EPA New Source Performance Standards and National Emission Standards for Hazardous Air Pollutants...

8/11/2019 EPA New Source Performance Standards and National Emission Standards for Hazardous Air Pollutants Reviews

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TheEPAAdministrator,LisaP.Jackson,signedthefollowingnoticeon4/17/2012,andEPAissubmittingitfor

publicationintheFederalRegister(FR).WhilewehavetakenstepstoensuretheaccuracyofthisInternetversion

oftherule,itisnottheofficialversionoftheruleforpurposesofcompliance. Pleaserefertotheofficialversionin

aforthcomingFRpublication,whichwillappearontheGovernmentPrintingOffice'sFDSyswebsite

(http://fdsys.gpo.gov/fdsys/search/home.action)andonRegulations.gov(http://www.regulations.gov)inDocket

No.

EPA

HQ

OAR

2010

0505.

Once

the

official

version

of

this

document

is

published

in

the

FR,

this

version

will

be

removedfromtheInternetandreplacedwithalinktotheofficialversion.

6560-50-P

ENVIRONMENTAL PROTECTION AGENCY

40 CFR Part 63

[EPA-HQ-OAR-2010-0505; FRL- ]

RIN 2060-AP76

Oil and Natural Gas Sector: New Source Performance Standards and

National Emission Standards for Hazardous Air Pollutants Reviews

AGENCY: Envi r onment al Pr ot ect i on Agency ( EPA) .

ACTION: Fi nal rul e.

SUMMARY: Thi s act i on f i nal i zes t he r evi ew of new sour ce

per f or mance st andar ds f or t he l i st ed oi l and nat ur al gas sour ce

cat egor y. I n t hi s act i on t he EPA r evi sed t he new sour ce

per f or mance st andar ds f or vol at i l e or gani c compounds f r om

l eaki ng component s at onshor e natur al gas pr ocess i ng pl ant s and

new sour ce per f or mance st andards f or sul f ur di oxi de emi ssi ons

f r om nat ur al gas pr ocessi ng pl ant s. The EPA al so est abl i shed

st andar ds f or cer t ai n oi l and gas oper at i ons not cover ed by the

exi st i ng st andar ds. I n addi t i on t o the oper at i ons cover ed by t he

exi st i ng st andar ds, t he newl y est abl i shed st andar ds wi l l
http://fdsys.gpo.gov/fdsys/search/home.actionhttp:///reader/full/Regulations.govhttp:///reader/full/http://www.regulations.govhttp://fdsys.gpo.gov/fdsys/search/home.actionhttp:///reader/full/Regulations.govhttp:///reader/full/http://www.regulations.gov


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r egul at e vol at i l e or gani c compound emi ssi ons f r om gas wel l s,

cent r i f ugal compr essors, r eci pr ocat i ng compr essor s, pneumat i c

cont r ol l er s and st or age vessel s. Thi s act i on al so f i nal i zes t he

r esi dual r i sk and t echnol ogy revi ew f or t he Oi l and Nat ur al Gas

Product i on sour ce cat egory and t he Natur al Gas Tr ansmi ss i on and

St or age sour ce cat egor y. Thi s act i on i ncl udes r evi si ons t o t he

exi st i ng l eak det ect i on and r epai r r equi r ement s. I n addi t i on,

t he EPA has est abl i shed i n t hi s act i on emi ssi on l i mi t s

r ef l ect i ng maxi mum achi evabl e cont r ol t echnol ogy f or cer t ai n

cur r ent l y uncont r ol l ed emi ssi on sour ces i n t hese sour ce

cat egor i es. Thi s act i on al so i ncl udes modi f i cat i on and addi t i on

of t est i ng and moni t or i ng and r el at ed not i f i cat i on,

r ecor dkeepi ng and r epor t i ng r equi r ement s, as wel l as ot her mi nor

t echni cal r evi si ons t o the nat i onal emi ssi on st andar ds f or

hazar dous ai r pol l ut ant s. Thi s act i on f i nal i zes r evi si ons t o t he

r egul at or y pr ovi si ons r el at ed t o emi ssi ons dur i ng per i ods of

st ar t up, shut down and mal f unct i on.

DATES: Thi s f i nal r ul e i s ef f ect i ve on [INSERT DATE 60 DAYS

AFTER THE DATE OF PUBLICATION IN THE FEDERAL REGISTER]. The

i ncor por at i on by ref er ence of cer t ai n publ i cat i ons l i st ed i n

t hi s r ul e i s appr oved by t he Di r ect or of t he Feder al Regi st er as

of [INSERT DATE 60 DAYS AFTER THE DATE OF PUBLICATION IN THE

FEDERAL REGISTER].

Thisdocumentisaprepublicationversion,signedbyEPAAdministrator,LisaP.Jacksonon4/17/2012.Wehave

takenstepstoensuretheaccuracyofthisversion,butitisnottheofficialversion.


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ADDRESSES: The EPA has est abl i shed a docket f or t hi s act i on

under Docket I D. No. EPA- HQ- OAR- 2010- 0505. Al l document s i n t he

docket ar e l i st ed on t he ht t p: / / www. r egul at i ons. gov web si t e.

Al t hough l i st ed i n t he i ndex, some i nf or mat i on i s not publ i cl y

avai l abl e, e. g. , conf i dent i al busi ness i nf or mat i on or ot her

i nf or mat i on whose di scl osur e i s r est r i ct ed by stat ut e. Cer t ai n

ot her mat er i al , such as copyr i ght ed mat er i al , i s not pl aced on

t he I nt er net and wi l l be publ i cl y avai l abl e onl y i n har d copy

f or m. Publ i cl y avai l abl e docket mat er i al s ar e avai l abl e ei t her

el ect r oni cal l y t hr ough ht t p: / / www. r egul at i ons. gov or i n har d

copy at t he EPA s Docket Cent er , Publ i c Readi ng Room, EPA West

Bui l di ng, Room Number 3334, 1301 Const i t ut i on Avenue, NW,

Washi ngt on, D. C. 20004. Thi s Docket Faci l i t y i s open f r om 8: 30

a. m. t o 4: 30 p. m. East ern St andard Ti me, Monday t hr ough Fr i day,

excl udi ng l egal hol i days. The t el ephone number f or t he Publ i c

Readi ng Room i s ( 202) 566- 1744, and t he t el ephone number f or t he

Ai r Docket i s ( 202) 566- 1742.

FOR FURTHER INFORMATION CONTACT: For f ur t her i nf or mat i on about

t hi s f i nal act i on, cont act Mr . Br uce Moor e, Sect or Pol i ci es and

Pr ogr ams Di vi si on ( E143- 05) , Of f i ce of Ai r Qual i t y and

St andar ds, Envi r onment al Prot ect i on Agency, Resear ch Tr i angl e

Par k, Nor t h Carol i na 27711, t el ephone number: ( 919) 541- 5460;

f acsi mi l e number : ( 919) 685- 3200; emai l addr ess:


http:///reader/full/http://www.regulations.govhttp:///reader/full/http://www.regulations.govhttp:///reader/full/http://www.regulations.govhttp:///reader/full/http://www.regulations.gov


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moor e. bruce@epa. gov. For addi t i onal cont act i nf or mat i on, see t he

f ol l owi ng SUPPLEMENTARY INFORMATION secti on.

SUPPLEMENTARY INFORMATION: For speci f i c i nf or mat i on r egar di ng

r i sk assessment and exposure model i ng methodol ogy, cont act Mr .

Mar k Mor r i s, Heal t h and Envi r onment al I mpact s Di vi si on (C504

06) , Of f i ce of Ai r Qual i t y Pl anni ng and St andar ds, U. S.

Envi r onment al Prot ect i on Agency, Resear ch Tr i angl e Par k, NC

27711; t el ephone number ( 919) 541- 5416; f ax number : ( 919) 541

0840; and emai l addr ess: mor r i s. mark@epa. gov.

Or gani zat i on of Thi s Document . The i nf or mat i on pr esent ed i n

t hi s pr eambl e i s or gani zed as f ol l ows:

I . Preambl e Acr onyms and Abbr evi at i ons

I I . Gener al I nf or mat i on

A. Execut i ve Summar y

B. Does t hi s act i on appl y t o me?

C. What ar e the emi ssi on sour ces af f ect ed by t hi s act i on?

D. Where can I get a copy of t hi s document ?

E. J udi ci al Revi ew

I I I . Backgr ound I nf ormat i on on t he NSPS and NESHAP

A. What are t he st atut ory aut hor i t i es f or t he NSPS and NESHAP?

B. What i s t he l i t i gat i on hi st or y?

C. What i s t he sect or - based appr oach?


mailto:[email protected]:[email protected]:[email protected]:[email protected]


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D. What ar e t he heal t h ef f ect s of pol l ut ant s emi t t ed f r om t he

oi l and

nat ur al gas sect or ?

I V. Summary of t he Fi nal NSPS Rul e

A. What ar e t he f i nal act i ons r el at i ve t o t he NSPS f or t he Cr ude

Oi l

and Natur al Gas Pr oduct i on sour ce cat egory?

B. What ar e t he ef f ect i ve and compl i ance dat es f or t he f i nal

NSPS?

V. Summary of t he Si gni f i cant Changes t o t he NSPS Si nce Pr oposal

A. Gas Wel l Af f ected Faci l i t i es

B. Cent r i f ugal and Reci pr ocat i ng Compr essor Af f ect ed Faci l i t i es

C. Pneumat i c Cont r ol l er Af f ect ed Faci l i t i es

D. St or age Vessel Af f ected Faci l i t i es

E. Equi pment Leaks Af f ect ed Faci l i t i es and Sweet eni ng Uni t

Af f ect ed

Faci l i t i es at Onshor e Nat ur al Gas Pr ocessi ng Pl ant s

F. Changes to Not i f i cat i on, Recor dkeepi ng and Repor t i ng

Requi r ement s

VI . Summar y of t he Fi nal NESHAP Rul es

A. What ar e t he f i nal r ul e act i ons r el at i ve t o t he Oi l and

Nat ur al

Gas Pr oduct i on ( subpart HH) sour ce category?




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B. What are the f i nal r ul e amendment s f or t he Natur al Gas

Tr ansmi ssi on and Stor age ( subpar t HHH) sour ce cat egor y?

C. What i s t he ef f ect i ve dat e of t hi s f i nal r ul e and compl i ance

dates

f or t he st andar ds?

VI I . Summary of t he Si gni f i cant Changes t o t he NESHAP Si nce

Pr oposal

A. What ar e t he si gni f i cant changes si nce pr oposal f or t he Oi l

and

Nat ur al Gas Product i on ( subpar t HH) sour ce cat egor y?

B. What ar e t he si gni f i cant changes si nce pr oposal f or t he

Nat ur al

Gas Tr ansmi ss i on and St orage ( subpar t HHH) source

cat egor y?

VI I I . Compl i ance Rel at ed I ssues Common t o t he NSPS and NESHAP

A. How do the rul es addr ess st art up, shut down and mal f unct i on?

B. How do t he NSPS and NESHAP pr ovi de f or compl i ance assurance?

C. What are t he r equi r ement s f or submi ss i on of per f ormance t est

data

t o t he EPA?

I X. Summar y of Si gni f i cant NSPS Comment s and Responses

A. Maj or Comment s Concerni ng Appl i cabi l i t y

B. Maj or Comment s Concer ni ng Wel l Compl et i ons




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C. Maj or Comment s Concer ni ng Pneumat i c Cont r ol l er s

D. Maj or Comment s Concer ni ng Compressor s

E. Maj or Comment s Concer ni ng Storage Vessel s

F. Maj or Comment s Concerni ng Not i f i cat i on, Recor dkeepi ng and

Repor t i ng Requi r ement s

X. Summar y of Si gni f i cant NESHAP Comments and Responses

A. Maj or Comment s Concer ni ng Pr evi ousl y Unr egul at ed Sour ces

B. Maj or Comment s Concer ni ng t he Ri sk Revi ew

C. Maj or Comment s Concer ni ng t he Technol ogy Revi ew

D. Maj or Comment s Concerni ng Not i f i cat i on, Recor dkeepi ng and

Repor t i ng Requi r ement s

XI . What are the cost , envi r onment al and economi c i mpact s of t he

f i nal NESHAP and NSPS amendment s?

A. What are the ai r i mpact s?

B. What are t he energy i mpact s?

C. What are the cost i mpact s?

D. What ar e t he economi c i mpact s?

E. What ar e t he benef i t s of t hi s f i nal r ul e?

XI I . St at ut or y and Execut i ve Or der Revi ews

A. Execut i ve Or der 12866: Regul atory Pl anni ng and Revi ew and

Execut i ve Or der 13563: I mpr ovi ng Regul at i on and Regul atory

Revi ew

B. Paperwork Reduct i on Act




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C. Regul at or y Fl exi bi l i t y Act

D. Unf unded Mandates Ref orm Act

E. Execut i ve Or der 13132: Feder al i sm

F. Execut i ve Or der 13175: Consul t at i on and Coor di nat i on wi t h

I ndi an

Tr i bal Government s

G. Execut i ve Or der 13045: Pr ot ect i on of Chi l dr en f r om

Envi r onment al

Heal t h Ri sks and Saf et y Ri sks

H. Execut i ve Or der 13211: Act i ons Concer ni ng Regul at i ons That

Si gni f i cant l y Af f ect Ener gy Suppl y, Di st r i but i on, or Use

I . Nat i onal Technol ogy Tr ansf er and Advancement Act

J . Execut i ve Or der 12898: Federal Act i ons t o Addr ess

Envi r onment al

J ust i ce i n Mi nor i t y Popul at i ons and Low- I ncome Popul at i ons

K. Congr essi onal Revi ew Act

I. Preamble Acronyms and Abbreviations

Sever al acr onyms and t er ms used t o descr i be i ndust r i al

pr ocesses, dat a i nvent or i es and r i sk model i ng ar e i ncl uded i n

t hi s pr eambl e. Whi l e t hi s may not be an exhaust i ve l i st , t o ease

t he readi ng of t hi s preambl e and f or r ef er ence pur poses, t he

f ol l owi ng t erms and acronyms ar e def i ned here:

API Amer i can Pet r ol eum I nst i t ut e




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BACT Best Avai l abl e Cont r ol Technol ogy

BDT Best Demonst r at ed Technol ogy

bpd Bar r el s Per Day

BMP Best Management Pr act i ce

BSER Best Syst emof Emi ss i on Reduct i on

BTEX Benzene, Ethyl benzene, Tol uene and Xyl ene

CAA Cl ean Ai r Act

CBM Coal Bed Met hane

CDX Cent r al Dat a Exchange

CEDRI Compl i ance and Emi ss i ons Data Report i ng I nt er f ace

CFR Code of Federal Regul at i ons

CO Car bon Monoxi de

CO2 Carbon Di oxi de

CO2e Carbon Di oxi de Equi val ent

DOE Uni t ed Stat es Depar t ment of Energy

e- GGRT El ect r oni c Gr eenhouse Gas Repor t i ng Tool

EPA Envi r onment al Protect i on Agency

ERPG Emergency Response Pl anni ng Gui del i nes

ERT El ect r oni c Repor t i ng Tool

GCG Gas Condensat e Gl ycol

GHG Gr eenhouse Gas

GOR Gas t o Oi l Rat i o

GWP Gl obal Warmi ng Potent i al




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HAP Hazardous Ai r Pol l ut ant s

HEM3 Human Exposur e Model , ver si on 3

HI Hazard I ndex

HP Hor sepower

HQ Hazar d Quot i ent

H2S Hydr ogen Sul f i de

I CR I nf or mat i on Col l ect i on Request

I PCC I nt ergovernment al Panel on Cl i mate Change

I RI S I nt egr at ed Ri sk I nf or mat i on Syst em

km Ki l omet er

kW Ki l owat t s

LAER Lowest Achi evabl e Emi ss i on Rate

l b Pounds

LDAR Leak Det ect i on and Repai r

MACT Maxi mumAchi evabl e Cont r ol Technol ogy

MACT Code NEI code used t o i dent i f y pr ocesses i ncl uded i n a

sour ce category

Mcf Thousand Cubi c Feet

Mg/ yr Megagr ams per year

MI R Maxi mum I ndi vi dual Ri sk

MI RR Moni t or i ng, I nspect i on, Recor dkeepi ng and Repor t i ng

MMt CO2e Mi l l i on Met r i c Tons of Car bon Di oxi de Equi val ent s

NAAQS Nat i onal Ambi ent Ai r Qual i t y St andards




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NAC/ AEGL Nat i onal Advi sor y Commi t t ee f or Acute Exposure

Gui del i ne

Level s f or Hazar dous Subst ances

NAI CS Nor t h Amer i can I ndust r y Cl assi f i cat i on Syst em

NAS Nat i onal Academy of Sci ences

NATA Nat i onal Ai r Toxi cs Assessment

NEI Nat i onal Emi ssi ons I nvent or y

NEMS Nat i onal Energy Model i ng Syst em

NESHAP Nat i onal Emi ss i ons St andards f or Hazar dous Ai r

Pol l ut ant s

NGL Natur al Gas Li qui ds

NI OSH Nat i onal I nst i t ut es f or Occupat i onal Saf et y and Heal t h

NOX Oxi des of Ni t r ogen

NRC Nat i onal Research Counci l

NSPS New Sour ce Per f or mance St andar ds

NSR New Sour ce Revi ew

NTTAA Nat i onal Technol ogy Transf er and Advancement Act

OAQPS Of f i ce of Ai r Qual i t y Pl anni ng and St andar ds

OMB Of f i ce of Management and Budget

PBHAP Hazar dous ai r pol l ut ant s known t o be persi st ent and

bi o-

accumul at i ve i n t he envi r onment

PFE Pot ent i al f or Fl ash Emi ssi ons




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PM Par t i cul at e Mat t er

PM2. 5 Par t i cul at e Mat t er ( 2. 5 mi cr ons and l ess)

POM Pol ycycl i c Or gani c Mat t er

ppm Par t s per Mi l l i on

ppmv Par t s per Mi l l i on by Vol ume

PSI G Pounds per Squar e I nch Gauge

PSI A Pounds per Square I nch Absol ut e

PTE Pot ent i al t o Emi t

QA Qual i t y Assur ance

RACT Reasonabl y Avai l abl e Cont r ol Technol ogy

RBLC RACT/ BACT/ LAER Cl ear i nghouse

REC Reduced Emi ssi ons Compl et i ons

REL Cal i f or ni a EPA Ref er ence Exposure Level

RFA Regul at or y Fl exi bi l i t y Act

Rf C Ref erence Concent r at i on

Rf D Ref er ence Dose

RI A Regul at or y I mpact Anal ysi s

RI CE Reci pr ocat i ng I nt ernal Combust i on Engi nes

RTR Resi dual Ri sk and Technol ogy Revi ew

SAB Sci ence Advi sor y Boar d

SBREFA Smal l Busi ness Regul atory Enf orcement Fai r ness Act

SCC Sour ce Cl assi f i cat i on Codes

scf h St andard Cubi c Feet Per Hour




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scf m Standard Cubi c Feet Per Mi nute

scm St andar d Cubi c Met er s

scmd Standar d Cubi c Met er s per Day

SCOT Shel l Cl aus Of f gas Treat ment

SI P St at e I mpl ement at i on Pl an

SI SNOSE Si gni f i cant Economi c I mpact on a Subst ant i al Number of

Smal l Ent i t i es

S/ L/ T St at e and Local and Tr i bal Agenci es

SO2 Sul f ur Di oxi de

SSM Star t up, Shutdown and Mal f unct i on

STEL Shor t - t er m Exposur e Li mi t

TLV Thr eshol d Li mi t Val ue

TOSHI Target Or gan- Speci f i c Hazar d I ndex

t py Tons per Year

TRI M Total Ri sk I ntegr at ed Model i ng Syst em

TRI M. FaTE A spat i al l y expl i ci t , compar t ment al mass bal ance model

that

descr i bes t he movement and t r ansf ormat i on of

pol l ut ant s

over t i me, t hr ough a user- def i ned, bounded syst em t hat

i ncl udes bot h bi ot i c and abi ot i c compart ment s

TSD Techni cal Suppor t Document

UF Uncer t ai nt y Fact or




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UMRA Unf unded Mandat es Ref or m Act

URE Uni t Ri sk Est i mate

VCS Vol unt ary Consensus Standar ds

VOC Vol at i l e Or gani c Compounds

VRU Vapor Recover y Uni t

II. General Information

A. Execut i ve Summar y

1. Pur pose of t he Regul at or y Act i on

Respondi ng t o the requi r ement s of a consent decr ee, t hi s

act i on f i nal i zes sever al r ul es t hat appl y t o t he oi l and gas

pr oduct i on i ndust r y and si gni f i cant l y r educe emi ssi ons of ai r

pol l ut ant s. Mor e par t i cul ar l y, t he acti on f i nal i zes:

New source performance standards (NSPS) f or t he Cr ude Oi l

and Natur al Gas Product i on and onshor e natur al gas

pr ocess i ng pl ant sour ce cat egory. The EPA r evi ewed t wo

exi st i ng NSPS f or onshor e nat ur al gas pr ocessi ng pl ant

sour ce cat egor y under sect i on 111( b) of t he Cl ean Ai r Act

( CAA) . Thi s act i on i mpr oves t he exi st i ng NSPS and

f i nal i zes st andar ds f or cer t ai n crude oi l and nat ur al gas

sour ces t hat ar e not cover ed by exi st i ng NSPS f or t hi s

sector .

National Emissions Standards for Hazardous Air Pollutants

(NESHAP) f or t he Oi l and Nat ur al Gas Pr oduct i on sour ce




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category and the Natur al Gas Tr ansmi ss i on and St orage

sour ce cat egory. The EPA conduct ed r i sk and t echnol ogy

r evi ews ( RTR) f or t hese rul es under sect i on 112 of t he

CAA. I n addi t i on, t he EPA has est abl i shed emi ssi on l i mi t s

f or cer t ai n cur r ent l y uncont r ol l ed emi ssi on sour ces i n

t hese sour ce cat egor i es. These l i mi t s r ef l ect maxi mum

achi evabl e cont r ol t echnol ogy ( MACT) .

2. Summar y of t he Maj or Provi si ons of t he Regul at or y Act i ons

New Source Performance Standards (NSPS). The newl y

est abl i shed NSPS f or t he Cr ude Oi l and Nat ur al Gas Pr oduct i on

sour ce cat egor y r egul at e vol at i l e or gani c compound (VOC)

emi ssi ons f r om gas wel l s, cent r i f ugal compr essor s, r eci pr ocat i ng

compr essor s, pneumat i c cont r ol l er s, st or age vessel s and l eaki ng

component s at onshor e nat ur al gas processi ng pl ant s, as wel l as

sul f ur di oxi de ( SO2) emi ssi ons f r om onshor e nat ur al gas

pr ocessi ng pl ant s. Thi s r ul e set s cost - ef f ect i ve per f or mance

st andar ds f or :

Gas wells. The r ul e cover s any gas wel l t hat i s an onshor e

wel l dr i l l ed pr i nci pal l y f or pr oducti on of nat ur al gas. Oi l

wel l s ( wel l s dr i l l ed pr i nci pal l y f or t he pr oduct i on of crude

oi l ) ar e not subj ect t o t hi s r ul e. For f r actur ed and r ef r actur ed

gas wel l s, t he r ul e gener al l y requi r es owner s/ oper at or s t o use

r educed emi ss i ons compl et i ons, al so known as RECs or green




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compl et i ons, t o r educe VOC emi ssi ons f r om wel l compl et i ons. To

achi eve t hese VOC r educt i ons, owners and/ or operat ors may use

RECs or compl et i on combust i on devi ces, such as f l ar i ng, unt i l

J anuar y 1, 2015; as of J anuar y 1, 2015, owner s and/ or oper at or s

must use RECs and a compl et i on combust i on devi ce. The rul e does

not r equi r e RECs wher e t hei r use i s not f easi bl e, as speci f i ed

i n t he r ul e. See sect i ons I X. A and I X. B of t hi s pr eambl e f or

f ur t her di scussi on.

Storage vessels. I ndi vi dual st or age vessel s i n t he oi l and

nat ur al gas product i on segment and t he nat ur al gas pr ocessi ng,

t r ansmi ss i on and st orage segment s wi t h emi ss i ons equal t o or

gr eat er t han 6 t ons per year ( t py) must achi eve at l east 95. 0

per cent r educt i on i n VOC emi ssi ons. See sect i on I X. E of t hi s

pr eambl e f or f ur t her di scussi on.

Certain controllers. The r ul e set s a natural gas bl eed r at e

l i mi t of 6 scf h f or i ndi vi dual , cont i nuous bl eed, nat ur al gas-

dr i ven pneumat i c cont r ol l er s l ocat ed bet ween the wel l head and

t he poi nt at whi ch t he gas ent er s t he t r ansmi ssi on and st or age

segment . For i ndi vi dual , cont i nuous bl eed, nat ur al gas- dr i ven

pneumat i c cont r ol l er s l ocat ed at nat ur al gas pr ocessi ng pl ant s,

t he r ul e set s a nat ur al gas bl eed l i mi t of zer o scf h. See

sect i on I X. C of t hi s pr eambl e f or f ur t her di scussi on.




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Certain compressors. The r ul e r equi r es a 95. 0 per cent

r educt i on of VOC emi ssi ons f r om wet seal cent r i f ugal compr essor s

l ocat ed between the wel l head and the poi nt at whi ch the gas

ent er s t he t r ansmi ssi on and st or age segment . The rul e al so

r equi r es measures i nt ended t o r educe VOC emi ss i ons f r om

r eci pr ocat i ng compr essor s l ocat ed between t he wel l head and t he

poi nt where nat ur al gas ent er s t he nat ur al gas t r ansmi ssi on and

st orage segment . Owners and/ or operators of t hese compr essor s

must r epl ace t he r od packi ng based on speci f i ed usage or t i me.

See sect i on I X. D of t hi s pr eambl e f or f ur t her di scussi on.

For onshore natural gas processing plants, thi s f i nal

act i on r evi ses t he exi st i ng NSPS r equi r ement s f or l eak det ect i on

and r epai r ( LDAR) t o r ef l ect t he pr ocedur es and l eak t hr eshol ds

est abl i shed i n t he NSPS f or Equi pment Leaks of VOCs i n t he

Synt het i c Or gani c Chemi cal s Manuf act ur i ng I ndust r y. Thi s f i nal

act i on al so r evi ses t he exi st i ng NSPS r equi r ement s f or SO2

emi ss i on r educt i ons 99. 8 percent t o 99. 9 percent based on

r eanal ysi s of t he or i gi nal dat a.

National Emissions Standards for Hazardous Air Pollutants

(NESHAP). Thi s act i on al so revi ses t he NESHAP f or gl ycol

dehydr at i on uni t pr ocess vent s and l eak det ect i on and r epai r

( LDAR) r equi r ement s. I n t he f i nal r ul e f or maj or sour ces at oi l

and nat ur al gas pr oduct i on f aci l i t i es, we have l ower ed t he l eak




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def i ni t i on f or val ves at nat ur al gas pr ocessi ng pl ant s t o 500

par t s per mi l l i on ( ppm) and t hus r equi r e the appl i cat i on of LDAR

pr ocedur es at t hi s l evel . I n t hi s f i nal r ul e, we al so have

est abl i shed MACT st andar ds f or smal l gl ycol dehydr at i on uni t s,

whi ch wer e unr egul at ed under t he i ni t i al NESHAP. Cover ed gl ycol

dehydr at ors ar e t hose wi t h an act ual annual aver age nat ur al gas

f l ow r ate l ess t han 85, 000 st andard cubi c meters per day ( scmd)

or actual average benzene emi ss i ons l ess t han 1 t on per year

( t py) , and t hey must meet uni t - speci f i c l i mi t s f or benzene,

et hyl benzene, t ol uene and xyl ene (BTEX) .

I n t he f i nal r ul e f or maj or sour ces at nat ur al gas

t r ansmi ssi on and st or age f aci l i t i es, we have est abl i shed MACT

st andar ds f or smal l gl ycol dehydr at or s al so not r egul at ed

under t he i ni t i al NESHAP. Cover ed gl ycol dehydr at or s ar e t hose

wi t h an act ual annual aver age nat ur al gas f l ow r at e l ess t han

283, 000 scmd or act ual average benzene emi ss i ons l ess t han 0. 90

Mg/ yr , and t hey must meet uni t - speci f i c BTEX emi ssi on l i mi t s. v.

See sect i ons VI I and X of t hi s pr eambl e f or f ur t her di scussi on

of bot h st andar ds.

3. Cost s and Benef i t s

Tabl e 1 summar i zes t he cost s and benef i t s of t hi s act i on.

See sect i on XI of t hi s pr eambl e f or f ur t her di scussi on.




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TABLE 1. SUMMARY OF THE MONETI ZED BENEFI TS, SOCI AL COSTS AND NETBENEFI TS FOR THE FI NAL OI L AND NATURAL GAS NSPS AND NESHAPAMENDMENTS I N 2015 ( MI LLI ONS OF 2008$) 1

Final NSPS Final NESHAPAmendments

Final NSPS and

NESHAPAmendments

Combined

TotalMonet i zedBenef i t s2

N/ A N/ A N/ A

Total Cost s3- $15 mi l l i on $3. 5 mi l l i on - $11 mi l l i on

Net Benef i t s N/ A N/ A N/ A

Non-monet i zedBenef i t s4

11, 000 tons ofHAP

670 tons of HAP12, 000 t ons of

HAP

190, 000 t ons ofVOC

1, 200 tons ofVOC

190, 000 t ons ofVOC

1. 0 mi l l i on t onsof met hane

420 t ons ofmet hane

1. 0 mi l l i on t onsof met hane

Heal t h ef f ect s of HAP exposure

Heal t h ef f ect s of PM2. 5 and ozone exposur e

Vi si bi l i t y i mpai r ment

Veget at i on ef f ect s

Cl i mat e ef f ect s1 Al l est i mates are f or t he i mpl ement at i on year ( 2015) .2 Whi l e we expect t hat t hese avoi ded emi ssi ons wi l l r esul t i n i mpr ovement s i n

ai r qual i t y and r educt i ons i n heal t h ef f ect s associ at ed wi t h HAP, ozone andpart i cul at e mat t er ( PM) , as wel l as cl i mate ef f ect s associ at ed wi t h methane,we have det ermi ned t hat quant i f i cat i on of t hose benef i t s and co- benef i t scannot be accompl i shed f or t hi s r ul e i n a def ensi bl e way. Thi s i s not t oi mpl y t hat t her e ar e no benef i t s or co- benef i t s of t he r ul es; r at her , i t i s ar ef l ecti on of t he di f f i cul t i es i n model i ng t he di r ect and i ndi r ect i mpacts oft he r educt i ons i n emi ssi ons f or t hi s i ndust r i al sect or wi t h t he dat acur r ent l y avai l abl e.3The engi neer i ng compl i ance cost s ar e annual i zed usi ng a 7- percent di scountr at e. The negat i ve cost f or t he f i nal NSPS r ef l ect s t he i ncl usi on of r evenuesf r omaddi t i onal nat ur al gas and hydr ocar bon condensate recover y t hat areest i mat ed as a r esul t of t he NSPS. Possi bl e expl anat i ons f or why t her e appeart o be negat i ve cost cont r ol t echnol ogi es are di scussed i n the engi neer i ng

cost s anal ysi s sect i on i n t he Regul at or y I mpact Anal ysi s ( RI A) .4 For t he NSPS, r educed exposur e t o HAP and cl i mate ef f ects are co- benef i t s.For t he NESHAP, r educed VOC emi ss i ons, PM2. 5 and ozone exposur e, vi si bi l i t y andveget at i on ef f ect s and cl i mat e ef f ect s ar e co- benef i t s. The speci f i c cont r olt echnol ogi es f or t he f i nal NSPS ar e ant i ci pat ed t o have mi nor secondar ydi sbenef i t s, i ncl udi ng an i ncrease of 1. 1 mi l l i on t ons of car bon di oxi de( CO2) , 550 t ons of ni t r ogen oxi des ( NOx) , 19 t ons of PM, 3, 000 t ons of car bonmonoxi de ( CO) and 1, 100 t ons of t otal hydr ocar bons ( THC) , as wel l as emi ssi onr educt i ons associ at ed wi t h t he ener gy syst em i mpact s. The speci f i c cont r ol




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t echnol ogi es f or t he NESHAP ar e ant i ci pated t o have mi nor secondarydi sbenef i t s, but t he EPA was unabl e to est i mat e the secondar y di sbenef i t s.

The net CO2- equi val ent emi ssi on r educt i ons ar e 18 mi l l i on met r i c t ons.

B. Does t hi s act i on appl y t o me?

The r egul at ed cat egor i es and ent i t i es pot ent i al l y af f ect ed

by t he f i nal st andar ds are shown i n Tabl e 2 of t hi s preambl e.

TABLE 2. I NDUSTRI AL SOURCE CATEGORI ES AFFECTED BY THI S ACTI ON

Category

I ndust r y . . . .

NAICS code1

211111

Examples of regulated entities

Cr ude Pet r ol eum and Natur al GasExt r act i on

211112

221210

Nat ur al Gas Li qui d Ext r act i on

Nat ur al Gas Di st r i but i on

486110 Pi pel i ne Di st r i but i on of Cr udeOi l

486210 Pi pel i ne Tr anspor t at i on ofNatur al Gas

Feder al gover nment . . . . Not af f ect ed.

St at e/ l ocal / t r i bal . . . . Not af f ect ed.gover nment 1

Nor t h Amer i can I ndust r y Cl assi f i cat i on Syst em.

Thi s t abl e i s not i ntended t o be exhaust i ve, but r at her i s

meant t o pr ovi de a gui de f or r eader s r egar di ng ent i t i es l i kel y

t o be af f ect ed by t hi s act i on. I f you have any quest i ons

r egar di ng t he appl i cabi l i t y of t hi s act i on t o a par t i cul ar

ent i t y, consul t ei t her t he ai r per mi t t i ng aut hor i t y f or t he

ent i t y or your EPA r egi onal r epr esent at i ve as l i st ed i n 40 CFR

60. 4 or 40 CFR 63. 13 ( Gener al Pr ovi si ons) .

C. What ar e the emi ssi on sour ces af f ect ed by t hi s act i on?




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1. What are the emi ss i on sour ces af f ected by t he NSPS?

The emi ssi on sour ces af f ect ed by t he NSPS i ncl ude wel l

compl et i ons, pneumat i c cont r ol l er s, equi pment l eaks f r om nat ur al

gas pr ocessi ng pl ant s, sweet eni ng uni t s at nat ur al gas

pr ocessi ng pl ant s, r eci pr ocat i ng compr essor s, cent r i f ugal

compr essors and st or age vessel s whi ch ar e const r uct ed, modi f i ed

or r econst r uct ed af t er August 23, 2011. Wel l compl et i ons subj ect

t o t he NSPS ar e l i mi t ed t o t he f l owback per i od f ol l owi ng

hydr aul i c f r actur i ng oper at i ons at a gas wel l af f ected f aci l i t y.

These compl et i ons i ncl ude t hose conduct ed at newl y dr i l l ed and

f r act ur ed wel l s, as wel l as compl et i ons conduct ed f ol l owi ng

r ef r act ur i ng oper at i ons t hat may occur at var i ous t i mes over t he

l i f e of t he wel l . Pneumat i c cont r ol l er s af f ect ed by t he NSPS

i ncl ude cont i nuous bl eed, nat ur al gas- dr i ven pneumat i c

cont r ol l er s wi t h a nat ur al gas bl eed r at e gr eat er t han 6 scf h

and whi ch commenced const r uct i on af t er August 23, 2011, i n t he

oi l and nat ur al gas pr oduct i on segment ( except f or gas

pr ocessi ng pl ant s) and cont i nuous bl eed nat ur al gas- dr i ven

pneumat i c cont r ol l ers whi ch commenced const r uct i on af t er August

23, 2011, at nat ur al gas processi ng pl ant s. The NSPS appl i es t o

cent r i f ugal compr essors wi t h wet seal s and r eci pr ocat i ng

compr essors l ocat ed i n t he natur al gas product i on and pr ocessi ng

segment s. The NSPS al so appl i es t o equi pment l eaks f r omonshor e




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nat ur al gas pr ocessi ng pl ant s and t o st or age vessel s l ocat ed i n

t he oi l and nat ur al gas pr oduct i on segment , t he nat ur al gas

pr ocess i ng segment and t he natur al gas t r ansmi ss i on and st orage

segment . The NSPS al so af f ect s sweet eni ng uni t s l ocat ed onshor e

t hat pr ocess nat ur al gas f r om onshor e or of f shor e wel l s.

2. What are the emi ss i on sources af f ect ed by t he NESHAP?

The emi ssi on sour ces t hat ar e af f ect ed by t he Oi l and

Natur al Gas Pr oduct i on NESHAP ( 40 CFR par t 63, subpar t HH) or

t he Natur al Gas Tr ansmi ss i on and St orage NESHAP ( 40 CFR par t 63,

subpart HHH) i ncl ude gl ycol dehydr ators and equi pment l eaks.

D. Where can I get a copy of t hi s document ?

I n addi t i on t o bei ng avai l abl e i n t he docket , an el ect r oni c

copy of t hi s act i on wi l l al so be avai l abl e on t he Wor l d Wi de Web

( WWW) . Fol l owi ng si gnat ur e by t he Admi ni st r at or , a copy of t he

act i on wi l l be post ed on t he EPA s websi t e at t he f ol l owi ng

addr ess: ht t p: / / www. epa. gov/ ai r qual i t y/ oi l andgas.

Addi t i onal i nf or mat i on i s avai l abl e on t he EPA s RTR web

s i t e at ht t p: / / www. epa. gov/ t t n/ at w/ r r i sk/ oar pg. ht ml . Thi s

i nf or mat i on i ncl udes t he most r ecent ver si on of t he rul e, sour ce

cat egor y descr i pt i ons, det ai l ed emi ssi ons and ot her dat a wer e

used as i nput s t o t he r i sk assessment s.

E. J udi ci al Revi ew


http://www.epa.gov/airquality/oilandgashttp://www.epa.gov/ttn/atw/rrisk/oarpg.htmlhttp://www.epa.gov/airquality/oilandgashttp://www.epa.gov/ttn/atw/rrisk/oarpg.html


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Under CAA sect i on 307( b) ( 1) , j udi ci al r evi ew of t hi s f i nal

r ul e i s avai l abl e onl y by f i l i ng a pet i t i on f or r evi ew i n t he

Uni t ed St at es Cour t of Appeal s f or t he Di st r i ct of Col umbi a

Ci r cui t by [INSERT DATE 60 DAYS AFTER PUBLICATION IN THE FEDERAL

REGISTER]. Under CAA sect i on 307( d) ( 7) ( B) , onl y an obj ect i on t o

t hi s f i nal r ul e t hat was r ai sed wi t h r easonabl e speci f i ci t y

dur i ng t he per i od f or publ i c comment ( i ncl udi ng any publ i c

hear i ng) can be r ai sed dur i ng j udi ci al r evi ew. Thi s sect i on al so

pr ovi des a mechani sm f or t he EPA t o convene a pr oceedi ng f or

r econsi der at i on [ i ] f t he per son r ai si ng an obj ect i on can

demonst r at e t o t he Admi ni st r at or t hat i t was i mpr act i cabl e t o

r ai se such obj ect i on wi t hi n [ t he per i od f or publ i c comment ] or

i f t he gr ounds f or such obj ect i on ar ose af t er t he per i od f or

publ i c comment ( but wi t hi n t he t i me speci f i ed f or j udi ci al

r evi ew) and i f such obj ect i on i s of cent r al r el evance t o t he

out come of t he rul e[ . ] Any person seeki ng to make such a

demonst r at i on t o us shoul d submi t a Pet i t i on f or Reconsi der at i on

t o t he Of f i ce of t he Admi ni st r at or , Envi r onment al Pr ot ect i on

Agency, Room 3000, Ar i el Ri os Bui l di ng, 1200 Pennsyl vani a Ave. ,

NW, Washi ngt on, D. C. 20004, wi t h a copy t o t he person l i st ed i n

t he pr ecedi ng FOR FURTHER INFORMATION CONTACT sect i on, and t he

Associ at e Gener al Counsel f or t he Ai r and Radi at i on Law Of f i ce,

Of f i ce of Gener al Counsel ( Mai l Code 2344A) , Envi r onment al




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Protect i on Agency, 1200 Pennsyl vani a Ave. , NW, Washi ngt on, D. C.

20004. Note, under CAA sect i on 307( b) ( 2) , t he r equi r ement s

est abl i shed by t hi s f i nal r ul e may not be chal l enged separ at el y

i n any ci vi l or cr i mi nal pr oceedi ngs br ought by the EPA t o

enf or ce t hese r equi r ement s.

III. Background Information on the NSPS and NESHAP

A. What are t he st atut ory aut hor i t i es f or t he NSPS and NESHAP?

1. What i s t he st at ut or y aut hor i t y f or t he NSPS?

Sect i on 111 of t he CAA r equi r es t he EPA Admi ni st r at or t o

l i st cat egor i es of st at i onar y sour ces, i f such sour ces cause or

cont r i but e si gni f i cant l y t o ai r pol l ut i on, whi ch may r easonabl y

be ant i ci pat ed t o endanger publ i c heal t h or wel f are. The EPA

must t hen i ssue perf ormance st andards f or such sour ce

categor i es. Whereas CAA sect i on 112 st andards ar e i ssued f or new

and exi st i ng st at i onar y sour ces, st andar ds of per f or mance ar e

i ssued f or new and modi f i ed st at i onar y sour ces. These st andar ds

ar e r ef er r ed t o as NSPS. The EPA has t he aut hor i t y to def i ne t he

sour ce cat egor i es, det er mi ne t he pol l ut ant s f or whi ch st andar ds

shoul d be devel oped, i dent i f y t he f aci l i t i es wi t hi n each sour ce

cat egor y t o be cover ed and set t he emi ssi on l evel of t he

st andar ds.

CAA sect i on 111( b) ( 1) ( B) r equi r es t he EPA t o at l east

ever y 8 year s r evi ew and, i f appr opr i at e, r evi se per f or mance




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st andards. However , t he Admi ni st r ator need not r evi ew any such

st andar d i f t he Admi ni st r at or det er mi nes t hat such r evi ew i s

not appr opr i at e i n l i ght of r eadi l y avai l abl e i nf or mat i on on t he

ef f i cacy of t he st andar d. When conduct i ng a revi ew of an

exi st i ng per f or mance st andar d, t he EPA has aut hor i t y t o r evi se

t hat st andar d t o add emi ssi on l i mi t s f or pol l ut ant s or emi ssi on

sour ces not cur r ent l y regul at ed f or t hat sour ce cat egor y.

I n set t i ng or r evi si ng a per f or mance st andar d, CAA sect i on

111( a) ( 1) pr ovi des t hat per f or mance st andar ds ar e t o r ef l ect

t he degr ee of emi ssi on l i mi t at i on achi evabl e t hr ough t he

appl i cat i on of t he BSER whi ch ( t aki ng i nt o account t he cost of

achi evi ng such r educt i on and any nonai r qual i t y heal t h and

envi r onment al i mpact and energy requi r ement s) t he Admi ni st r ator

determi nes has been adequatel y demonst r ated. I n t hi s not i ce, we

r ef er t o t hi s l evel of cont r ol as t he BSER. I n det er mi ni ng BSER,

we t ypi cal l y conduct a t echnol ogy r evi ew t hat i dent i f i es what

emi ss i on r educt i on syst ems exi st and how much t hey r educe ai r

pol l ut i on, i n pr act i ce. Next , f or each cont r ol syst em

i dent i f i ed, we eval uat e i t s cost s, secondar y ai r benef i t s ( or

di sbenef i t s) r esul t i ng f r om ener gy r equi r ement s and nonai r

qual i t y i mpact s such as sol i d wast e gener at i on. Based on our

eval uat i on, we woul d det er mi ne BSER. The resul t ant st andar d i s

usual l y a numer i cal emi ssi ons l i mi t , expr essed as a per f or mance




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l evel ( i . e. , a r at e- based st andar d or per cent cont r ol ) , t hat

r ef l ect s t he BSER. Al t hough such st andards are based on t he

BSER, t he EPA may not pr escr i be a par t i cul ar t echnol ogy t hat

must be used to compl y wi t h a per f ormance st andard, except i n

i nst ances wher e t he Admi ni st r at or det er mi nes i t i s not f easi bl e

t o pr escr i be or enf or ce a st andar d of per f or mance. Typi cal l y,

sour ces r emai n f r ee t o sel ect any cont r ol measur es t hat wi l l

meet t he emi ss i on l i mi t s. Upon pr omul gat i on, an NSPS becomes a

nat i onal st andar d to whi ch al l new sour ces must compl y.

2. What i s t he st at ut or y aut hor i t y f or t he NESHAP?

Sect i on 112 of t he CAA est abl i shes a t wo- st age r egul at or y

pr ocess t o addr ess emi ssi ons of HAP f r om st at i onar y sour ces. I n

t he f i r st st age, af t er t he EPA has i dent i f i ed cat egor i es of

sour ces emi t t i ng one or mor e of t he HAP l i st ed i n sect i on 112( b)

of t he CAA, sect i on 112( d) of t he CAA cal l s f or us t o pr omul gat e

NESHAP f or t hose sour ces. Maj or sour ces ar e those t hat emi t or

have t he pot ent i al t o emi t ( PTE) 10 t py or mor e of a si ngl e HAP

or 25 t py or more of any combi nat i on of HAP. For maj or sour ces,

t he t echnol ogy- based emi ss i on st andards must r ef l ect t he maxi mum

degr ee of emi ssi on r educt i ons of HAP achi evabl e ( af t er

consi der i ng cost , ener gy requi r ement s and nonai r qual i t y heal t h

and envi r onment al i mpact s) and ar e commonl y r ef er r ed t o as MACT

st andar ds.




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MACT st andar ds are set t o r ef l ect appl i cat i on of measur es,

pr ocesses, met hods, syst ems or t echni ques, i ncl udi ng, but not

l i mi t ed t o, measures whi ch, ( 1) r educe t he vol ume of or

el i mi nat e pol l ut ant s t hr ough pr ocess changes, subst i t ut i on of

mat er i al s or ot her modi f i cat i ons, ( 2) encl ose syst ems or

pr ocesses t o el i mi nat e emi ssi ons, ( 3) capt ur e or t r eat

pol l ut ant s when r el eased f r om a pr ocess, st ack, st or age or

f ugi t i ve emi ssi ons poi nt , ( 4) ar e desi gn, equi pment , wor k

pr act i ce or oper at i onal st andar ds ( i ncl udi ng r equi r ement s f or

oper at or t r ai ni ng or cer t i f i cat i on) or ( 5) ar e a combi nat i on of

t he above. CAA sect i ons 112( d) ( 2) ( A) ( E) . A MACT st andard may

t ake t he f or m of a desi gn, equi pment , wor k pr act i ce or

oper at i onal st andar d wher e the EPA f i r st det er mi nes ei t her t hat ,

( 1) a pol l ut ant cannot be emi t t ed t hr ough a conveyance desi gned

and const r uct ed t o emi t or capt ur e the pol l ut ant or t hat any

r equi r ement f or or use of such a conveyance woul d be

i nconsi st ent wi t h l aw or ( 2) t he appl i cat i on of measur ement

met hodol ogy t o a par t i cul ar cl ass of sour ces i s not pr act i cabl e

due to technol ogi cal and economi c l i mi t at i ons. CAA sect i ons

112( h) ( 1) , ( 2) .

The MACT f l oor i s t he mi ni mum cont r ol l evel al l owed f or

MACT st andar ds pr omul gat ed under CAA sect i on 112( d) ( 3) and may

not be based on cost consi derat i ons. For new sour ces, t he MACT




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f l oor cannot be l ess st r i ngent t han t he emi ssi on cont r ol t hat i s

achi eved i n pr act i ce by t he best - cont r ol l ed si mi l ar sour ce. The

MACT f l oor s f or exi st i ng sour ces can be l ess s t r i ngent t han

f l oor s f or new sour ces, but cannot be l ess st r i ngent t han t he

aver age emi ssi on l i mi t at i on achi eved by the best - per f or mi ng 12

per cent of exi st i ng sour ces i n t he cat egor y or subcat egor y ( or

t he best - per f or mi ng f i ve sour ces f or cat egor i es or subcat egor i es

wi t h f ewer t han 30 sour ces) . I n devel opi ng MACT st andards, we

must al so consi der cont r ol opt i ons t hat ar e mor e st r i ngent t han

t he f l oor . We may est abl i sh st andar ds mor e st r i ngent t han t he

f l oor based on t he consi der at i on of t he cost of achi evi ng t he

emi ssi ons r educt i ons, any nonai r qual i t y heal t h and

envi r onment al i mpact s and energy r equi r ement s.

The EPA i s t hen r equi r ed t o r evi ew t hese t echnol ogy- based

st andar ds and t o r evi se them as necessary ( t aki ng i nt o account

devel opment s i n pr act i ces, pr ocesses, and cont r ol t echnol ogi es)

no l ess f r equent l y t han ever y 8 year s, under CAA sect i on

112( d) ( 6) . I n conduct i ng t hi s r evi ew, t he EPA i s not obl i ged t o

compl et el y r ecal cul at e t he pr i or MACT det er mi nat i on. NRDC v.

EPA, 529 F. 3d 1077, 1084 ( D. C. Ci r . 2008) .

The second st age i n st andar d- set t i ng f ocuses on r educi ng

any r emai ni ng r esi dual r i sk accor di ng t o CAA sect i on 112( f ) .

Thi s provi si on r equi r es, f i r st , t hat t he EPA prepar e a Repor t t o




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Congr ess di scussi ng ( among ot her t hi ngs) met hods of cal cul at i ng

r i sk posed ( or pot ent i al l y posed) by sour ces af t er

i mpl ement at i on of t he MACT st andar ds, t he publ i c heal t h

si gni f i cance of t hose r i sks and t he EPA s r ecommendat i ons as t o

l egi sl at i on r egar di ng such r emai ni ng r i sk. The EPA pr epar ed and

submi t t ed t hi s r epor t ( Resi dual Ri sk Repor t t o Congr ess, EPA

453/ R99001) i n March 1999. Congr ess di d not act i n r esponse t o

t he r epor t , t her eby t r i gger i ng t he EPA s obl i gat i on under CAA

sect i on 112( f ) ( 2) t o anal yze and addr ess r esi dual r i sk.

CAA sect i on 112( f ) ( 2) r equi r es us t o det er mi ne f or sour ce

cat egor i es subj ect t o MACT st andar ds, whet her t he emi ssi ons

st andar ds provi de an ampl e margi n of saf et y to pr ot ect publ i c

heal t h. CAA sect i on 112( f ) ( 2) expr essl y pr eserves our use of a

t wo- st ep pr ocess f or devel opi ng st andar ds t o addr ess any

r esi dual r i sk and our i nt er pr et at i on of ampl e mar gi n of saf et y

devel oped i n t he Nat i onal Emi ssi on St andar ds f or Hazardous Ai r

Pol l ut ant s: Benzene Emi ssi ons f r om Mal ei c Anhydr i de Pl ant s,

Et hyl benzene/ St yrene Pl ant s, Benzene St orage Vessel s, Benzene

Equi pment Leaks, and Coke By- Product Recover y Pl ant s ( Benzene

NESHAP) ( 54 FR 38044, Sept ember 14, 1989) . The f i r st st ep i n

t hi s pr ocess i s t he det er mi nat i on of accept abl e r i sk. The second

st ep pr ovi des f or an ampl e mar gi n of saf et y t o pr ot ect publ i c

heal t h, whi ch i s t he l evel at whi ch t he st andar ds must be set




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( unl ess a mor e st r i ngent st andar d i s r equi r ed t o pr event an

adver se envi r onment al ef f ect , t aki ng i nt o consi der at i on cost s,

ener gy, saf et y and ot her r el evant f act or s) .

I f t he MACT st andar ds f or HAP t hat ar e cl assi f i ed as a

known, pr obabl e, or possi bl e human car ci nogen do not r educe

l i f et i me excess cancer r i sks t o the i ndi vi dual most exposed t o

emi ssi ons f r om a sour ce i n t he cat egor y or subcat egor y t o l ess

t han 1- i n- 1 mi l l i on, t he EPA must pr omul gat e resi dual r i sk

st andar ds f or t he sour ce cat egor y (or subcat egor y) , as

necessar y, t o pr ovi de an ampl e mar gi n of saf et y t o pr ot ect

publ i c heal t h. I n doi ng so, t he EPA may adopt st andar ds equal t o

exi st i ng MACT st andar ds i f t he EPA det er mi nes t hat t he exi st i ng

st andar ds ar e suf f i ci ent l y pr ot ect i ve. NRDC v. EPA, 529 F. 3d

1077, 1083 ( D. C. Ci r . 2008) ( I f EPA det er mi nes t hat t he

exi st i ng technol ogy- based st andar ds provi de an ampl e mar gi n of

saf et y, t hen t he Agency i s f r ee t o r eadopt t hose st andar ds

dur i ng t he r esi dual r i sk rul emaki ng. ) . As ment i oned, t he EPA

must al so adopt mor e st r i ngent st andar ds, i f necessary, t o

pr event an adver se envi r onment al ef f ect , 1 but must consi der cost ,

ener gy, saf et y and ot her r el evant f act or s i n doi ng so.

1 Adver se envi r onment al ef f ect i s def i ned i n CAA sect i on 112( a) ( 7) as anysi gni f i cant and wi despr ead adver se ef f ect , whi ch may be r easonabl yant i ci pat ed t o wi l dl i f e, aquat i c l i f e or nat ur al r esour ces, i ncl udi ng adver sei mpact s on popul at i ons of endanger ed or t hr eat ened speci es or si gni f i cantdegr adat i on of envi r onment al qual i t i es over br oad ar eas.




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The t er ms i ndi vi dual most exposed, acceptabl e l evel ,

and ampl e mar gi n of saf et y ar e not speci f i cal l y def i ned i n t he

CAA. However , CAA sect i on 112( f ) ( 2) ( B) pr eserves t he

i nt er pr et at i on set out i n t he Benzene NESHAP, and the Uni t ed

St at es Cour t of Appeal s f or t he Di st r i ct of Col umbi a Ci r cui t has

concl uded t hat t he EPA s i nt er pr et at i on of CAA sect i on 112( f ) ( 2)

i s a reasonabl e one. See NRDC v. EPA, 529 F. 3d at 1083

( [ S] ubsect i on 112( f ) ( 2) ( B) expr essl y i ncor por at es t he EPA s

i nt er pr et at i on of t he Cl ean Ai r Act f r om t he Benzene st andar d,

compl et e wi t h a ci t at i on t o t he Feder al Regi st er ) . See, al so, A

Legi sl at i ve Hi st or y of t he Cl ean Ai r Act Amendment s of 1990,

vol ume 1, p. 877 (Senate debat e on Conf erence Repor t ) . We

not i f i ed Congr ess i n t he Resi dual Ri sk Repor t t o Congr ess t hat

we

i ntended t o use t he Benzene NESHAP appr oach i n maki ng CAA

sect i on

112( f ) r esi dual r i sk det er mi nat i ons ( EPA453/ R99001, p. ES

11) .

I n t he Benzene NESHAP, we st at ed as an over al l obj ect i ve:

* * * i n pr ot ect i ng publ i c heal t h wi t h an ampl e mar gi n of

saf et y, we st r i ve t o pr ovi de maxi mum f easi bl e pr ot ect i on

agai nst r i sks t o heal t h f r om hazar dous ai r pol l ut ant s by,

( 1) pr ot ect i ng t he gr eat est number of per sons possi bl e t o




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an i ndi vi dual l i f et i me r i sk l evel no hi gher t han

appr oxi mat el y 1- i n- 1 mi l l i on; and ( 2) l i mi t i ng t o no hi gher

t han appr oxi mat el y 1- i n- 10 t housand [ i . e. , 100- i n- 1

mi l l i on] t he est i mat ed r i sk t hat a per son l i vi ng near a

f aci l i t y woul d have i f he or she wer e exposed t o the

maxi mum pol l ut ant concent r at i ons f or 70 year s.

The agency al so st at ed i n t he Resi dual Ri sk Repor t t o Congress

t hat The EPA al so consi der s i nci dence ( t he number of per sons

est i mat ed t o suf f er cancer or ot her ser i ous heal t h ef f ect s as a

r esul t of exposur e t o a pol l ut ant ) t o be an i mpor t ant measur e of

t he heal t h r i sk t o t he exposed popul at i on. I nci dence measures

t he extent of heal t h r i sk t o the exposed popul at i on as a whol e,

by pr ovi di ng an est i mat e of t he occur r ence of cancer or ot her

ser i ous heal t h ef f ect s i n t he exposed popul at i on. The agency

went on t o concl ude that est i mated i nci dence woul d be wei ghed

al ong wi t h ot her heal t h r i sk i nf or mat i on i n j udgi ng

accept abi l i t y. As expl ai ned mor e f ul l y i n our Resi dual Ri sk

Repor t t o Congr ess, t he EPA does not def i ne r i gi d l i ne[ s] of

accept abi l i t y, but consi der s r at her br oad obj ect i ves t o be

wei ghed wi t h a ser i es of ot her heal t h measures and f act or s ( EPA

453/ R99001, p. ES11) . The determi nat i on of what r epr esent s an

accept abl e r i sk i s based on a j udgment of what r i sks are

accept abl e i n t he wor l d i n whi ch we l i ve ( Resi dual Ri sk Repor t




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t o Congr ess, p. 178, quot i ng t he Vi nyl Chl or i de deci si on at 824

F. 2d 1165) r ecogni zi ng t hat our wor l d i s not r i sk- f r ee.

I n t he Benzene NESHAP, we st ated t hat EPA wi l l general l y

pr esume t hat i f t he r i sk t o [ t he maxi mum exposed] i ndi vi dual i s

no hi gher t han appr oxi mat el y 1- i n- 10 t housand, t hat r i sk l evel

i s consi der ed accept abl e. 54 FR 38045. We di scussed the maxi mum

i ndi vi dual l i f et i me cancer r i sk (or maxi mum i ndi vi dual r i sk

( MI R) ) as bei ng t he est i mat ed r i sk t hat a per son l i vi ng near a

pl ant woul d have i f he or she were exposed to t he maxi mum

pol l ut ant concent r at i ons f or 70 year s. I d. We expl ai ned t hat

t hi s measur e of r i sk i s an est i mat e of t he upper bound of r i sk

based on conser vat i ve assumpt i ons, such as cont i nuous exposur e

f or 24 hour s per day f or 70 year s. I d. We acknowl edge t hat

maxi mum i ndi vi dual l i f et i me cancer r i sk does not necessar i l y

r ef l ect t he t r ue r i sk, but di spl ays a conser vat i ve r i sk l evel

whi ch i s an upper - bound t hat i s unl i kel y t o be exceeded. I d.

Under st andi ng t hat t her e ar e bot h benef i t s and l i mi t at i ons t o

usi ng maxi mum i ndi vi dual l i f et i me cancer r i sk as a met r i c f or

determi ni ng accept abi l i t y, we acknowl edged i n t he 1989 Benzene

NESHAP t hat consi der at i on of maxi mum i ndi vi dual r i sk * * * must

t ake i nt o account t he st r engt hs and weaknesses of t hi s measure

of r i sk. I d. Consequent l y, t he pr esumpt i ve r i sk l evel of 100

i n- 1 mi l l i on ( 1- i n- 10 t housand) pr ovi des a benchmar k f or j udgi ng




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t he accept abi l i t y of maxi mum i ndi vi dual l i f et i me cancer r i sk,

but does not const i t ut e a r i gi d l i ne f or maki ng t hat

det er mi nat i on.

The agency al so expl ai ned i n t he 1989 Benzene NESHAP t he

f ol l owi ng: I n est abl i shi ng a pr esumpt i on f or MI R, r at her t han a

r i gi d l i ne f or accept abi l i t y, t he Agency i nt ends t o wei gh i t

wi t h a ser i es of ot her heal t h measur es and f act or s. These

i ncl ude t he over al l i nci dence of cancer or ot her ser i ous heal t h

ef f ect s wi t hi n t he exposed popul at i on, t he number s of per sons

exposed wi t hi n each i ndi vi dual l i f et i me ri sk r ange and

associ at ed i nci dence wi t hi n, t ypi cal l y, a 50- ki l omet er ( km)

exposur e r adi us ar ound f aci l i t i es, t he sci ence pol i cy

assumpt i ons and est i mat i on uncer t ai nt i es associ at ed wi t h t he

r i sk measur es, wei ght of t he sci ent i f i c evi dence f or human

heal t h ef f ect s, ot her quant i f i ed or unquant i f i ed heal t h ef f ect s,

ef f ect s due t o co- l ocat i on of f aci l i t i es and co- emi ssi on of

pol l ut ant s . I d.

I n some cases, t hese heal t h measures and f act ors t aken

t oget her may pr ovi de a mor e r eal i st i c descr i pt i on of t he

magni t ude of r i sk i n t he exposed popul at i on t han t hat pr ovi ded

by maxi mum i ndi vi dual l i f et i me cancer r i sk al one. As expl ai ned

i n t he Benzene NESHAP, [ e]ven though the r i sks j udged

accept abl e by t he EPA i n t he f i r st st ep of t he Vi nyl Chl or i de




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i nqui r y ar e al r eady l ow, t he second st ep of t he i nqui r y,

det er mi ni ng an ampl e mar gi n of saf et y, agai n i ncl udes

consi der at i on of al l of t he heal t h f act or s, and whet her t o

r educe t he r i sks even f ur t her . I n t he ampl e mar gi n of saf et y

deci si on pr ocess, t he agency agai n consi der s al l of t he heal t h

r i sks and ot her heal t h i nf or mat i on consi der ed i n t he f i r st st ep.

Beyond t hat i nf or mat i on, addi t i onal f act or s r el at i ng t o t he

appr opr i at e l evel ar e consi der ed, i ncl udi ng cost s and economi c

i mpacts of cont r ol s, t echnol ogi cal f easi bi l i t y, uncer t ai nt i es

and any ot her r el evant f act or s. Consi der i ng al l of t hese

f act or s, t he agency wi l l est abl i sh t he st andar d at a l evel t hat

pr ovi des an ampl e mar gi n of saf et y t o pr ot ect t he publ i c heal t h,

as r equi r ed by CAA sect i on 112( f ) . See 54 FR 38046.

B. What i s t he l i t i gat i on hi st or y?

On J anuar y 14, 2009, pur suant t o sect i on 304( a) ( 2) of t he

CAA, Wi l dEar t h Guar di ans and t he San J uan Ci t i zens Al l i ance

f i l ed a compl ai nt i n t he Uni t ed St at es Di st r i ct Cour t f or t he

Di st r i ct of Col umbi a and al l eged t hat t he EPA f ai l ed t o meet i t s

obl i gat i ons under CAA sect i ons 111( b) ( 1) ( B) , 112( d) ( 6) and

112( f ) ( 2) t o t ake act i ons r el at i ve t o t he r evi ew/ r evi si on of t he

NSPS and t he NESHAP wi t h respect t o t he Oi l and Natur al Gas

Product i on sour ce cat egor y. On Febr uar y 5, 2010, t he Cour t

ent er ed a consent decr ee t hat , as successi vel y modi f i ed,




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r equi r ed t he EPA t o si gn by J ul y 28, 2011, 2 pr oposed st andards

and/ or deter mi nat i ons not t o i ssue st andar ds pur suant t o CAA

sect i ons 111( b) ( 1) ( B) , 112( d) ( 6) and 112( f ) ( 2) and t o t ake f i nal

act i on by Apr i l 3, 2012. On Apr i l 2, 2012, t he consent decr ee

was modi f i ed t o change t he dat e f or f i nal act i on t o no l at er

t han Apr i l 17, 2012.

C. What i s t he sect or - based appr oach?

Sect or - based appr oaches ar e based on i nt egr ated assessment s

of i ndust r i al oper at i ons t hat consi der mul t i pl e pol l ut ant s i n a

comprehensi ve and coor di nat ed manner t o manage emi ssi ons and CAA

r equi r ement s. One of t he many ways we can address sect or - based

appr oaches i s by r evi ewi ng mul t i pl e r egul at or y pr ogr ams t oget her

whenever possi bl e, f or exampl e the NSPS and NESHAP, consi st ent

wi t h al l appl i cabl e l egal r equi r ement s. Thi s appr oach

essent i al l y expands t he t echni cal anal yses on cost s and benef i t s

of par t i cul ar t echnol ogi es, t o consi der t he i nt er act i ons of

r ul es t hat r egul at e sour ces. The benef i t of mul t i - pol l ut ant and

sect or - based anal yses and appr oaches i ncl udes t he abi l i t y to

i dent i f y opt i mum st r at egi es, consi der i ng f easi bi l i t y, cost

i mpact s and benef i t s acr oss t he di f f er ent pol l ut ant t ypes whi l e

2 On Apr i l 27, 2011, pur suant t o paragr aph 10( a) of t he Consent Decree, t hepar t i es f i l ed wi t h t he Cour t a wr i t t en st i pul at i on to ext end the pr oposaldat e f r om J anuar y 31, 2011, t o J ul y 28, 2011, and t he f i nal act i on dat e f r omNovember 30, 2011, t o Februar y 28, 2012. On Oct ober 28, 2011, pur suant t oparagr aph 10( a) of t he Consent Decr ee, t he par t i es f i l ed wi t h t he Cour t awr i t t en st i pul at i on t o ext end t he f i nal act i on dat e f r om Febr uar y 28, 2012,t o Apr i l 3, 2012.




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st r eaml i ni ng admi ni st r at i ve and compl i ance compl exi t i es and

r educi ng conf l i ct i ng and r edundant r equi r ement s, r esul t i ng i n

added cer t ai nt y and easi er i mpl ement at i on of cont r ol st r at egi es

f or t he sect or under consi der at i on. I n or der t o benef i t f r om a

sect or - based appr oach f or t he oi l and gas i ndust r y, t he EPA

anal yzed how t he NSPS and NESHAP under consi derat i on r el ate t o

each ot her and ot her r egul at ory requi r ement s curr ent l y under

r evi ew f or oi l and gas f aci l i t i es. I n t hi s anal ysi s, we l ooked

at how t he di f f er ent cont r ol r equi r ement s t hat r esul t f r om t hese

r equi r ement s i nt er act , i ncl udi ng t he di f f er ent r egul at or y

deadl i nes and cont r ol equi pment r equi r ement s t hat r esul t , t he

di f f er ent r epor t i ng and r ecor dkeepi ng r equi r ement s and

oppor t uni t i es f or st at es t o account f or r educt i ons r esul t i ng

f r om t hi s r ul emaki ng i n t hei r St at e I mpl ement at i on Pl ans ( SI P) .

The r equi r ement s anal yzed af f ect cr i t er i a pol l utants, HAP and

met hane emi ssi ons f r om oi l and nat ur al gas pr ocesses and cover

t he NSPS and NESHAP revi ews.

As a resul t of t he sect or - based appr oach, t hi s r ul emaki ng

wi l l r educe conf l i ct i ng and r edundant r equi r ement s. Al so, t he

sect or - based appr oach st r eaml i nes t he moni t or i ng, r ecor dkeepi ng

and r epor t i ng r equi r ement s, t hus, r educi ng admi ni st r at i ve and

compl i ance compl exi t i es associ at ed wi t h compl yi ng wi t h mul t i pl e

r egul at i ons. I n addi t i on, t he sect or - based appr oach i n t hi s r ul e




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pr omotes a compr ehensi ve cont r ol st r ategy t hat maxi mi zes t he co

cont r ol of mul t i pl e r egul at ed pol l ut ant s whi l e obt ai ni ng

emi ssi on r educt i ons as co- benef i t s.

D. What ar e t he heal t h ef f ect s of pol l ut ant s emi t t ed f r om t he

oi l and nat ur al gas sect or ?

The f i nal oi l and nat ural gas sect or NSPS and NESHAP

amendment s are expect ed t o r esul t i n si gni f i cant r educt i ons i n

exi st i ng emi ssi ons and pr event new emi ssi ons f r om expansi ons of

t hi s i ndust r y. These emi ssi ons i ncl ude HAP, VOC ( a pr ecur sor t o

bot h PM2. 5 and ozone f or mat i on) and met hane ( a GHG and a

pr ecur sor t o gl obal ozone f or mat i on) . These emi ssi ons ar e

associ at ed wi t h subst ant i al heal t h ef f ect s, wel f ar e ef f ect s and

cl i mat e ef f ect s. One HAP of par t i cul ar concer n f r om t he oi l and

natur al gas sect or i s benzene, whi ch i s a known human

car ci nogen. PM2. 5 i s associ at ed wi t h heal t h ef f ect s, i ncl udi ng

pr emat ur e mor t al i t y f or adul t s and i nf ant s, car di ovascul ar

mor bi di t y, such as hear t at t acks, hospi t al admi ssi ons and

r espi r at ory mor bi di t y such as ast hma at t acks, acut e and chr oni c

br onchi t i s, hospi t al and emer gency r oom vi si t s, wor k l oss days,

r est r i ct ed act i vi t y days and r espi r at or y sympt oms, as wel l as

vi si bi l i t y i mpai r ment . Ozone i s associ at ed wi t h heal t h ef f ect s,

i ncl udi ng hospi t al and emer gency depar t ment vi si t s, school l oss




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days and pr emat ur e mor t al i t y, as wel l as i nj ur y t o veget at i on

and cl i mat e ef f ect s.

IV. Summary of the Final NSPS Rule

A. What ar e t he f i nal act i ons r el at i ve t o t he NSPS f or t he Cr ude

Oi l

and Natur al Gas Pr oduct i on sour ce cat egory?

We ar e r evi si ng t he exi st i ng NSPS, whi ch r egul ate VOC

emi ss i ons f r omequi pment l eaks and SO2 emi ssi ons f r om sweet eni ng

uni t s at onshor e gas pr ocessi ng pl ant s. I n addi t i on, we ar e

pr omul gat i ng st andar ds f or sever al new oi l and natur al gas

af f ected f aci l i t i es. The f i nal st andar ds appl y t o af f ected

f aci l i t i es t hat commence const r uct i on, r econst r uct i on or

modi f i cat i on af t er August 23, 2011, t he dat e of t he pr oposed

rul e.

The l i st ed Cr ude Oi l and Nat ural Gas Pr oduct i on sour ce

category cover s, at a mi ni mum, t hose operat i ons f or whi ch we ar e

est abl i shi ng st andar ds i n t hi s f i nal r ul e. Tabl e 3 summar i zes

t he 40 CFR part 60, subpart OOOO st andards. Fur t her di scussi on

of t hese changes may be f ound bel ow i n t hi s sect i on and i n

sect i ons V and I X of t hi s pr eambl e.

TABLE 3. SUMMARY OF 40 CFR PART 60, SUBPART OOOO EMI SSI ON

STANDARDS

Affected Facility Pollutant Standard Compliance Dates




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Hydr aul i cal l y f r acturedwi l dcat and del i neat i on

wel l s VOC

Rout e f l owbackemi ssi ons t ocompl et i on

combust i on devi ce

[INSERT DATE 60 DAYS

AFTER DATE OF

PUBLICATION IN THE

FEDERAL REGISTER]

Hydr aul i cal l y f r acturedl ow pr essure wel l s, non-

wi l dcat and non-del i neat i on wel l s VOC


combust i on devi ce


AFTER DATE OF

PUBLICATION IN THE

FEDERAL REGISTER]

Al l ot her hydr aul i cal l yf r actur ed gas wel l s VOC


combust i on devi cePr i or t o J anuar y 1,

2015

Al l ot her hydr aul i cal l yf r actur ed gas wel l s VOC

Use REC and r out ef l owback emi ssi ons

t o compl et i oncombust i on devi ce

On or af t er J anuar y 1,2015

Cent r i f ugal compr essor swi t h wet seal s VOC

Reduce emi ss i ons by95 per cent


AFTER DATE OFPUBLICATION IN THE

FEDERAL REGISTER]

Reci procat i ng compressor s VOC

Change r od packi ngaf t er 26, 000 hour sor af t er 36 mont hs


AFTER DATE OF

PUBLICATION IN THE

FEDERAL REGISTER]

Cont i nuous bl eed natur algas- dr i ven pneumat i c

cont r ol l er s at nat ur algas processi ng pl ant s VOC

Natur al gas bl eedr at e of zer o


AFTER DATE OF

PUBLICATION IN THE

FEDERAL REGISTER]

Cont i nuous bl eed natur algas- dr i ven pneumat i c

cont r ol l er s wi t h a bl eedr at e gr eat er t han 6 scf h

between wel l head andnat ur al gas processi ng

pl ant VOC

Natur al gas bl eedr at e l ess t han 6

scf h

[INSERT DATE 1 YEAR

AFTER DATE OF

PUBLICATION IN THE

FEDERAL REGISTER]

Storage vessel s wi t h VOCemi ssi ons equal t o or

great er t han 6 t py VOCReduce emi ss i ons by

95 per cent

[INSERT DATE 1 YEAR

AFTER DATE OF

PUBLICATION IN THE

FEDERAL REGISTER]

Equi pment l eaks atonshor e natural gasprocess i ng pl ant s VOC LDAR progr am


AFTER DATE OF

PUBLICATION IN THE

FEDERAL REGISTER]

Sweet eni ng uni t s atonshor e natural gaspr ocessi ng pl ant s SO2

Reduce SO2 emi ssi onsbased on sul f urf eed rate and

sul f ur cont ent ofaci d gas


AFTER DATE OF

PUBLICATION IN THE

FEDERAL REGISTER]




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1. St andar ds f or Gas Wel l Af f ect ed Faci l i t i es

We ar e f i nal i zi ng oper at i onal st andar ds f or compl et i ons of

hydr aul i cal l y f r act ur ed and r ef r act ur ed gas wel l s. For pur poses

of t hi s r ul e, wel l compl et i on i s def i ned as t he f l owback per i od

begi nni ng af t er hydr aul i c f r act ur i ng and endi ng wi t h ei t her wel l

shut i n or when t he wel l cont i nuousl y f l ows t o t he f l ow l i ne or

t o a st or age vessel f or col l ect i on, whi chever occur s f i r st . The

f i nal r ul e appl i es t o t hr ee subcat egor i es of f r act ur ed and

r ef r act ur ed gas wel l s f or whi ch wel l compl et i on oper at i ons ar e

conduct ed: ( 1) Wi l dcat ( expl or at or y) and del i neat i on gas wel l s;

( 2) non- wi l dcat and non- del i neat i on gas wel l s f or whi ch t he

r eser voi r pr essur e i s i nsuf f i ci ent f or a REC, commonl y r ef er r ed

t o as a gr een compl et i on, t o be perf ormed, as determi ned by a

si mpl e cal cul at i on i nvol vi ng r eser voi r pr essur e, wel l dept h and

f l ow l i ne pr essur e at t he sal es met er ( we r ef er t o t hese wel l s

as l ow pr essure gas wel l s) and ( 3) ot her f r act ur ed and

r ef r act ur ed gas wel l s. For subcat egor y ( 3) wel l s, each wel l

compl et i on operat i on begun on or af t er J anuary 1, 2015, must

empl oy REC i n combi nat i on wi t h use of a compl et i on combust i on

devi ce t o cont r ol gas not sui t abl e f or ent er i ng t he f l ow l i ne

( we r ef er t o t hi s as REC wi t h combust i on) . For wel l compl et i on

oper at i ons at subcat egor y ( 1) wel l s ( expl or at or y and del i neat i on




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gas wel l s) , subcat egor y ( 2) wel l s ( l ow pr essur e gas wel l s) and

f or wel l compl et i on oper at i ons begun pr i or t o J anuar y 1, 2015,

at subcat egor y ( 3) gas wel l s, t he f i nal r ul e r equi r es t he

cont r ol of emi ssi ons usi ng ei t her REC wi t h combust i on or j ust a

compl et i on combust i on devi ce. Owners and operators ar e

encour aged t o use REC wi t h combust i on dur i ng t hi s per i od.

Wel l compl et i ons subj ect t o t he st andar ds ar e gas wel l

compl et i ons f ol l owi ng hydr aul i c f r act ur i ng and r ef r act ur i ng

oper at i ons. These compl et i ons i ncl ude t hose conduct ed at newl y

dr i l l ed and f r act ur ed wel l s, as wel l as compl et i ons conduct ed

f ol l owi ng r ef r act ur i ng oper at i ons at var i ous t i mes over t he l i f e

of t he wel l . As we expl ai ned i n t he pr oposal pr eambl e, a

compl et i on oper at i on associ at ed wi t h r ef r act ur i ng per f or med at a

wel l i s consi der ed a modi f i cat i on under CAA sect i on 111( a) ,

because physi cal change occur s t o t he wel l r esul t i ng i n

emi ssi ons i ncr eases dur i ng t he r ef r act ur i ng and compl et i on

oper at i on. I n r esponse t o comment , we f ur t her cl ar i f y thi s poi nt

i n t he f i nal r ul e, i ncl udi ng pr ovi di ng a speci f i c modi f i cat i on

pr ovi si on f or wel l compl et i ons i n l i eu of t he Gener al Pr ovi si ons

i n 40 CFR 60. 14. For a mor e det ai l ed expl anat i on, pl ease see

sect i on I X. A of t hi s pr eambl e. The modi f i cat i on det er mi nat i on

and r esul t i ng appl i cabi l i t y of NSPS t o t he compl et i on oper at i on

f ol l owi ng r ef r actur i ng of gas wel l s i s l i mi t ed st r i ctl y t o t he




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gas wel l af f ected f aci l i t y and does not by i t sel f t r i gger

appl i cabi l i t y beyond t he wel l head t o ot her anci l l ar y component s

t hat may be at t he wel l si t e such as exi st i ng st or age vessel s,

pr ocess vessel s, separ at or s, dehydr at or s or any ot her component s

or appar at us ( t hat i s, such equi pment i s not par t of t he

af f ected f aci l i t y) .

The f i nal r ul e provi des t hat uncont r ol l ed wel l compl et i ons

conduct ed on gas wel l s t hat are subsequent l y ref r act ur ed on or

af t er t he ef f ect i ve dat e of t hi s r ul e ar e modi f i cat i ons and ar e

subj ect t o t he NSPS. However , gas wel l s t hat undergo compl et i on

f ol l owi ng r ef r act ur i ng ar e not consi der ed modi f i ed and, as a

r esul t , ar e not af f ected f aci l i t i es under t he NSPS i f t he

compl et i on operat i on i s conduct ed wi t h t he use, i mmedi atel y upon

f l owback, of emi ssi on cont r ol t echni ques other wi se requi r ed on

or af t er J anuar y 1, 2015, f or new wel l s and sat i sf i es ot her

r equi r ement s, i ncl udi ng not i f i cat i on, r ecor dkeepi ng and

r epor t i ng r equi r ement s.

I n t he f i nal r ul e, we pr ovi de f or a st r eaml i ned

not i f i cat i on pr ocess f or wel l compl et i ons at gas wel l af f ect ed

f aci l i t i es consi st i ng of an emai l pr e- not i f i cat i on no l at er t han

2 days i n advance of i mpendi ng compl et i on operat i ons. The emai l

must i ncl ude i nf or mat i on t hat had been par t of t he 30- day

advance not i f i cat i on, as descr i bed i n t he pr oposed r ul e,




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di st r i but i on segment s ar e not cover ed by t hi s f i nal r ul e and,

t her ef or e, ar e not af f ected f aci l i t i es. The f i nal r ul e cont ai ns

st andar ds f or wet seal cent r i f ugal compr essors l ocat ed i n t he

natur al gas pr oduct i on segment and t he natur al gas pr ocess i ng

segment up t he poi nt at whi ch t he gas ent ers t he t r ansmi ss i on

and st or age segment . The f i nal st andar ds r equi r e 95. 0 per cent

r educt i on of t he emi ssi ons f r om each wet seal cent r i f ugal

compr essor af f ect ed f aci l i t y. The st andar d can be achi eved by

capt ur i ng and r out i ng t he emi ssi ons t o a cont r ol devi ce t hat

achi eves an emi ssi on r educt i on of 95. 0 per cent .

The oper at i onal st andar ds f or r eci procat i ng compressor s i n

t he f i nal r ul e requi r e repl acement of t he rod packi ng based on

usage. The owner or operator of a r eci pr ocat i ng compr essor

af f ect ed f aci l i t y i s r equi r ed t o change t he r od packi ng

i mmedi atel y when hour s of operat i on r each 26, 000 hour s

( equi val ent t o 36 mont hs of cont i nuous usage) . Al t er nat i vel y,

owners or operators can el ect t o change the rod packi ng every 36

mont hs i n l i eu of moni t or i ng compr essor oper at i ng hour s. An

owner or operator who el ect s t o meet t he 26, 000 hour r equi r ement

i s r equi r ed t o moni t or t he dur at i on ( i n hour s) t hat t he

compr essor i s oper at ed, begi nni ng on t he dat e of i ni t i al st ar t up

of t he r eci pr ocat i ng compr essor af f ect ed f aci l i t y, or on t he




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dat e of t he pr evi ous r od packi ng r epl acement , whi chever i s

l ater .

3. St andar ds f or Pneumat i c Cont r ol l er Af f ect ed Faci l i t i es

We ar e al so f i nal i zi ng pneumat i c cont r ol l er VOC st andar ds.

The af f ect ed f aci l i t y i s a cont i nuous bl eed, nat ural gas- dr i ven

pneumat i c cont r ol l er wi t h a nat ur al gas bl eed r at e gr eat er t han

6 scf h f or whi ch const r uct i on commenced af t er August 23, 2011,

l ocat ed ( 1) i n t he oi

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