[Federal Register Volume 60, Number 215 (Tuesday, November 7, 1995)]
[Proposed Rules]
[Pages 56133-56136]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 95-27568]



-----------------------------------------------------------------------


ENVIRONMENTAL PROTECTION AGENCY
40 CFR Part 63

[FRL-5325-6]
RIN 2060-AD93


National Emission Standards for Hazardous Air Pollutants for 
Source Categories: Gasoline Distribution (Stage 1)

AGENCY: Environmental Protection Agency (EPA).

ACTION: Proposed amendments.

-----------------------------------------------------------------------

SUMMARY: Today's action provided in this document proposes to amend the 
rule, ``National Emission Standards for Hazardous Air Pollutants for 
Source Categories: Gasoline Distribution (Stage I)'' (the ``Gasoline 
Distribution NESHAP''), promulgated on December 14, 1994. The proposal 
would amend the initial compliance date for the equipment leak 
provisions applicable to existing sources from no later than December 
14, 1995 to no later than December 15, 1997, and would amend the date 
by which an existing facility must provide an initial notification to 
December 16, 1996 or 1 year after a facility becomes subject to the 
Gasoline Distribution NESHAP, whichever is later. These modifications 
are being proposed because the compliance date for these provisions is 
approaching and the EPA believes that, under current circumstances, 
additional time will allow sources a better opportunity to establish 
major or area source status without foregoing quantifiable emissions 
reductions. The EPA is requesting comments for the next 30 days only on 
the proposed changes discussed in this document.

DATES: Comments. Comments must be received on or before December 7, 
1995 unless a hearing is requested by November 17, 1995. If a hearing 
is requested, written comments must be received by December 22, 1995.
    Public Hearing. Anyone requesting a public hearing must contact the 
EPA no later than November 21, 1995. If a hearing is held, it will take 
place on November 21, 1995, beginning at 9:00 a.m.

ADDRESSES: Comments. Comments should be submitted (in duplicate, if 
possible) to: Air Docket (6102), Attention Docket Number A-92-38 (see 
docket section below), room M1500, U.S. Environmental Protection 
Agency, 401 M St., S.W., Washington, D.C. 20460. The EPA requests that 
a separate copy also be sent to the contact person listed below.
    Public Hearing. If a public hearing is held, it will be held at the 
EPA's Office of Administration Auditorium, Research Triangle Park, 
North Carolina. Persons interested in attending the hearing or wishing 
to present oral testimony should notify Ms. JoLynn Collins, U.S. 
Environmental Protection Agency, Research Triangle Park, N.C. 27711, 
telephone (919) 541-5671.
    Docket. Docket No. A-92-38, Categories VI Reconsideration and VII 
Amendments, contains information considered by the EPA in developing 
this proposal document and is available for public inspection and 
copying between 8:00 a.m. and 4:00 p.m., Monday through Friday, 
including all non-Government holidays, at the EPA's Air and Radiation 
Docket and Information Center, room M1500, U.S. Environmental 
Protection Agency, 401 M Street, SW., Washington, D.C. 20460; telephone 
(202) 260-7548. A reasonable fee may be charged for copying. This 
docket also contains information considered by the EPA in proposing and 
promulgating the Gasoline Distribution NESHAP.

FOR FURTHER INFORMATION CONTACT: Mr. Stephen Shedd at telephone number 
(919) 541-5397 or at facsimile number (919) 541-3470, Emission 
Standards Division (MD-13), U.S. Environmental Protection Agency, 
Research Triangle Park, North Carolina 27711.

SUPPLEMENTARY INFORMATION:

I. Background

    On December 14, 1994 (59 FR 64303), the EPA promulgated the 
``National Emission Standards for Hazardous Air Pollutants for Source 
Categories: Gasoline Distribution (Stage I)'' (the ``Gasoline 
Distribution NESHAP''). The Gasoline Distribution NESHAP regulates all 
hazardous air pollutants (HAP) emitted from new and existing bulk 
gasoline terminals and pipeline breakout stations that are major 
sources of HAP emissions or are located at sites that are major sources 
of HAP emissions. Among the promulgated requirements for existing 
sources under this rule are the requirements that sources institute an 
equipment leak prevention program and provide an initial notification 
of regulatory status no later than December 14, 1995 (40 CFR 
Secs. 63.424(e) and 63.428(a)).
    Whether a bulk gasoline terminal or pipeline breakout station is a 
major source or at a site that is a major source is determined by a 
site's ``potential to emit considering controls'' (Act 112(a), 42 
U.S.C. 7412(a)). In the Gasoline Distribution NESHAP, the EPA 
promulgated two mechanisms for determining major source status that are 
specific to this rule: first, the NESHAP included screening equations 
for determining potential emissions from terminals and breakout 
stations based on the HAP content of gasoline, gasoline throughput, and 
emission rates from equipment used to handle gasoline; and second, the 
NESHAP allowed for case-by-case review or ``emissions inventory'' of a 
site's emissions (40 CFR Sec. 63.420). The equations could be used only 
by bulk terminals and pipeline breakout stations that were at sites 
that had no other sources of HAP. Other sources would be able to 
establish potential to emit either by an emissions inventory or by 
using other means (outside the rule) that are generally available to 
sources under Subpart A of part 63, the General Provisions, and related 
guidance.
    When the EPA promulgated the Gasoline Distribution NESHAP, the EPA 
anticipated that about 75 percent of all gasoline bulk terminals and 
pipeline breakout stations would be able to establish area source 
status. However, the EPA recognizes that several developments since 
promulgation of the rule have affected the number of sources that will 
establish area source status.
    First, through a petition for reconsideration filed by the American 
Petroleum Institute (API), the EPA has learned that virtually all bulk 
terminals and pipeline breakout stations have HAP containing fluids 
such as distillates (e.g., diesel fuel and heating fuel oil) that are 
handled in equipment outside of the source category. According to API, 
this limits the utility of the emissions screening equation as a method 
for establishing potential to emit.
    Second, the EPA has issued two guidance memoranda on options for 
and timing of establishing potential to emit limits. See memorandum 
from John S. Seitz, Director, Office of Air Quality Planning and 
Standards, and Robert I. Van Heuvelen, Director, Office of Regulatory 
Enforcement, ``Options for Limiting the Potential to Emit (PTE) of 

[[Page 56134]]
a Stationary Source under Section 112 and Title V of the Clean Air Act 
(Act)'' (January 25, 1995); and memorandum from John S. Seitz, 
``Potential to Emit for MACT Standards--Guidance on Timing Issues'' 
(May 16, 1995). These memoranda are available in the docket (see 
ADDRESSES section). The first memorandum identified a number of ways 
States and sources could establish federally enforceable limits for 
potential to emit. In addition, the memorandum created a 2-year 
transition period (until January 1997) under which sources could be 
treated as area sources if (1) the source actually emits less than 50 
percent of the major source threshold and keeps adequate records, or 
(2) the source emits between 50 and 100 percent of the major source 
threshold, and is limited to this level by State limitations that are 
enforceable as a practical matter.
    The second memorandum addressed timing issues related to the 
applicability of NESHAP that affect only major sources. Major sources 
can reduce their potential emissions by obtaining federally enforceable 
limitations on their potential to emit, and as a result can achieve 
area source status. Before the memorandum was released, it was not 
clear whether there was a deadline for achieving area source status, 
and whether a source that reduced its potential emissions after the 
deadline could avoid being subject to the standard. The memorandum 
explained that, in the absence of rulemaking, the best reading of 
section 112 would require area source status to be achieved by the 
first substantive compliance date of a NESHAP. Additionally, the 
memorandum explained that unless area source status is achieved by this 
deadline, it will be permanently treated as a major source for purposes 
of that NESHAP.
    Applying these two guidances to the Gasoline Distribution NESHAP 
would mean that, in order to avoid being permanently treated as a major 
source subject to the NESHAP, gasoline distribution facilities would 
need to achieve area source status before December 15, 1995, the 
compliance date for the equipment leaks provision. Industry reports 
there are a number of sources emitting less than the major source 
threshold that do not have what the EPA believes are practicably 
enforceable limitations on their potential to emit. Under the 
transition policy discussed above, sources emitting more than 50 
percent of major source threshold and lacking practicably enforceable 
limits, are currently treated as major sources. The mechanisms for 
establishing practicably enforceable limitations on ``throughput'' (the 
amount of gasoline, distillate, and other HAP emitting liquids handled 
at the terminal or breakout station) generally exist. Those mechanisms, 
however, require time to process to put into place for sources. Given 
the proximity of the date of the May 16 policy guidance to the December 
15, 1995 deadline, the EPA believes that some sources emitting more 
than 50 percent of the major source threshold may not have a reasonable 
time period to establish practical limitations on their potential to 
emit.

II. Summary of and Rationale for the Amendments

    Because the developments since promulgation of the Gasoline 
Distribution NESHAP have led the EPA to believe that fewer sources will 
be able to achieve area source status than had been anticipated, the 
EPA has considered ways to modify policy or rule provisions so that the 
applicability of the NESHAP will reflect the EPA's intent at the time 
of promulgation. After considering revising one or both of the 
guidances as they would apply to this source category, and after 
considering the amendment of the emissions screening equation, the EPA 
believes the most appropriate way to allow sources a better opportunity 
to establish major or area source status without foregoing quantifiable 
emission reductions would be to defer the compliance date for the 
equipment leak provisions for existing sources until December 15, 1997. 
Furthermore, for the reasons discussed below, the EPA proposes amending 
the initial notification provisions so that notice is not required 
until December 16, 1996.
    Deferral of the existing source compliance dates for equipment leak 
programs and initial notifications is consistent with the deadlines for 
compliance under the Act section 112(i), which requires existing major 
sources to be in compliance with a rule within 3 years of promulgation. 
The deferral of the equipment leak provisions will give facilities 
significant additional time to obtain appropriate limits on potential 
to emit hazardous air pollutants. The deferral of the initial 
notification for existing sources will give cargo truck operators more 
accurate notice of the regulatory status of the terminals that they use 
and provide adequate lead time for any necessary truck vapor tightness 
testing to be performed during normal testing schedules. Additionally, 
the notices will provide Federal, State, and local air pollution 
control agencies an opportunity to plan for the implementation of this 
rule prior to the first compliance date for existing sources. The 
initial notifications will be considered non-binding in the case of 
sources that are major sources on December 16, 1996, but become area 
sources prior to December 15, 1997. Sources that cannot limit their 
potential to emit before December 15, 1997, must comply with the 
requirements for major sources under the Gasoline Distribution NESHAP 
by that date.
    Emissions of HAP associated with equipment leaks at bulk terminals 
and pipeline breakout stations were estimated to be less than 2 percent 
of baseline HAP emissions for the source category. An industry survey 
indicated that 80 percent of bulk terminals were already performing 
some type of periodic visual leak detection program; therefore, 
deferring the compliance date of the Gasoline Distribution NESHAP 
provisions on leak detection would not forego significant emission 
reductions.
    Deferring the compliance date for the equipment leak provisions for 
existing sources is preferable to the other available options. The 
other options are: (1) to deem the January 25 or May 16 guidance 
memoranda inapplicable to the Gasoline Distribution NESHAP; (2) to 
adopt a temporary certification scheme similar to that adopted for the 
Hazardous Organic NESHAP (HON); and (3) to modify the emission 
screening equations based on data currently before the EPA. While the 
guidances do not have the legal status of a rule, the EPA continues to 
believe that the analysis expressed in the timing guidance is the best 
reading of the Act section 112. Addressing the timing issues by 
allowing a site to temporarily be a major source and then subsequently 
an area source would mean that many sources would be temporarily 
subject to the equipment leak provisions. Not only would this pose 
difficulties in assuring compliance but it would also produce little, 
if any, emission reduction benefits.
    If the EPA were to allow an owner or operator of a source to make a 
temporary certification that the source is not at a major source, in a 
manner similar to the HON amendments promulgated on April 10, 1995 (60 
FR 18020), then potentially hundreds of temporary certifications would 
be required. Unlike the source category subject to the HON, which is 
estimated to have 20 to 40 eligible plant sites, air pollution control 
agencies would have little practical opportunity for oversight of these 
numerous temporary certifications. Therefore, because of the temporary 
nature of the HON certifications and the vast difference in 

[[Page 56135]]
the numbers of potential certifications, the EPA is not proposing to 
condition an extension of the compliance date on the filing of a 
certification that actual emissions are below major source levels.
    At this time, the EPA does not have sufficient analyzed data and 
information to propose modification to the emission screening equation 
in the rule. The EPA is considering data submitted by the API as part 
of its petition for reconsideration (available in the docket) and may 
propose modification of the equation and request comment at a later 
date. The EPA is not requesting comments at this time on the petition 
for reconsideration or potential changes to the emission screening 
equation.

III. Administrative Requirements

A. Paperwork Reduction Act

    The information collection requirements of the previously 
promulgated NESHAP were submitted to and approved by the Office of 
Management and Budget (OMB). A copy of this Information Collection 
Request (ICR) document (OMB control number 2060-0325) may be obtained 
from Ms. Sandy Farmer, Information Policy Branch, Environmental 
Protection Agency, 401 M St., S.W. (mail code 2136), Washington, D.C. 
20460, or by calling (202) 260-2740.
    Today's proposed changes to the Gasoline Distribution NESHAP have 
no impact on the information collection burden estimates made 
previously. No additional certifications or filings are proposed. 
Therefore, the ICR has not been revised.

B. Executive Order 12866

    Under Executive Order 12866 (58 FR 51735, October 4, 1993), the EPA 
must determine whether a regulation is ``significant'' and therefore 
subject to OMB review and the requirements of the Executive Order. The 
criteria set forth in section 1 of the Order for determining whether a 
regulation is a significant rule are as follows:
    (1) Is likely to have an annual effect on the economy of $100 
million or more, or adversely and materially affect a sector of the 
economy, productivity, competition, jobs, the environment, public 
health or safety, or State, local, or tribal government communities;
    (2) Is likely to create a serious inconsistency or otherwise 
interfere with an action taken or planned by another agency;
    (3) Is likely to materially alter the budgetary impact of 
entitlements, grants, user fees, or loan programs or the rights and 
obligations of recipients thereof; or
    (4) Is likely to raise novel or policy issues arising out of legal 
mandates, the President's priorities, or the principles set forth in 
the Executive Order.
    The Gasoline Distribution NESHAP promulgated on December 14, 1994, 
was treated as a ``significant regulatory action'' within the meaning 
of the Executive Order. An estimate of the cost and benefits of the 
NESHAP was prepared at proposal as part of the Background Information 
Document (BID) and was updated in the BID for the final rule to reflect 
comments and changes to the final rule. The amendments proposed today 
would have no impact on the estimates in the BID. The EPA's earlier 
estimates of costs and emission reductions were based on the Gasoline 
Distribution NESHAP affecting only major sources and did not quantify 
the emissions reductions associated with the visual equipment leak 
detection program; in any event, these emission reductions are small 
relative to the total reduction for the source category.
    Pursuant to the terms of Executive Order 12866, it has been 
determined that this action is a ``non-significant regulatory action'' 
within the meaning of the Executive Order. As such, this action was not 
submitted to OMB for review.

C. Regulatory Flexibility Act

    The Regulatory Flexibility Act (5 U.S.C. 601 et seq.) requires the 
EPA to consider potential impacts of regulations on small business 
entities. The Act specifically requires the preparation of a Regulatory 
Flexibility Analysis in those instances where small business impacts 
are possible. When the EPA promulgated the Gasoline Distribution 
NESHAP, it analyzed the potential impacts on small businesses, 
discussed the results of this analysis in the Federal Register, and 
concluded that the promulgated regulation would not result in financial 
impacts that significantly or differentially stress affected small 
companies. Because today's proposal imposes no additional impacts, a 
Regulatory Flexibility Analysis has not been prepared.
    Pursuant to the provisions of 5 U.S.C. 605(b), I hereby certify 
that this rule will not have a significant economic impact on a 
substantial number of small business entities.

D. Unfunded Mandates

    Under section 202 of the Unfunded Mandates Reform Act of 1995 
(Unfunded Mandates Act), signed into law on March 22, 1995, the EPA 
must prepare a budgetary impact statement to accompany any proposed or 
final rule that includes a Federal mandate that may result in estimated 
costs to State, local, or tribal governments in the aggregate, or to 
the private sector, of $100 million or more. Under section 205, the EPA 
must select the most cost effective and least burdensome alternative 
that achieves the objectives of the rule and is consistent with 
statutory requirements. Section 203 requires the EPA to establish a 
plan for informing and advising any small governments that may be 
significantly or uniquely impacted by the rule.
    The EPA has determined that the action proposed today does not 
include a Federal mandate that may result in estimated costs of $100 
million or more to either State, local, or tribal governments in the 
aggregate, or to the private sector. Therefore, the requirements of the 
Unfunded Mandates Act do not apply to this action.

List of Subjects in 40 CFR Part 63

    Environmental protection, Air pollution control, Hazardous 
substances, Petroleum bulk stations and terminals, Reporting and 
recordkeeping requirements.

    Dated: November 1, 1995.
Carol M. Browner,
Administrator.

    For the reasons set out in the preamble, part 63 of chapter I of 
title 40 of the Code of Federal Regulations is proposed to be amended 
as follows:

PART 63--NATIONAL EMISSION STANDARDS FOR HAZARDOUS AIR POLLUTANTS 
FOR SOURCE CATEGORIES

    1. The authority citation for part 63 continues to read as follows:

    Authority: 42 U.S.C. 7401 et seq.

    2. Section 63.424 is amended by revising paragraph (e) to read as 
follows:


Sec. 63.424  Standards: Equipment leaks.

* * * * *
    (e) Initial compliance with the requirements in paragraphs (a) 
through (d) of this section shall be achieved by existing sources as 
expeditiously as practicable, but no later than December 15, 1997. For 
new sources, initial compliance shall be achieved upon startup.
* * * * *
    3. Section 63.428 is amended by revising paragraphs (a) and the 
first sentence of paragraph (f)(1) to read as follows:


Sec. 63.428  Reporting and recordkeeping.

    (a) The initial notifications required for existing affected 
sources under 

[[Page 56136]]
Sec. 63.9(b)(2) shall be submitted by 1 year after an affected source 
becomes subject to the provisions of this subpart or by December 16, 
1996, whichever is later. Affected sources that are major sources on 
December 16, 1996 and plan to be area sources by December 15, 1997 
shall include in this notification a brief, non-binding description of 
and schedule for the action(s) that are planned to achieve area source 
status.
* * * * *
    (f) * * *
    (1) In the case of an existing source or a new source that has an 
initial startup date before the effective date, the report shall be 
submitted with the notification of compliance status required under 
Sec. 63.9(h), unless an extension of compliance is granted under 
Sec. 63.6(i). * * *
* * * * *
    4. Table 1 to subpart R is amended by revising the entry 
``63.9(b)(2)'' to read as follows:
* * * * *

  Table 1 to Subpart R.--General Provisions Applicability to Subpart R  
------------------------------------------------------------------------
                          Applies to subpart                            
       Reference                  R                     Comment         
------------------------------------------------------------------------
*                  *                  *                  *              
                  *                  *                  *               
63.9(b)(2).............  Yes................  Subpart R allows addition 
                                               time for existing sources
                                               to submit initial        
                                               notification. Sec.       
                                               63.428(a) specifies      
                                               submittal by 1-year after
                                               being subject to rule or 
                                               December 16, 1997,       
                                               whichever is later.      
                                                                        
*                  *                  *                  *              
                  *                  *                  *               
------------------------------------------------------------------------

[FR Doc. 95-27568 Filed 11-6-95; 8:45 am]
BILLING CODE 6560-50-P