iii), requiring the
substitution of alternative data in cases
where the State ‘‘issues a notice of
disapproval of a certification
application or a notice of disapproval of
certification status’’ and allowing the
substitution of either data values as
specified in part 75 or ‘‘an alternative
emission value that is more
representative of actual emissions that
occurred during the period.’’ In light of
the other provisions of Pennsylvania’s
regulation discussed above, EPA
interprets § 123.211(a)(5)(iii) as giving
Pennsylvania the authority to approve
substitute data values other than those
specified by part 75 only in cases where
those data values would be used solely
for the purpose of showing compliance
with the mercury emission requirements
in § 123.205 and not for any data
required for the purpose of showing
compliance with the annual mercury
mass emission limitation in § 123.207.
Similarly, § 123.212(a) of
Pennsylvania’s regulations requires the
use of substitute data based on the
Continuous Source Monitoring Manual
if a monitoring system fails to meet
certain quality-assurance, qualitycontrol, or data validation requirements.
As discussed above, the manual requires
mercury mass emission monitoring
systems to meet the requirements of part
75. Further, § 123.212(a) also states that
a mercury mass emission monitoring
system failing to meet quality-assurance
or quality-control requirements must
use substitute data under part 75. EPA
therefore interprets § 123.212(a) to
require the use of substitute data as
prescribed in part 75 for the purpose of
showing compliance with the annual
mercury mass emission limitation in
§ 123.207.
2 EPA notes that § 123.210(j) incorrectly
references ‘‘subsections (f)–(h)’’ (rather than just
subsection (h)) and that the provision only makes
sense where a certified monitoring system already
exists and a new stack or flue or new control device
is added, which is addressed only in subsection (h).
In any event, that § 123.210(j) is based on a
provision in § 60.4170(c)(2) that EPA has proposed
to remove. See 71 FR 77100, 77117 (2006). EPA
interprets § 123.210(j) to apply only with regard to
subsection (h), and, if EPA finalizes removal of
§ 60.4170(c)(2), § 123.210(j ) will no longer apply at
all for the purpose of compliance with the annual
mercury mass emission limitation under § 123.207.
PO 00000
Frm 00028
Fmt 4702
Sfmt 4702
EPA is also proposing to approve the
Plan as meeting the requirements of
CAMR, and also of 40 CFR Subpart B,
entitled, ‘‘Adoption and Submittal of
State Plans for Designated Facilities,’’
for a demonstration of legal authority.
The State’s Plan includes an opinion by
the Chief Counsel of the Pennsylvania
Department of Environmental Protection
which demonstrates that the State has
the required legal authority to adopt
emission standards and compliance
schedules necessary for attainment and
maintenance of the State’s annual EGU
mercury budget and to require the
owners and operators of coal-fired EGUs
in the State to meet the monitoring,
recordkeeping, and reporting
requirements of 40 CFR part 75.
Finally, EPA is proposing to approve
the State’s Plan as meeting the other
applicable general requirements for
approval under 40 CFR part 60, subpart
B. The State’s Plan requires owners and
operators of affected coal-fired EGUs in
Pennsylvania to comply with emission
limitations (expressed as nontradable
mercury allowances) that ensure that
total emissions from the affected coalfired EGUs in Pennsylvania will not
exceed the CAMR budget for
Pennsylvania found at 40 CFR
60.24(h)(3). The State’s Plan also
requires owners or operators of affected
coal-fired EGUs to achieve mercury
emission reductions on a schedule that
is equivalent to, or more rapid than, the
schedule under CAMR. The State’s Plan
includes evidence that three public
hearings were held, and also that public
notice of these hearings was provided.
The State’s Plan also includes an
emissions inventory of the State’s EGUs.
EPA describes the State’s Plan in
more detail below.
B. Summary of State Plan
Pennsylvania’s State Plan includes a
State regulation at 25 Pa. Code, Chapter
123, Standards for Contaminants;
Mercury, Annex A. Pennsylvania’s
state-specific mercury control regulation
establishes annual mercury emission
limitations for EGUs as part of a
Statewide mercury nontradable
allowance program, sets mercury
emissions standards for EGUs, and
includes monitoring, recordkeeping,
reporting and other provisions.
Pennsylvania’s State-specific
regulation is applicable to all of the
EGUs which have emissions required to
be accounted for under the CAMR
budget for Pennsylvania found at 40
CFR 60.24(h)(3). Pennsylvania assured
that the regulation would apply to all of
the EGUs which have emissions
required to be accounted for under the
CAMR budget for Pennsylvania by using
E:\FR\FM\13SEP1.SGM
13SEP1
ebenthall on PRODPC61 with PROPOSALS
Federal Register / Vol. 72, No. 177 / Thursday, September 13, 2007 / Proposed Rules
in the regulation a definition of EGU
consistent with the definition specified
in CAMR at 40 CFR 60.24(h)(8).
The Statewide mercury nontradable
allowance program ensures that the
mercury emissions from new and
existing EGUs in the State will not
exceed the CAMR budget for
Pennsylvania found at 40 CFR
60.24(h)(3) by limiting total mercury
emissions from EGUs in the State to the
same Phase 1 and Phase 2 amounts as
specified in the CAMR budget for the
State. Under the Statewide mercury
nontradable mercury allowance program
the total amount of mercury emissions
allowed to be emitted from affected
coal-fired EGUs is 56,928 ounces (3,558
lbs or 1.779 tons) per year during Phase
1 extending from January 1, 2010
through December 31, 2014, and 22,464
ounces (1,404 pounds or 0.702 tons) per
year during Phase 2 starting January 1,
2015 (rather than January 1, 2018, as
specified in the CAMR budget for
Pennsylvania found at 40 CFR
60.24(h)(3)) and continuing in
subsequent years.
The Statewide mercury nontradable
allowance program provides that of the
total of 56,928 ounces per year of
mercury emissions available for
emission limitation set-asides during
Phase 1, 54,080 ounces will be allocated
to existing affected EGUs and the
remaining five (5) percent will be setaside for use by new affected EGUs. The
Statewide mercury nontradable
allowance program further provides that
of the 22,464 ounces per year of
mercury emissions available for
emission limitation set-asides during
Phase 2, 21,790 ounces will be allocated
to existing affected coal-fired EGUs and
the remaining three (3) percent will be
set aside for new affected coal-fired
EGUs.
The Statewide mercury nontradable
allowance program provides that the
annual nontradeable allowances set
aside for owners and operators of new
affected coal-fired EGUs shall be placed
in an annual emission limitation
supplement pool administered by the
State. Upon petition by owners or
operators of new affected EGUs,
Pennsylvania may grant annual
nontradeable allowances for the new
affected coal-fired EGUs from this
annual emission limitation supplement
pool.
Under the Statewide mercury
nontradable allowance program owners
or operators of new affected coal-fired
EGUs that do not yet have a baseline
heat input will be allocated allowances
in accordance with the requirements of
an approved State permit. The
Statewide mercury nontradable
VerDate Aug<31>2005
15:17 Sep 12, 2007
Jkt 211001
allowance program specifies that after a
new affected coal-fired EGU has
commenced operation and completed
three control periods of operation, the
EGU will become an existing EGU. The
Statewide mercury nontradable
allowance program provides that a new
affected EGU will continue to receive
annual nontradeable mercury
allowances from the new unit set-aside
until the new affected EGU is eligible
for annual nontradable mercury
allowances allocated from the set-aside
for existing EGUs. Under the allowance
program when a new affected EGU is
eligible to receive annual nontradable
mercury allowances from the set-aside
for existing affected EGUs, new
maximum allowance levels for all
existing affected EGUs will be
established, and the State will publish
these new allocation levels in the
Pennsylvania Bulletin for comment by
May 31 of the year that is two years
prior to the affected control period.
The Statewide mercury nontradable
allowance program provides for
determining the maximum number of
annual nontradeable allowances set
aside for the owners or operators of all
existing affected coal-fired EGUs, except
for owners or operators of existing
circulating fluidized bed (CFB) units, by
multiplying the EGU’s baseline heat
input fraction of the State’s total
baseline annual heat input from all
affected EGUs by the State’s annual
mercury allowance set-aside for existing
affected EGUs for each Phase.
The Statewide mercury nontradable
allowance program provides for
determining the maximum number of
annual nontradable mercury allowances
set aside for owners or operators of
existing affected CFB units by
multiplying the affected CFB’s baseline
heat input fraction of the State’s total
baseline annual heat input for all EGUs
by the State’s Phase 2 annual mercury
allowance for existing EGUs.
The Statewide mercury nontradable
allowance program provides that the
State will publish for comment in the
Pennsylvania Bulletin, by May 31, 2008,
the maximum number of annual
nontradeable allowances set aside for
‘‘the owner or operator of each existing
affected CFB and EGU other than CFB
for Phase 1 of the Statewide mercury
allowance program,’’ and that it will
publish for comment in the
Pennsylvania Bulletin, by May 31, 2013,
the maximum number of annual
nontradeable allowances set aside for
‘‘the owner or operator of each existing
affected CFB and EGU other than CFB
for Phase 2 of the Statewide mercury
allowance program.’’
PO 00000
Frm 00029
Fmt 4702
Sfmt 4702
52329
The Statewide mercury nontradable
allowance program specifies that the
actual number of annual nontradable
mercury allowances awarded to the
owner or operator of the EGU, facility,
or system shall be based on the actual
emissions reported to the State. The
Statewide mercury nontradable
allowance program further specifies that
the actual number of annual
nontradable mercury allowances
awarded to the owner or operator of the
EGU, facility, or system may not exceed
the maximum number of annual
nontradeable mercury allowances
assigned to the owner or operator of the
EGU, facility, or system, except in cases
where the owner or operator has
petitioned for and been granted
supplemental allowances. Under the
Statewide mercury nontradable
allowance program the State could
provide such allowances from its annual
emission limitation supplement pool.
The Statewide mercury nontradable
allowance program provides that by
March 31 of the year following each
reporting year, Pennsylvania will notify
the owner or operator of each affected
EGU, facility, or system, in writing, of
the actual number of annual
nontradable mercury allowances
awarded to the owner or operator of the
affected EGU, facility, or system for the
control period.
The Statewide mercury nontradable
allowance program provides that the
owner or operator of one or more
affected mercury allowance program
EGUs shall demonstrate compliance
either on: (1) A unit-by-unit basis, (2) a
facility-wide basis, or (3) a system-wide
basis. Under the Statewide mercury
nontradable allowance program, each
ounce of mercury emitted in excess of
the maximum number of annual
nontradable mercury allowances set
aside for the owner or operator of an
EGU, facility, or system constitutes a
violation of the program and of
Pennsylvania’s Air Pollution Control
Act, unless the owner or operator has
petitioned for and has been granted
supplemental allowances.
Under the Statewide mercury
nontradable allowance program if the
actual emissions of mercury reported to
the State for an EGU, facility, or system
are less than the maximum number of
annual nontradeable mercury
allowances set aside for the owner or
operator of the EGU, facility, or system,
the State will place the unused portion
of the allowances in its annual emission
limitation supplement pool.
The Statewide mercury nontradable
allowance program specifies that the
unused portion of annual nontradeable
mercury emission allowances assigned
E:\FR\FM\13SEP1.SGM
13SEP1
ebenthall on PRODPC61 with PROPOSALS
52330
Federal Register / Vol. 72, No. 177 / Thursday, September 13, 2007 / Proposed Rules
to the owner or operator of an affected
EGU, facility, or system for any year
may not be added to the maximum
number of annual nontradable mercury
allowances assigned to the owner or
operator of the affected EGU, facility, or
system for use in future years. Under the
Statewide mercury nontradable
allowance program annual nontradable
mercury allowances may not be banked
for use in future years.
The Statewide mercury nontradable
allowance program does not apply to
the owner or operator of an EGU that
will be permanently shutdown no later
than December 31, 2009. The allowance
program provides that annual
nontradable mercury allowances will
not be set aside for the owner or
operator of an existing affected EGU that
is already shut down or scheduled for
shutdown unless the owner or operator
of the EGU obtains a plan approval for
the construction of a new EGU, or is on
‘‘standby’’ as of the effective date of
each set-aside Phase. When a standby
unit is ready for normal operation, the
owner or operator may petition the State
for annual nontradeable allowances.
Under the regulation’s allowance
program the State could provide such
allowances from its annual emission
limitation supplement pool.
The Statewide mercury nontradable
allowance program specifies that an
owner or operator of an existing affected
EGU who enters into an enforceable
agreement with the State, by December
31, 2007, to shutdown that existing EGU
and to replace it, by December 31, 2012,
with a new Integrated Gasification
Combined Cycle (IGCC) unit, is eligible
to request annual nontradable mercury
allowances from the annual emission
limitation supplement pool.
The Statewide mercury nontradable
allowance program provides that the
State may revise the percentage of setaside used to determine the number of
ounces of mercury set-aside for future
annual mercury emission limitations to
accommodate the emissions from new
EGUs, or changes in the calculation of
baseline heat input, so that the total
number of ounces of mercury emissions
in the Statewide mercury nontradable
allowance program is not exceeded.
Pennsylvania’s regulation requires
owners or operators of EGUs not only to
keep the emissions of their EGUs at or
below levels consistent with their
allowances for their EGUs, but also to
meet emission limits. The emission
limits for EGUS vary depending upon
whether or not the EGU qualifies as a
new or existing unit and on the type of
EGU.
The regulation defines a new EGU as
‘‘[a]n EGU which commenced
VerDate Aug<31>2005
15:17 Sep 12, 2007
Jkt 211001
construction modification, or
reconstruction, as defined under 40 CFR
Part 60 (relating to standards of
performance for new stationary
sources), on or after January 30, 2004,
and has less than three complete control
periods of heat input data as of
December 31 of the preceding control
period.’’ The regulation defines an
existing EGU as ‘‘[a]n EGU which
commenced construction, modification
or reconstruction on or before January
30, 2004, or which has three complete
control periods of heat input data as of
December 31 or the preceding control
period.’’
For new EGUs, Pennsylvania’s
regulation requires the owner or
operator to comply at the
commencement of operation on a rolling
12 month basis with one of the
following standards:
(1) Pulverized Coal Fired (PCF) EGU.
The owner or operator of a PCF EGU
shall comply with either or the
following:
(i) A mercury emission standard of
0.011 pound of mercury per Gigawatthour (GWh).
(ii) A minimum 90% control of total
mercury as measured from the mercury
content in the coal, either as fired or as
approved in writing by Pennsylvania.
(2) Circulating Fluidized Bed (CFB)
EGU. The owner or operator of a CFB
EGU shall comply with the following
applicable provisions:
(i) CFB EGUs burning 100% coal
refuse as the only solid fossil fuel shall
comply with either of the following:
(A) A mercury emission standard of
0.0096 pound of mercury per GWh.
(B) A minimum 95% control of total
mercury as measured from the mercury
content in the coal refuse, either as fired
or as approved in writing by the State.
(ii) CFB EGU’s burning 100% coal as
the only solid fossil fuel shall comply
with either of the following:
(A) A mercury emission standard of
0.011 pound of mercury per GWh.
(B) A minimum 90% control of total
mercury as measured from the mercury
content in the coal refuse, either as fired
or as approved in writing by the State.
(iii) CFB EGUs burning multiple fuels
shall comply with a prorated emission
standard based on the percentage of heat
input from the coal and the percentage
of heat input from the coal refuse.
(3) Integrated Gasification Combined
Cycle (IGCC) EGU. The owner or
operator of an IGCC EGU shall comply
with one of the following:
(i) A mercury emission standard of
0.0048 pound of mercury per GWh.
(ii) A minimum 95% control of total
mercury as measured from the mercury
PO 00000
Frm 00030
Fmt 4702
Sfmt 4702
content in the coal, either as processed
or as approved in writing by the State.
Pennsylvania’s regulation notifies
owners or operators of new EGUs that
they are also required to comply with
the New Source Performance Standards
(NSPS) found at 40 CFR Part 60, Subpart
Da. In addition, the regulation indicates
that the State’s emission standards will
serve as the baseline the State uses for
review and approval of case-by-case best
available technology determinations in
accordance with the State’s
requirements relating to construction,
modification, reactivation and operation
of sources.
For existing EGUs, the regulation
requires the owner or operator to
comply on a rolling 12-month basis with
one of the following standards:
(1) Phase 1—Effective from January 1,
2010 through December 31, 2014:
(i) PCF EGU—The owner or operator
of a PCF shall comply with one of the
following:
(A) A mercury emission standard of
0.024 pound of mercury per GWh.
(B) A minimum 80% control of total
mercury as measured from the mercury
content in the coal, either as fired or as
approved in writing by the State.
(ii) CFB EGU—The owner or operator
of a CFB burning coal refuse shall
comply with one of the following:
(A) A mercury emission standard of
0.0096 pound of mercury per GWh.
(B) A minimum 95% control of total
mercury as measured from the mercury
content in the coal refuse, either as fired
or as approved in writing by the State.
(2) Phase 2—Effective beginning
January 1, 2015, and each subsequent
year:
(i) PCF EGU—The owner or operator
of a PCF shall comply with one of the
following:
(A) A mercury emission standard of
0.012 pound of mercury per GWh.
(B) A minimum 90% control of total
mercury as measured from the mercury
content in the coal, either as fired or as
approved in writing by the State.
(ii) CFB EGU—The owner or operator
of a CFB burning coal refuse shall
comply with one of the following:
(A) A mercury emission standard of
0.0096 pound of mercury per GWh.
(B) A minimum 95% control of total
mercury as measured from the mercury
content in the coal refuse, either as fired
or as approved in writing by the State.
The regulation also provides that the
owner or operator of an EGU may
request, in writing, credit for the
mercury removal efficiency resulting
from the pretreatment of coal or coal
refuse towards the minimum specified
percent control efficiency of the total
mercury requirements.
E:\FR\FM\13SEP1.SGM
13SEP1
ebenthall on PRODPC61 with PROPOSALS
Federal Register / Vol. 72, No. 177 / Thursday, September 13, 2007 / Proposed Rules
The regulation provides that the
owner or operator of one or more EGUs
subject to the mercury emissions
standards shall demonstrate compliance
on: (1) A unit-by-unit basis, or (2) a
facility-wide basis.
Pennsylvania’s regulation requires
owners or operators of coal-fired EGUs
to comply with the monitoring,
recordkeeping, and reporting provisions
of 40 CFR part 75 concerning mercury
mass emissions. The regulation provides
that the monitoring, recordkeeping, and
reporting requirements of 40 CFR part
75 Subpart I (relating to mercury mass
emission provisions) apply, as well as
other monitoring, recordkeeping and
reporting provisions which are
Pennsylvania-specific, as discussed in
detail above. The regulation further
indicates that Pennsylvania has adopted
by reference the provisions entitled
‘‘Mercury Designated Representative for
Mercury Budget Sources,’’ found in
EPA’s model rule, 40 CFR part 60,
Subpart HHHH, at sections 60.4110
through 60.4114. In addition, the
regulation provides that, for purposes of
complying with its requirements, the
definitions in 40 CFR 72.2 shall apply.
The regulation also includes
provisions pertaining to initial
certification and recertification
procedures for emissions reporting,
provisions for out-of-control periods for
emissions monitors, provisions
pertaining to monitoring of gross
electrical output, provisions pertaining
to coal sampling and analysis for input
mercury levels, and provisions
pertaining to general recordkeeping and
reporting.
The regulation provides that owners
or operators of new or existing affected
EGUs will be issued a State plan
approval or operating permit (including
Title V permits) in which the applicable
mercury control requirements will be
specified. The regulation specifies that
these plan approvals or permits will be
issued before the later of January 1, 2010
or the date on which the affected EGU
commences operation.
The regulation further provides, at
§ 123.206, that the State’s Department of
Environmental Protection (the
Department) ‘‘may approve in a plan
approval or operating permit, or both,
an alternate mercury emission standard
or compliance schedule, or both, if the
owner or operator of an EGU subject to
the emission standards of § 123.205
demonstrates in writing to the
Department’s satisfaction that the
mercury reduction requirements are
economically or technologically
infeasible. The Department’s approval of
such an alternative emission standard or
compliance schedule does not relieve
VerDate Aug<31>2005
15:17 Sep 12, 2007
Jkt 211001
the owner or operator of the EGU from
complying with the other requirements
of §§ 123.201–123.205 and 123.207–
123.215.’’
The State Plan also contains required
non-regulatory elements. The State Plan
includes an inventory of the existing
designated coal-fired EGUs in the State,
and provides data regarding the mercury
emissions of these EGUs. The Plan also
provides documentation of the State’s
public participation process, including
copies of public notices announcing
public hearings and the opportunity to
comment, a certification that three
public hearings were held, and a
summary of comments received by the
State and of the State’s responses.
Further, the Plan includes a legal
opinion of the Chief Counsel of the
Pennsylvania Department of
Environmental Protection which
demonstrates that the State has the legal
authority to adopt emission standards
and compliance schedules necessary for
attainment and maintenance of the
State’s annual EGU mercury budget and
to require the owners and operators of
coal-fired EGUs in the State to meet the
monitoring, recordkeeping, and
reporting requirements of 40 CFR part
75.
VI. Statutory and Executive Order
Reviews
Under Executive Order 12866 (58 FR
51735, October 4, 1993), this proposed
action is not a ‘‘significant regulatory
action’’ and therefore is not subject to
review by the Office of Management and
Budget. For this reason, this action is
also not subject to Executive Order
13211, ‘‘Actions Concerning Regulations
That Significantly Affect Energy Supply,
Distribution, or Use’’ (66 FR 28355, May
22, 2001). This action merely proposes
to approve State law as meeting Federal
requirements and would impose no
additional requirements beyond those
imposed by State law. Accordingly, the
Administrator certifies that this
proposed rule would not have a
significant economic impact on a
substantial number of small entities
under the Regulatory Flexibility Act (5
U.S.C. 601 et seq.). Because this action
proposes to approve pre-existing
requirements under State law and
would not impose any additional
enforceable duty beyond that required
by State law, it does not contain any
unfunded mandate or significantly or
uniquely affect small governments, as
described in the Unfunded Mandates
Reform Act of 1995 (Pub. L. 104–4).
This proposal also does not have
Tribal implications because it would not
have a substantial direct effect on one or
more Indian tribes, on the relationship
PO 00000
Frm 00031
Fmt 4702
Sfmt 4702
52331
between the Federal Government and
Indian tribes, or on the distribution of
power and responsibilities between the
Federal Government and Indian tribes,
as specified by Executive Order 13175
(65 FR 67249, November 9, 2000).
This proposed action also does not
have Federalism implications because it
would not have substantial direct effects
on the States, on the relationship
between the national government and
the States, or on the distribution of
power and responsibilities among the
various levels of government, as
specified in Executive Order 13132 (64
FR 43255, August 10, 1999). This action
merely proposes to approve a State rule
implementing a Federal standard. It
does not alter the relationship or the
distribution of power and
responsibilities established in the CAA.
This proposed rule also is not subject to
Executive Order 13045 ‘‘Protection of
Children from Environmental Health
Risks and Safety Risks’’ (62 FR 19885,
April 23, 1997), because it approves a
state rule implementing a Federal
standard.
Executive Order 12898, ‘‘Federal
Actions to Address Environmental
Justice in Minority Populations and
Low-Income Populations,’’ requires
Federal agencies to consider the impact
of programs, policies, and activities on
minority populations and low-income
populations. EPA guidance 3 states that
EPA is to assess whether minority or
low-income populations face risk or a
rate of exposure to hazards that is
significant and that ‘‘appreciably
exceed[s] or is likely to appreciably
exceed the risk or rate to the general
population or to the appropriate
comparison group.’’ (EPA, 1998)
Because this rule merely proposes to
approve a state rule implementing the
Federal standard established by CAMR,
EPA lacks the discretionary authority to
modify today’s regulatory decision on
the basis of environmental justice
considerations. However, EPA has
already considered the impact of CAMR,
including this Federal standard, on
minority and low-income populations.
In the context of EPA’s CAMR
published in the Federal Register on
May 18, 2005, in accordance with EO
12898, the Agency has considered
whether CAMR may have
disproportionate negative impacts on
minority or low income populations and
determined it would not.
In reviewing State Plan submissions,
EPA’s role is to approve State choices,
3 U.S. Environmental Protection Agency, 1998.
Guidance for Incorporating Environmental Justice
Concerns in EPA’s NEPA Compliance Analyses.
Office of Federal Activities, Washington, DC, April,
1998.
E:\FR\FM\13SEP1.SGM
13SEP1
52332
Federal Register / Vol. 72, No. 177 / Thursday, September 13, 2007 / Proposed Rules
provided that they meet the criteria of
the CAA. In this context, in the absence
of a prior existing requirement for the
State to use voluntary consensus
standards (VCS), EPA has no authority
to disapprove a State Plan for failure to
use VCS. It would thus be inconsistent
with applicable law for EPA, when it
reviews a State Plan submission, to use
VCS in place of a State Plan submission
that otherwise satisfies the provisions of
the CAA. Thus, the requirements of
section 12(d) of the National
Technology Transfer and Advancement
Act of 1995 (15 U.S.C. 272 note) do not
apply. This rule proposing to approve
Pennsylvania’s State Plan submittal for
the CAMR requirements would not
impose an information collection
burden under the provisions of the
Paperwork Reduction Act of 1995 (44
U.S.C. 3501 et seq.).
List of Subjects in 40 CFR Part 62
Environmental protection, Air
pollution control, Electric utilities,
Intergovernmental relations, Mercury,
Reporting and recordkeeping
requirements.
Authority: 42 U.S.C. 7401 et seq.
Dated: September 4, 2007.
Donald S. Welsh,
Regional Administrator, Region III.
[FR Doc. E7–18057 Filed 9–12–07; 8:45 am]
BILLING CODE 6560–50–P
ENVIRONMENTAL PROTECTION
AGENCY
40 CFR Part 82
[EPA–HQ–OAR–2007–0384; FRL–8467–3]
RIN 2060–AO28
Protection of Stratospheric Ozone:
Extension of Global Laboratory and
Analytical Use Exemption for Essential
Class I Ozone-Depleting Substances
Environmental Protection
Agency (EPA).
ACTION: Proposed rule.
ebenthall on PRODPC61 with PROPOSALS
AGENCY:
SUMMARY: EPA is proposing to extend
the global laboratory and analytical use
exemption for production and import of
class I ozone-depleting substances
beyond December 31, 2007, contingent
upon and consistent with future
anticipated actions by the Parties to the
Montreal Protocol on Substances that
Deplete the Ozone Layer. The
exemption allows persons in the United
States to produce and import controlled
substances for laboratory and analytical
uses that have not been already
identified by EPA as nonessential. EPA
also is proposing to add, for specific
VerDate Aug<31>2005
15:17 Sep 12, 2007
Jkt 211001
laboratory uses, the applicability of the
laboratory and analytical use exemption
to production and import of methyl
bromide.
Written comments on this
proposed rule must be received by the
EPA Docket on or before November 13,
2007.
ADDRESSES: Submit your comments,
identified by Docket ID No. EPA–HQ–
OAR–2007–0384, by one of the
following methods:
• https://www.regulations.gov. Follow
the on-line instructions for submitting
comments.
• E-mail: A-and-R-docket@epa.gov.
• Fax: 202–343–2338, attn: Staci
Gatica.
• Mail: Air Docket, Environmental
Protection Agency, Mailcode 6102T,
1200 Pennsylvania Ave., NW.,
Washington, DC 20460.
• Hand Delivery or Courier: Deliver
your comments to: EPA Air Docket, EPA
West 1301 Constitution Avenue, NW.,
Room B108, Mail Code 6102T,
Washington, DC 20460. Such deliveries
are only accepted during the Docket’s
normal hours of operation, and special
arrangements should be made for
deliveries of boxed information.
Instructions: Direct your comments to
Docket ID No. EPA–HQ–OAR –2007–
0384. EPA’s policy is that all comments
received by the docket will be included
in the public docket without change and
may be made available online at
www.regulations.gov, including any
personal information provided, unless
the comment includes information
claimed to be Confidential Business
Information (CBI) or other information
whose disclosure is restricted by statute.
Do not submit information through
www.regulations.gov or e-mail that you
consider to be CBI or otherwise
protected. If you would like the Agency
to consider comments that include CBI,
EPA recommends that you submit the
comments to the docket that exclude the
CBI portion but that you provide a
complete version of your comments,
including the CBI, to the person listed
under ADDRESSES above. The
www.regulations.gov Web site is an
‘‘anonymous access’’ system, which
means EPA will not know your identity
or contact information unless you
provide it in the body of your comment.
If you send an e-mail comment directly
to EPA without going through
www.regulations.gov your e-mail
address will be automatically captured
and included as part of the comment
that is placed in the public docket and
made available on the Internet. If you
submit an electronic comment, EPA
recommends that you include your
DATES:
PO 00000
Frm 00032
Fmt 4702
Sfmt 4702
name and other contact information in
the body of your comment and with any
disk or CD–ROM you submit. If EPA
cannot read your comment due to
technical difficulties and cannot contact
you for clarification, EPA may not be
able to consider your comment.
Electronic files should avoid the use of
special characters, any form of
encryption, and be free of any defects or
viruses. For additional information
about EPA’s public docket visit the EPA
Docket Center homepage at https://
www.epa.gov/epahome/dockets.htm.
Docket: All documents in the docket
are listed in the www.regulations.gov
index. Although listed in the index,
some information is not publicly
available, e.g., CBI or other information
whose disclosure is restricted by statute.
Certain other material, such as
copyrighted material, will be publicly
available only in hard copy. Publicly
available docket materials are available
either electronically in
www.regulations.gov or in hard copy at
the Air Docket, EPA/DC, EPA West,
Room B102, 1301 Constitution Ave.,
NW., Washington, DC. This Docket
Facility is open from 8:30 a.m. to 4:30
p.m., Monday through Friday, excluding
legal holidays. The telephone number
for the Public Reading Room is (202)
566–1744, and the telephone number for
the Air Docket is (202) 566–1742.
FOR FURTHER INFORMATION CONTACT:
Staci Gatica by regular mail: U.S.
Environmental Protection Agency,
Stratospheric Protection Division
(6205J), 1200 Pennsylvania Avenue,
NW., Washington, DC, 20460; by courier
service or overnight express: 1301 L
Street, NW., Washington, DC 20005,
Workstation 1047B, by telephone: 202–
343–9469; or by e-mail:
gatica.staci@epa.gov.
SUPPLEMENTARY INFORMATION:
Table of Contents
I. General Information
A. What should I consider when preparing
my comments?
II. Extension of the Global Laboratory and
Analytical Use Exemption
III. Applicability of the Global Laboratory
and Analytical Use Exemption to Methyl
Bromide
IV. Minor Technical Corrections
V. Statutory and Executive Order Reviews
A. Executive Order 12866: Regulatory
Planning and Review
B. Paperwork Reduction Act
C. Regulatory Flexibility Act
D. Unfunded Mandates Reform Act
E. Executive Order 13132: Federalism
F. Executive Order 13175: Consultation
and Coordination With Indian Tribal
Governments
G. Executive Order 13045: Protection of
Children From Environmental Health
Risks and Safety Risks
E:\FR\FM\13SEP1.SGM
13SEP1
Agencies
[Federal Register Volume 72, Number 177 (Thursday, September 13, 2007)]
[Proposed Rules]
[Pages 52325-52332]
From the Federal Register Online via the Government Printing Office [www.gpo.gov]
[FR Doc No: E7-18057]
-----------------------------------------------------------------------
ENVIRONMENTAL PROTECTION AGENCY
40 CFR Part 62
[EPA-R03-OAR-2007-0345; FRL-8467-8]
Approval of Plan of the Commonwealth of Pennsylvania; Clean Air
Mercury Rule
AGENCY: Environmental Protection Agency (EPA).
ACTION: Proposed rule.
-----------------------------------------------------------------------
SUMMARY: EPA is proposing to approve a State Plan submitted by the
Commonwealth of Pennsylvania (Pennsylvania) which addresses the
requirements of EPA's Clean Air Mercury Rule (CAMR), which EPA
promulgated on May 18, 2005 and subsequently revised on June 9, 2006.
EPA is proposing to determine that the submitted State Plan fully
implements the CAMR requirements for Pennsylvania.
CAMR requires States to regulate emissions of mercury (Hg) from
large coal-fired electric generating units (EGUs). CAMR establishes
State budgets for annual EGU mercury emissions and requires States to
submit State Plans that ensure that annual EGU mercury emissions will
not exceed the applicable State budget. States have the flexibility to
choose which control measures to adopt to achieve the budgets,
including
[[Page 52326]]
participating in the EPA-administered CAMR cap-and-trade program.
Pennsylvania chose to adopt a State-specific plan for the control
of mercury emissions from EGUs within the State instead of
participating in the EPA-administered CAMR cap-and-trade program.
Pennsylvania's plan includes a Pennsylvania-specific mercury control
regulation for coal-fired EGUs and other elements which the State
intends to implement to ensure that Pennsylvania meets its mercury
budget.
Pennsylvania's state-specific mercury control regulation
establishes annual mercury emission limitations for EGUs as part of a
Statewide nontradable mercury allowance program; sets mercury emissions
standards for EGUs; and includes monitoring, recordkeeping, reporting
and other provisions.
DATES: Comments must be received on or before October 15, 2007.
ADDRESSES: Submit your comments, identified by Docket ID Number EPA-
R03-OAR-2007-0345, by one of the following methods:
1. https://www.regulations.gov: Follow the on-line instructions for
submitting comments.
2. E-mail: Campbell.Dave@epa.gov.
3. Mail: EPA-R03-OAR-2007-0345, Dave Campbell, Chief, Permits and
Technical Assessment Branch, Mailcode 3AP11, U.S. Environmental
Protection Agency, Region III, 1650 Arch Street, Philadelphia,
Pennsylvania 19103.
4. Hand Delivery or Courier: At the previously-listed EPA Region
III address. Such deliveries are only accepted during the Regional
Office's normal hours of operation.
Instructions: Direct your comments to Docket ID No. EPA-R03-OAR-
2007-0345. EPA's policy is that all comments received will be included
in the public docket without change and may be made available online at
www.regulations.gov, including any personal information provided,
unless the comment includes information claimed to be Confidential
Business Information (CBI) or other information whose disclosure is
restricted by statute. Do not submit through www.regulations.gov or e-
mail, information that you consider to be CBI or otherwise protected.
The www.regulations.gov Web site is an ``anonymous access'' system,
which means EPA will not know your identity or contact information
unless you provide it in the body of your comment. If you send an e-
mail comment directly to EPA without going through www.regulations.gov,
your e-mail address will be automatically captured and included as part
of the comment that is placed in the public docket and made available
on the Internet. If you submit an electronic comment, EPA recommends
that you include your name and other contact information in the body of
your comment and with any disk or CD-ROM you submit. If EPA cannot read
your comment due to technical difficulties and cannot contact you for
clarification, EPA may not be able to consider your comment. Electronic
files should avoid the use of special characters and any form of
encryption and should be free of any defects or viruses. For additional
information about EPA's public docket visit the EPA Docket Center
homepage at https://www.epa.gov/epahome/dockets.htm.
Docket: All documents in the electronic docket are listed in the
www.regulations.gov index. Although listed in the index, some
information is not publicly available, i.e., CBI or other information
whose disclosure is restricted by statute. Certain other material, such
as copyrighted material, is not placed on the Internet and will be
publicly available only in hard copy form. Publicly available docket
materials are available either electronically in www.regulations.gov or
in hard copy during normal business hours at the Air Protection
Division, U.S. Environmental Protection Agency, Region III, 1650 Arch
Street, Philadelphia, Pennsylvania 19103. Copies of the State submittal
are also available at the Pennsylvania Department of Environmental
Resources, Bureau of Air Quality Control, P.O. Box 8468, 400 Market
Street, Harrisburg, Pennsylvania 17105.
FOR FURTHER INFORMATION CONTACT: Mr. Ray Chalmers at 215-814-2061, or
by e-mail at chalmers.ray@epa.gov.
SUPPLEMENTARY INFORMATION:
Table of Contents
I. What Action Is EPA Proposing To Take?
II. What Is the Regulatory History of CAMR?
III. What Are the General Requirements of CAMR?
IV. How Can States Comply With CAMR?
V. Analysis of Pennsylvania's CAMR State Plan Submittal
A. EPA Is Proposing To Find That Pennsylvania's State Plan Meets
All CAMR Budget Related and Other Requirements for Approval
B. Summary of State Plan
VI. Statutory and Executive Order Reviews
I. What Action Is EPA Proposing To Take?
EPA is proposing to approve Pennsylvania's State Plan for the
control of mercury emissions from coal-fired EGUs, as submitted by
Pennsylvania on November 6, 2006, and as subsequently revised by
Pennsylvania on March 16, 2007. EPA is proposing to determine that the
State Plan will meet the applicable requirements of CAMR. In its State
Plan, Pennsylvania would meet CAMR requirements by implementing a
Pennsylvania-specific mercury control regulation for coal-fired EGUs,
rather than through participation in the EPA-administered CAMR cap-and-
trade program. Pennsylvania's state-specific regulation establishes
annual emission limitations as part of a Statewide mercury nontradable
allowance program; sets mercury emissions standards; and includes other
requirements for the purpose of controlling mercury emissions from
coal-fired EGUs.
II. What Is the Regulatory History of CAMR?
CAMR was published by EPA on May 18, 2005 (70 FR 28606, ``Standards
of Performance for New and Existing Stationary Sources: Electric
Utility Steam Generating Units; Final Rule''). In this rule, acting
pursuant to its authority under section 111(d) of the Clean Air Act
(CAA), 42 U.S.C. 7411(d), EPA required that all States and the District
of Columbia (all of which are referred to herein as States) meet
Statewide annual budgets limiting mercury emissions from coal-fired
EGUs (as defined in 40 CFR 60.24(h)(8)) under Clean Air Act (CAA)
section 111(d). EPA required all States to submit State Plans with
control measures that ensure that total, annual mercury emissions from
the coal-fired EGUs located in the respective States do not exceed the
applicable Statewide annual EGU mercury budget. Under CAMR, States may
implement and enforce these reduction requirements by participating in
the EPA-administered cap-and-trade program or by adopting any other
effective and enforceable control measures.
CAA section 111(d) requires States, and, along with CAA section
301(d) and the Tribal Air Rule (40 CFR part 49), allows Tribes granted
treatment as States (TAS), to submit State Plans to EPA that implement
and enforce the standards of performance. CAMR explains what must be
included in State Plans to address the requirements of CAA section
111(d). The State Plans were due to EPA by November 17, 2006. Under 40
CFR 60.27(b), the Administrator will approve or disapprove the State
Plans.
III. What Are the General Requirements of CAMR State Plans?
CAMR establishes Statewide annual EGU mercury emission budgets and
is to
[[Page 52327]]
be implemented in two Phases. The first Phase of reductions starts in
2010 and continues through 2017. The second Phase of reductions starts
in 2018 and continues thereafter. CAMR requires States to implement the
budgets by either: (1) Requiring coal-fired EGUs to participate in the
EPA-administered cap-and-trade program; or (2) adopting other coal-
fired EGU control measures of the respective State's choosing and
demonstrating that such control measures will result in compliance with
the applicable State annual EGU mercury budget.
Each State Plan must require coal-fired EGUs to comply with the
monitoring, recordkeeping, and reporting provisions of 40 CFR part 75
concerning mercury mass emissions. Each State Plan must also show that
the State has the legal authority to adopt emission standards and
compliance schedules necessary for attainment and maintenance of the
State's annual EGU mercury budget and to require the owners and
operators of coal-fired EGUs in the State to meet the monitoring,
recordkeeping, and reporting requirements of 40 CFR part 75.
IV. How Can States Comply With CAMR?
Each State Plan must impose control requirements that the State
demonstrates will limit Statewide annual mercury emissions from new and
existing coal-fired EGUs to the amount of the State's applicable annual
EGU mercury budget. States have the flexibility to choose the type of
EGU control measures they will use to meet the requirements of CAMR.
EPA anticipates that many States will choose to meet the CAMR
requirements by selecting an option that requires EGUs to participate
in the EPA-administered CAMR cap-and-trade program. EPA also
anticipates that many States may choose to control Statewide annual
mercury emissions for new and existing coal-fired EGUs through an
alternative mechanism other than the EPA-administered CAMR cap-and-
trade program. Each State that chooses an alternative mechanism must
include with its plan a demonstration that the State Plan will ensure
that the State will meet its assigned State annual EGU mercury emission
budget.
A State submitting a State Plan that requires coal-fired EGUs to
participate in the EPA-administered CAMR cap-and-trade program may
either adopt regulations that are substantively identical to the EPA
model mercury trading rule (40 CFR part 60, subpart HHHH) or
incorporate by reference the model rule. CAMR provides that States may
only make limited changes to the model rule if the States want to
participate in the EPA-administered trading program. A State Plan may
change the model rule only by altering the allowance allocation
provisions to provide for State-specific allocation of mercury
allowances using a methodology chosen by the State. A State's
alternative allowance allocation provisions must meet certain
allocation timing requirements and must ensure that total allocations
for each calendar year will not exceed the State's annual EGU mercury
budget for that year.
V. Analysis of Pennsylvania's CAMR State Plan Submittal
A. EPA Is Proposing To Find That Pennsylvania's State Plan Meets All
CAMR Budget Related and Other Requirements for Approval
In today's action, EPA is proposing to approve Pennsylvania's State
Plan as assuring that mercury emissions from the State's EGUs will not
exceed the levels specified in the CAMR budget for Pennsylvania found
at 40 CFR 60.24(h)(3), i.e., 1.779 tons per year for EGU mercury
emissions in Phase 1 and 0.702 tons per year for EGU mercury emissions
in Phase 2.
The State Plan includes a State-specific regulation which requires
owners or operators of affected new or existing coal-fired EGUs \1\ to
comply with a Statewide mercury nontradable allowance program among
other provisions. Pennsylvania assured that the regulation would apply
to all of the EGUs which have emissions required to be accounted for
under the CAMR budget for Pennsylvania by using in the regulation a
definition of EGU consistent with the definition specified in CAMR at
40 CFR 60.24(h)(8). Pennsylvania's Statewide mercury nontradable
allowance program, limits total mercury emissions from EGUs in the
State to the same Phase 1 and Phase 2 amounts as are set forth in the
CAMR budget for Pennsylvania found at 40 CFR 60.24(h)(3).
Pennsylvania's mercury nontradeable allowance program requires its
Phase 1 reductions to be achieved starting January 1, 2010, the same
date as the Phase 1 reductions are required to be achieved under the
CAMR, but requires its Phase 2 reductions to be achieved starting
January 1, 2015, earlier than the required Phase 2 reductions under
CAMR.
---------------------------------------------------------------------------
\1\ EPA notes that Pennsylvania's definitions of ``existing
EGU'' and ``new EGU'' overlap in that an EGU that ``commenced
construction, modification, or reconstruction'' on January 1, 2004
would be covered by both definitions. EPA believes that this
technical problem with the rule will likely have no practical
consequence since it is unlikely that there will be such a unit and
Pennsylvania can resolve this if and when a problem arises.
Therefore, EPA's proposed approval includes these definitions.
---------------------------------------------------------------------------
Pennsylvania's State-specific regulation implements the annual
limits on total mercury emissions of EGUs in the State by setting aside
for each EGU an amount of nontradable allowances that comprises the
annual emission limitation (in ounces of mercury emissions) for that
EGU. The amount set aside may include allowances requested by the owner
or operator and provided from an annual emission limitation supplement
pool. Further, the regulation states, in Sec. 123.207(p), that an
owner or operator must demonstrate compliance with annual emission
limitation on a unit-by-unit, facility-wide, or system-wide basis and
explains, in Sec. 123.207(q) and (r), that, under facility-wide or
system-wide compliance, the total annual emissions from the EGUs
involved must be less than the total amount of allowable annual
emissions for such EGUs. However, the regulation also provides, in
Sec. Sec. 123.207(j)(5) and 123.209, that each ounce of emissions by
an EGU, facility, or system, as applicable, in excess of the amount of
allowances set aside for the EGU, facility, or system, including any
set aside under Sec. 123.209, constitutes a violation. EPA interprets
Sec. 123.207(j)(5) and (p) through (r) and Sec. 123.209 as requiring
that the total mercury emissions from an EGU, or from the appropriate
group of EGUs where compliance is on a facility-wide or system-wide
basis, determined in accordance with Sec. Sec. 123.210-123.215, must
not exceed the total amount of allowances set aside for the EGU or the
appropriate group of EGUs, including any allowances set aside from the
annual emission limitation supplement pool, for the year.
It should be noted that Pennsylvania's mercury reduction regulation
also restricts the emissions of mercury from existing and new coal-
fired EGUs through the imposition of emission standards. These
standards, established in Sec. 123.205, are to be achieved in addition
to the Statewide mercury nontradeable allowance program provisions
described above. The CAMR does not establish or require similar
emissions standards to be applied to individual emission units. As
discussed above, CAMR requires a demonstration that the State Plan will
ensure that the State will meet its assigned State annual EGU mercury
emission budget. Pennsylvania meets this requirement through the
establishment of its Statewide nontradeable mercury allowance program
and not through the
[[Page 52328]]
emission limitations required by Sec. 123.205.
In addition, EPA is proposing to approve Pennsylvania's Plan,
interpreted as discussed below, as meeting the CAMR provision that
State plans must require owners and operators of coal-fired EGUs to
meet the monitoring, recordkeeping, and reporting requirements of 40
CFR part 75. The provisions of the regulation included in the State's
plan concerning monitoring, recordkeeping, and reporting, found at
Sec. Sec. 123.210-123.215, are intended to be consistent with the
monitoring, reporting, and recordkeeping requirements for mercury mass
emissions in 40 CFR part 75, Subpart I and in EPA's CAMR model rule,
which is based on and references 40 CFR part 75, Subpart I. Section
123.210(a) and (b) states that, for purposes of compliance with 12-
month rolling average mercury emission requirements in Sec. 123.205
and annual mercury mass emission requirements in Sec. 123.207, the
monitoring, reporting, and recordkeeping requirements of Sec. Sec.
123.210-123.215 and 139.101, 40 CFR part 75, Subpart I, and
Pennsylvania's Continuous Source Monitoring Manual (DEP 274-0300-001)
apply. The manual (at 1), in turn, states that part 75 applies to
``monitoring systems required pursuant to only'' part 75 (e.g., mercury
mass monitoring systems) and that ``[a]pproval for compliance with
[part 75] must be obtained from'' EPA. In addition, Sec. 123.210(k)
states that an owner or operator may not use any alternative to a part
75 requirement unless the alternative is approved by the Administrator
in writing. EPA therefore interprets the monitoring, reporting, and
recordkeeping requirements in Pennsylvania's regulation as requiring
owners and operators to meet the requirements of 40 CFR part 75,
Subpart I and providing that, if there is any conflict between those
requirements and any other requirements set forth in Sec. Sec.
123.210-123.215, the part 75 provisions will take precedence for the
purpose of compliance with annual mercury mass emission requirements.
Specifically, Pennsylvania's regulation includes provisions, in
Sec. 123.210(n)(1), allowing discontinuation of use of an approved
monitoring system when the owner or operator is using another certified
monitoring system for the appropriate parameter that is approved by the
department in accordance with Sec. Sec. 123.210-123.215 and Chapter
139, Subchapter C. In light of the other provisions of Pennsylvania's
regulation discussed above, EPA interprets Sec. 123.210(n)(1) as
allowing discontinuation of an approved monitoring system used for
determining compliance with the annual mercury mass emission
requirements in Sec. 123.207 only if another monitoring system for the
appropriate parameter is approved in accordance with part 75, subpart
I.\2\
---------------------------------------------------------------------------
\2\ EPA notes that Sec. 123.210(j) incorrectly references
``subsections (f)-(h)'' (rather than just subsection (h)) and that
the provision only makes sense where a certified monitoring system
already exists and a new stack or flue or new control device is
added, which is addressed only in subsection (h). In any event, that
Sec. 123.210(j) is based on a provision in Sec. 60.4170(c)(2) that
EPA has proposed to remove. See 71 FR 77100, 77117 (2006). EPA
interprets Sec. 123.210(j) to apply only with regard to subsection
(h), and, if EPA finalizes removal of Sec. 60.4170(c)(2), Sec.
123.210(j ) will no longer apply at all for the purpose of
compliance with the annual mercury mass emission limitation under
Sec. 123.207.
---------------------------------------------------------------------------
Further, Pennsylvania's regulation includes provisions, in Sec.
123.211(a)(5)(iii), requiring the substitution of alternative data in
cases where the State ``issues a notice of disapproval of a
certification application or a notice of disapproval of certification
status'' and allowing the substitution of either data values as
specified in part 75 or ``an alternative emission value that is more
representative of actual emissions that occurred during the period.''
In light of the other provisions of Pennsylvania's regulation discussed
above, EPA interprets Sec. 123.211(a)(5)(iii) as giving Pennsylvania
the authority to approve substitute data values other than those
specified by part 75 only in cases where those data values would be
used solely for the purpose of showing compliance with the mercury
emission requirements in Sec. 123.205 and not for any data required
for the purpose of showing compliance with the annual mercury mass
emission limitation in Sec. 123.207.
Similarly, Sec. 123.212(a) of Pennsylvania's regulations requires
the use of substitute data based on the Continuous Source Monitoring
Manual if a monitoring system fails to meet certain quality-assurance,
quality-control, or data validation requirements. As discussed above,
the manual requires mercury mass emission monitoring systems to meet
the requirements of part 75. Further, Sec. 123.212(a) also states that
a mercury mass emission monitoring system failing to meet quality-
assurance or quality-control requirements must use substitute data
under part 75. EPA therefore interprets Sec. 123.212(a) to require the
use of substitute data as prescribed in part 75 for the purpose of
showing compliance with the annual mercury mass emission limitation in
Sec. 123.207.
EPA is also proposing to approve the Plan as meeting the
requirements of CAMR, and also of 40 CFR Subpart B, entitled,
``Adoption and Submittal of State Plans for Designated Facilities,''
for a demonstration of legal authority. The State's Plan includes an
opinion by the Chief Counsel of the Pennsylvania Department of
Environmental Protection which demonstrates that the State has the
required legal authority to adopt emission standards and compliance
schedules necessary for attainment and maintenance of the State's
annual EGU mercury budget and to require the owners and operators of
coal-fired EGUs in the State to meet the monitoring, recordkeeping, and
reporting requirements of 40 CFR part 75.
Finally, EPA is proposing to approve the State's Plan as meeting
the other applicable general requirements for approval under 40 CFR
part 60, subpart B. The State's Plan requires owners and operators of
affected coal-fired EGUs in Pennsylvania to comply with emission
limitations (expressed as nontradable mercury allowances) that ensure
that total emissions from the affected coal-fired EGUs in Pennsylvania
will not exceed the CAMR budget for Pennsylvania found at 40 CFR
60.24(h)(3). The State's Plan also requires owners or operators of
affected coal-fired EGUs to achieve mercury emission reductions on a
schedule that is equivalent to, or more rapid than, the schedule under
CAMR. The State's Plan includes evidence that three public hearings
were held, and also that public notice of these hearings was provided.
The State's Plan also includes an emissions inventory of the State's
EGUs.
EPA describes the State's Plan in more detail below.
B. Summary of State Plan
Pennsylvania's State Plan includes a State regulation at 25 Pa.
Code, Chapter 123, Standards for Contaminants; Mercury, Annex A.
Pennsylvania's state-specific mercury control regulation establishes
annual mercury emission limitations for EGUs as part of a Statewide
mercury nontradable allowance program, sets mercury emissions standards
for EGUs, and includes monitoring, recordkeeping, reporting and other
provisions.
Pennsylvania's State-specific regulation is applicable to all of
the EGUs which have emissions required to be accounted for under the
CAMR budget for Pennsylvania found at 40 CFR 60.24(h)(3). Pennsylvania
assured that the regulation would apply to all of the EGUs which have
emissions required to be accounted for under the CAMR budget for
Pennsylvania by using
[[Page 52329]]
in the regulation a definition of EGU consistent with the definition
specified in CAMR at 40 CFR 60.24(h)(8).
The Statewide mercury nontradable allowance program ensures that
the mercury emissions from new and existing EGUs in the State will not
exceed the CAMR budget for Pennsylvania found at 40 CFR 60.24(h)(3) by
limiting total mercury emissions from EGUs in the State to the same
Phase 1 and Phase 2 amounts as specified in the CAMR budget for the
State. Under the Statewide mercury nontradable mercury allowance
program the total amount of mercury emissions allowed to be emitted
from affected coal-fired EGUs is 56,928 ounces (3,558 lbs or 1.779
tons) per year during Phase 1 extending from January 1, 2010 through
December 31, 2014, and 22,464 ounces (1,404 pounds or 0.702 tons) per
year during Phase 2 starting January 1, 2015 (rather than January 1,
2018, as specified in the CAMR budget for Pennsylvania found at 40 CFR
60.24(h)(3)) and continuing in subsequent years.
The Statewide mercury nontradable allowance program provides that
of the total of 56,928 ounces per year of mercury emissions available
for emission limitation set-asides during Phase 1, 54,080 ounces will
be allocated to existing affected EGUs and the remaining five (5)
percent will be set-aside for use by new affected EGUs. The Statewide
mercury nontradable allowance program further provides that of the
22,464 ounces per year of mercury emissions available for emission
limitation set-asides during Phase 2, 21,790 ounces will be allocated
to existing affected coal-fired EGUs and the remaining three (3)
percent will be set aside for new affected coal-fired EGUs.
The Statewide mercury nontradable allowance program provides that
the annual nontradeable allowances set aside for owners and operators
of new affected coal-fired EGUs shall be placed in an annual emission
limitation supplement pool administered by the State. Upon petition by
owners or operators of new affected EGUs, Pennsylvania may grant annual
nontradeable allowances for the new affected coal-fired EGUs from this
annual emission limitation supplement pool.
Under the Statewide mercury nontradable allowance program owners or
operators of new affected coal-fired EGUs that do not yet have a
baseline heat input will be allocated allowances in accordance with the
requirements of an approved State permit. The Statewide mercury
nontradable allowance program specifies that after a new affected coal-
fired EGU has commenced operation and completed three control periods
of operation, the EGU will become an existing EGU. The Statewide
mercury nontradable allowance program provides that a new affected EGU
will continue to receive annual nontradeable mercury allowances from
the new unit set-aside until the new affected EGU is eligible for
annual nontradable mercury allowances allocated from the set-aside for
existing EGUs. Under the allowance program when a new affected EGU is
eligible to receive annual nontradable mercury allowances from the set-
aside for existing affected EGUs, new maximum allowance levels for all
existing affected EGUs will be established, and the State will publish
these new allocation levels in the Pennsylvania Bulletin for comment by
May 31 of the year that is two years prior to the affected control
period.
The Statewide mercury nontradable allowance program provides for
determining the maximum number of annual nontradeable allowances set
aside for the owners or operators of all existing affected coal-fired
EGUs, except for owners or operators of existing circulating fluidized
bed (CFB) units, by multiplying the EGU's baseline heat input fraction
of the State's total baseline annual heat input from all affected EGUs
by the State's annual mercury allowance set-aside for existing affected
EGUs for each Phase.
The Statewide mercury nontradable allowance program provides for
determining the maximum number of annual nontradable mercury allowances
set aside for owners or operators of existing affected CFB units by
multiplying the affected CFB's baseline heat input fraction of the
State's total baseline annual heat input for all EGUs by the State's
Phase 2 annual mercury allowance for existing EGUs.
The Statewide mercury nontradable allowance program provides that
the State will publish for comment in the Pennsylvania Bulletin, by May
31, 2008, the maximum number of annual nontradeable allowances set
aside for ``the owner or operator of each existing affected CFB and EGU
other than CFB for Phase 1 of the Statewide mercury allowance
program,'' and that it will publish for comment in the Pennsylvania
Bulletin, by May 31, 2013, the maximum number of annual nontradeable
allowances set aside for ``the owner or operator of each existing
affected CFB and EGU other than CFB for Phase 2 of the Statewide
mercury allowance program.''
The Statewide mercury nontradable allowance program specifies that
the actual number of annual nontradable mercury allowances awarded to
the owner or operator of the EGU, facility, or system shall be based on
the actual emissions reported to the State. The Statewide mercury
nontradable allowance program further specifies that the actual number
of annual nontradable mercury allowances awarded to the owner or
operator of the EGU, facility, or system may not exceed the maximum
number of annual nontradeable mercury allowances assigned to the owner
or operator of the EGU, facility, or system, except in cases where the
owner or operator has petitioned for and been granted supplemental
allowances. Under the Statewide mercury nontradable allowance program
the State could provide such allowances from its annual emission
limitation supplement pool.
The Statewide mercury nontradable allowance program provides that
by March 31 of the year following each reporting year, Pennsylvania
will notify the owner or operator of each affected EGU, facility, or
system, in writing, of the actual number of annual nontradable mercury
allowances awarded to the owner or operator of the affected EGU,
facility, or system for the control period.
The Statewide mercury nontradable allowance program provides that
the owner or operator of one or more affected mercury allowance program
EGUs shall demonstrate compliance either on: (1) A unit-by-unit basis,
(2) a facility-wide basis, or (3) a system-wide basis. Under the
Statewide mercury nontradable allowance program, each ounce of mercury
emitted in excess of the maximum number of annual nontradable mercury
allowances set aside for the owner or operator of an EGU, facility, or
system constitutes a violation of the program and of Pennsylvania's Air
Pollution Control Act, unless the owner or operator has petitioned for
and has been granted supplemental allowances.
Under the Statewide mercury nontradable allowance program if the
actual emissions of mercury reported to the State for an EGU, facility,
or system are less than the maximum number of annual nontradeable
mercury allowances set aside for the owner or operator of the EGU,
facility, or system, the State will place the unused portion of the
allowances in its annual emission limitation supplement pool.
The Statewide mercury nontradable allowance program specifies that
the unused portion of annual nontradeable mercury emission allowances
assigned
[[Page 52330]]
to the owner or operator of an affected EGU, facility, or system for
any year may not be added to the maximum number of annual nontradable
mercury allowances assigned to the owner or operator of the affected
EGU, facility, or system for use in future years. Under the Statewide
mercury nontradable allowance program annual nontradable mercury
allowances may not be banked for use in future years.
The Statewide mercury nontradable allowance program does not apply
to the owner or operator of an EGU that will be permanently shutdown no
later than December 31, 2009. The allowance program provides that
annual nontradable mercury allowances will not be set aside for the
owner or operator of an existing affected EGU that is already shut down
or scheduled for shutdown unless the owner or operator of the EGU
obtains a plan approval for the construction of a new EGU, or is on
``standby'' as of the effective date of each set-aside Phase. When a
standby unit is ready for normal operation, the owner or operator may
petition the State for annual nontradeable allowances. Under the
regulation's allowance program the State could provide such allowances
from its annual emission limitation supplement pool.
The Statewide mercury nontradable allowance program specifies that
an owner or operator of an existing affected EGU who enters into an
enforceable agreement with the State, by December 31, 2007, to shutdown
that existing EGU and to replace it, by December 31, 2012, with a new
Integrated Gasification Combined Cycle (IGCC) unit, is eligible to
request annual nontradable mercury allowances from the annual emission
limitation supplement pool.
The Statewide mercury nontradable allowance program provides that
the State may revise the percentage of set-aside used to determine the
number of ounces of mercury set-aside for future annual mercury
emission limitations to accommodate the emissions from new EGUs, or
changes in the calculation of baseline heat input, so that the total
number of ounces of mercury emissions in the Statewide mercury
nontradable allowance program is not exceeded.
Pennsylvania's regulation requires owners or operators of EGUs not
only to keep the emissions of their EGUs at or below levels consistent
with their allowances for their EGUs, but also to meet emission limits.
The emission limits for EGUS vary depending upon whether or not the EGU
qualifies as a new or existing unit and on the type of EGU.
The regulation defines a new EGU as ``[a]n EGU which commenced
construction modification, or reconstruction, as defined under 40 CFR
Part 60 (relating to standards of performance for new stationary
sources), on or after January 30, 2004, and has less than three
complete control periods of heat input data as of December 31 of the
preceding control period.'' The regulation defines an existing EGU as
``[a]n EGU which commenced construction, modification or reconstruction
on or before January 30, 2004, or which has three complete control
periods of heat input data as of December 31 or the preceding control
period.''
For new EGUs, Pennsylvania's regulation requires the owner or
operator to comply at the commencement of operation on a rolling 12
month basis with one of the following standards:
(1) Pulverized Coal Fired (PCF) EGU. The owner or operator of a PCF
EGU shall comply with either or the following:
(i) A mercury emission standard of 0.011 pound of mercury per
Gigawatt-hour (GWh).
(ii) A minimum 90% control of total mercury as measured from the
mercury content in the coal, either as fired or as approved in writing
by Pennsylvania.
(2) Circulating Fluidized Bed (CFB) EGU. The owner or operator of a
CFB EGU shall comply with the following applicable provisions:
(i) CFB EGUs burning 100% coal refuse as the only solid fossil fuel
shall comply with either of the following:
(A) A mercury emission standard of 0.0096 pound of mercury per GWh.
(B) A minimum 95% control of total mercury as measured from the
mercury content in the coal refuse, either as fired or as approved in
writing by the State.
(ii) CFB EGU's burning 100% coal as the only solid fossil fuel
shall comply with either of the following:
(A) A mercury emission standard of 0.011 pound of mercury per GWh.
(B) A minimum 90% control of total mercury as measured from the
mercury content in the coal refuse, either as fired or as approved in
writing by the State.
(iii) CFB EGUs burning multiple fuels shall comply with a prorated
emission standard based on the percentage of heat input from the coal
and the percentage of heat input from the coal refuse.
(3) Integrated Gasification Combined Cycle (IGCC) EGU. The owner or
operator of an IGCC EGU shall comply with one of the following:
(i) A mercury emission standard of 0.0048 pound of mercury per GWh.
(ii) A minimum 95% control of total mercury as measured from the
mercury content in the coal, either as processed or as approved in
writing by the State.
Pennsylvania's regulation notifies owners or operators of new EGUs
that they are also required to comply with the New Source Performance
Standards (NSPS) found at 40 CFR Part 60, Subpart Da. In addition, the
regulation indicates that the State's emission standards will serve as
the baseline the State uses for review and approval of case-by-case
best available technology determinations in accordance with the State's
requirements relating to construction, modification, reactivation and
operation of sources.
For existing EGUs, the regulation requires the owner or operator to
comply on a rolling 12-month basis with one of the following standards:
(1) Phase 1--Effective from January 1, 2010 through December 31,
2014:
(i) PCF EGU--The owner or operator of a PCF shall comply with one
of the following:
(A) A mercury emission standard of 0.024 pound of mercury per GWh.
(B) A minimum 80% control of total mercury as measured from the
mercury content in the coal, either as fired or as approved in writing
by the State.
(ii) CFB EGU--The owner or operator of a CFB burning coal refuse
shall comply with one of the following:
(A) A mercury emission standard of 0.0096 pound of mercury per GWh.
(B) A minimum 95% control of total mercury as measured from the
mercury content in the coal refuse, either as fired or as approved in
writing by the State.
(2) Phase 2--Effective beginning January 1, 2015, and each
subsequent year:
(i) PCF EGU--The owner or operator of a PCF shall comply with one
of the following:
(A) A mercury emission standard of 0.012 pound of mercury per GWh.
(B) A minimum 90% control of total mercury as measured from the
mercury content in the coal, either as fired or as approved in writing
by the State.
(ii) CFB EGU--The owner or operator of a CFB burning coal refuse
shall comply with one of the following:
(A) A mercury emission standard of 0.0096 pound of mercury per GWh.
(B) A minimum 95% control of total mercury as measured from the
mercury content in the coal refuse, either as fired or as approved in
writing by the State.
The regulation also provides that the owner or operator of an EGU
may request, in writing, credit for the mercury removal efficiency
resulting from the pretreatment of coal or coal refuse towards the
minimum specified percent control efficiency of the total mercury
requirements.
[[Page 52331]]
The regulation provides that the owner or operator of one or more
EGUs subject to the mercury emissions standards shall demonstrate
compliance on: (1) A unit-by-unit basis, or (2) a facility-wide basis.
Pennsylvania's regulation requires owners or operators of coal-
fired EGUs to comply with the monitoring, recordkeeping, and reporting
provisions of 40 CFR part 75 concerning mercury mass emissions. The
regulation provides that the monitoring, recordkeeping, and reporting
requirements of 40 CFR part 75 Subpart I (relating to mercury mass
emission provisions) apply, as well as other monitoring, recordkeeping
and reporting provisions which are Pennsylvania-specific, as discussed
in detail above. The regulation further indicates that Pennsylvania has
adopted by reference the provisions entitled ``Mercury Designated
Representative for Mercury Budget Sources,'' found in EPA's model rule,
40 CFR part 60, Subpart HHHH, at sections 60.4110 through 60.4114. In
addition, the regulation provides that, for purposes of complying with
its requirements, the definitions in 40 CFR 72.2 shall apply.
The regulation also includes provisions pertaining to initial
certification and recertification procedures for emissions reporting,
provisions for out-of-control periods for emissions monitors,
provisions pertaining to monitoring of gross electrical output,
provisions pertaining to coal sampling and analysis for input mercury
levels, and provisions pertaining to general recordkeeping and
reporting.
The regulation provides that owners or operators of new or existing
affected EGUs will be issued a State plan approval or operating permit
(including Title V permits) in which the applicable mercury control
requirements will be specified. The regulation specifies that these
plan approvals or permits will be issued before the later of January 1,
2010 or the date on which the affected EGU commences operation.
The regulation further provides, at Sec. 123.206, that the State's
Department of Environmental Protection (the Department) ``may approve
in a plan approval or operating permit, or both, an alternate mercury
emission standard or compliance schedule, or both, if the owner or
operator of an EGU subject to the emission standards of Sec. 123.205
demonstrates in writing to the Department's satisfaction that the
mercury reduction requirements are economically or technologically
infeasible. The Department's approval of such an alternative emission
standard or compliance schedule does not relieve the owner or operator
of the EGU from complying with the other requirements of Sec. Sec.
123.201-123.205 and 123.207-123.215.''
The State Plan also contains required non-regulatory elements. The
State Plan includes an inventory of the existing designated coal-fired
EGUs in the State, and provides data regarding the mercury emissions of
these EGUs. The Plan also provides documentation of the State's public
participation process, including copies of public notices announcing
public hearings and the opportunity to comment, a certification that
three public hearings were held, and a summary of comments received by
the State and of the State's responses. Further, the Plan includes a
legal opinion of the Chief Counsel of the Pennsylvania Department of
Environmental Protection which demonstrates that the State has the
legal authority to adopt emission standards and compliance schedules
necessary for attainment and maintenance of the State's annual EGU
mercury budget and to require the owners and operators of coal-fired
EGUs in the State to meet the monitoring, recordkeeping, and reporting
requirements of 40 CFR part 75.
VI. Statutory and Executive Order Reviews
Under Executive Order 12866 (58 FR 51735, October 4, 1993), this
proposed action is not a ``significant regulatory action'' and
therefore is not subject to review by the Office of Management and
Budget. For this reason, this action is also not subject to Executive
Order 13211, ``Actions Concerning Regulations That Significantly Affect
Energy Supply, Distribution, or Use'' (66 FR 28355, May 22, 2001). This
action merely proposes to approve State law as meeting Federal
requirements and would impose no additional requirements beyond those
imposed by State law. Accordingly, the Administrator certifies that
this proposed rule would not have a significant economic impact on a
substantial number of small entities under the Regulatory Flexibility
Act (5 U.S.C. 601 et seq.). Because this action proposes to approve
pre-existing requirements under State law and would not impose any
additional enforceable duty beyond that required by State law, it does
not contain any unfunded mandate or significantly or uniquely affect
small governments, as described in the Unfunded Mandates Reform Act of
1995 (Pub. L. 104-4).
This proposal also does not have Tribal implications because it
would not have a substantial direct effect on one or more Indian
tribes, on the relationship between the Federal Government and Indian
tribes, or on the distribution of power and responsibilities between
the Federal Government and Indian tribes, as specified by Executive
Order 13175 (65 FR 67249, November 9, 2000).
This proposed action also does not have Federalism implications
because it would not have substantial direct effects on the States, on
the relationship between the national government and the States, or on
the distribution of power and responsibilities among the various levels
of government, as specified in Executive Order 13132 (64 FR 43255,
August 10, 1999). This action merely proposes to approve a State rule
implementing a Federal standard. It does not alter the relationship or
the distribution of power and responsibilities established in the CAA.
This proposed rule also is not subject to Executive Order 13045
``Protection of Children from Environmental Health Risks and Safety
Risks'' (62 FR 19885, April 23, 1997), because it approves a state rule
implementing a Federal standard.
Executive Order 12898, ``Federal Actions to Address Environmental
Justice in Minority Populations and Low-Income Populations,'' requires
Federal agencies to consider the impact of programs, policies, and
activities on minority populations and low-income populations. EPA
guidance \3\ states that EPA is to assess whether minority or low-
income populations face risk or a rate of exposure to hazards that is
significant and that ``appreciably exceed[s] or is likely to
appreciably exceed the risk or rate to the general population or to the
appropriate comparison group.'' (EPA, 1998) Because this rule merely
proposes to approve a state rule implementing the Federal standard
established by CAMR, EPA lacks the discretionary authority to modify
today's regulatory decision on the basis of environmental justice
considerations. However, EPA has already considered the impact of CAMR,
including this Federal standard, on minority and low-income
populations. In the context of EPA's CAMR published in the Federal
Register on May 18, 2005, in accordance with EO 12898, the Agency has
considered whether CAMR may have disproportionate negative impacts on
minority or low income populations and determined it would not.
---------------------------------------------------------------------------
\3\ U.S. Environmental Protection Agency, 1998. Guidance for
Incorporating Environmental Justice Concerns in EPA's NEPA
Compliance Analyses. Office of Federal Activities, Washington, DC,
April, 1998.
---------------------------------------------------------------------------
In reviewing State Plan submissions, EPA's role is to approve State
choices,
[[Page 52332]]
provided that they meet the criteria of the CAA. In this context, in
the absence of a prior existing requirement for the State to use
voluntary consensus standards (VCS), EPA has no authority to disapprove
a State Plan for failure to use VCS. It would thus be inconsistent with
applicable law for EPA, when it reviews a State Plan submission, to use
VCS in place of a State Plan submission that otherwise satisfies the
provisions of the CAA. Thus, the requirements of section 12(d) of the
National Technology Transfer and Advancement Act of 1995 (15 U.S.C. 272
note) do not apply. This rule proposing to approve Pennsylvania's State
Plan submittal for the CAMR requirements would not impose an
information collection burden under the provisions of the Paperwork
Reduction Act of 1995 (44 U.S.C. 3501 et seq.).
List of Subjects in 40 CFR Part 62
Environmental protection, Air pollution control, Electric
utilities, Intergovernmental relations, Mercury, Reporting and
recordkeeping requirements.
Authority: 42 U.S.C. 7401 et seq.
Dated: September 4, 2007.
Donald S. Welsh,
Regional Administrator, Region III.
[FR Doc. E7-18057 Filed 9-12-07; 8:45 am]
BILLING CODE 6560-50-P