80 FR 74068 - Oil and Natural Gas Sector: National Emission Standards for Hazardous Air Pollutants
ENVIRONMENTAL PROTECTION AGENCY Federal Register Volume 80, Issue 228 (November 27, 2015)
Federal Register Volume 80, Issue 228 (November 27, 2015)
| Page Range | 74068-74070 | |
| FR Document | 2015-30103 |
[Federal Register Volume 80, Number 228 (Friday, November 27, 2015)] [Proposed Rules] [Pages 74068-74070] From the Federal Register Online [www.thefederalregister.org] [FR Doc No: 2015-30103] ----------------------------------------------------------------------- ENVIRONMENTAL PROTECTION AGENCY 40 CFR Part 63 [EPA-HQ-OAR-2015-0747; FRL-9937-04-OAR] RIN 2060-AS13 Oil and Natural Gas Sector: National Emission Standards for Hazardous Air Pollutants AGENCY: Environmental Protection Agency (EPA). ACTION: Request for information. ----------------------------------------------------------------------- SUMMARY: This action requests information related to hazardous air pollutant (HAP) emissions from sources in the oil and natural gas production and natural gas transmission and storage segments of the oil and natural gas sector. In 2012, the Environmental Protection Agency (EPA) revised the National Emission Standards for Hazardous Air Pollutants (NESHAP) for the Oil and Natural Gas Production Facilities and the Natural Gas Transmission and Storage Facilities major source categories. This action requests additional data and information that was not available at that time. In particular, we are requesting data on storage vessels without potential flash emissions (PFE) and data on HAP emissions from regulated small glycol dehydrators. With regard to the small glycol dehydrators we are particularly interested in data regarding any emissions of HAP other than benzene, toluene, ethylbenzene, and xylene (BTEX), information on available control options for any such HAP and information regarding a potential compliance demonstration issue with respect to the 2012 standards for small glycol dehydration units, as they apply to units with very low emissions. DATES: Comments must be received on or before January 26, 2016. ADDRESSES: Submit your comments, identified by Docket ID No. EPA-HQ- OAR-2015-0747, to the Federal eRulemaking Portal: http://www.regulations.gov. Follow the online instructions for submitting comments. Once submitted, comments cannot be edited or withdrawn. The EPA may publish any comment received to its public docket. Do not submit electronically any information you consider to be Confidential Business Information (CBI) or other information whose disclosure is restricted by statute. Multimedia submissions (audio, video, etc.) must be accompanied by a written comment. The written comment is considered the official comment and should include discussion of all points you wish to make. The EPA will generally not consider comments or comment contents located outside of the primary submission (i.e., on the web, cloud, or other file sharing system). For additional submission methods, the full EPA public comment policy, information about CBI or multimedia submissions, and general guidance on making effective comments, please visit http://www2.epa.gov/dockets/commenting-epa-dockets. Docket. All documents in the docket are listed in the http://www.regulations.gov index. Although listed in the index, some information is not publicly available, e.g., CBI or other information whose disclosure is restricted by statute. Certain other material, such as copyrighted material, will be publicly available only in hard copy. Publicly available docket materials are available either electronically at http://www.regulations.gov or in hard copy at the U.S. Environmental Protection Agency, EPA Docket Center, EPA WJC West Building, Room 3334, 1301 Constitution Ave. NW., Washington, DC. The Public Reading Room is open from 8:30 a.m. to 4:30 p.m., Monday through Friday, excluding legal holidays. The telephone number for the Public Reading Room is (202) 566-1744, and the telephone number for the Air Docket is (202) 566-1742. FOR FURTHER INFORMATION CONTACT: For further information about this action, contact Mr. Matthew Witosky, Sector Policies and Programs Division (E143-05), Office of Air Quality Planning and Standards, Environmental Protection Agency, Research Triangle Park, North Carolina 27711, telephone number: (919) 541-2865; facsimile number: (919) 541- 3740; email address: witosky.matthew@epa.gov. For further information on the EPA's oil and natural gas sector regulatory program, contact Mr. Bruce Moore, Sector Policies and Programs Division (E143-05), Office of Air Quality Planning and Standards, Environmental Protection Agency, Research Triangle Park, North Carolina 27711, telephone number: (919) 541-5460; facsimile number: (919) 541-3470; email address: moore.bruce@epa.gov. For additional contact information, see the following SUPPLEMENTARY INFORMATION section. SUPPLEMENTARY INFORMATION: I. General Information A. Does this action apply to me? Categories and entities potentially affected by this action include: TABLE 1--Industrial Source Categories Affected by This Action ------------------------------------------------------------------------ Examples of regulated Category NAICS code \1\ entities ------------------------------------------------------------------------ Industry....................... 211111 Crude Petroleum and Natural Gas Extraction. 211112 Natural Gas Liquid Extraction. 221210 Natural Gas Distribution. 486110 Pipeline Distribution of Crude Oil. 486210 Pipeline Transportation of Natural Gas. Federal government............. .............. Not affected. [[Page 74069]] State/local/tribal government.. .............. Not affected. ------------------------------------------------------------------------ \1\ North American Industry Classification System. This table is not intended to be exhaustive, but rather is meant to provide a guide for readers regarding entities likely to be affected by this action. If you have any questions regarding the applicability of this action to a particular entity, consult either the air permitting authority for the entity or your EPA Regional representative as listed in 40 CFR 60.4 or 40 CFR 63.13 (General Provisions). B. What should I consider as I prepare my information/comments to the EPA? Do not submit information containing CBI to the EPA through www.regulations.gov or email. Send or deliver information identified as CBI only to the following address: OAQPS Document Control Officer (C404-02), Office of Air Quality Planning and Standards, U.S. Environmental Protection Agency, Research Triangle Park, North Carolina 27711, Attention: Docket ID No. EPA-HQ-OAR-2015-0747. Clearly mark the part or all of the information that you claim to be CBI. For CBI in a disk or CD-ROM that you mail to the EPA, mark the outside of the disk or CD-ROM as CBI and then identify electronically within the disk or CD-ROM the specific information that is claimed as CBI. In addition to one complete version of the comment that includes information claimed as CBI, a copy of the comment that does not contain the information claimed as CBI must be submitted for inclusion in the public docket. Information so marked will not be disclosed except in accordance with procedures set forth in 40 CFR part 2. II. Background In 2012, the EPA issued a final rule titled ``Oil and Natural Gas Sector: New Source Performance Standards and National Emission Standards for Hazardous Air Pollutants Reviews,'' 77 FR 49490 (August 16, 2012). The final rule contains final actions on two different national standards for the oil and natural gas industry promulgated by the EPA under the Clean Air Act (CAA): (1) The new source performance standards (NSPS), promulgated under section 111 of the CAA, and (2) the NESHAP, promulgated under section 112 of the CAA. The NESHAP portion of the final rule (``the 2012 NESHAP revisions'') included the EPA's residual risk and technology review of the NESHAP for the Oil and Natural Gas Production Facilities and the NESHAP for the Natural Gas Transmission and Storage Facilities major source categories (40 CFR part 63 subpart HH \1\ and HHH, respectively) pursuant to sections 112(f)(2) and (d)(6) of the CAA. In addition, pursuant to section 112(d)(2) and (3) of the CAA, the EPA established emission standards for BTEX based on maximum achievable control technology (MACT) for a subcategory of glycol dehydrators referred to as the ``small glycol dehydration units.'' --------------------------------------------------------------------------- \1\ 40 CFR part 63, subpart HH also includes standards for certain area source glycol dehydration units, which were not a subject of the 2012 NESHAP revisions. --------------------------------------------------------------------------- This request is to obtain additional data and information. We are interested in receiving information on HAP emissions from some affected facilities in the oil and natural gas production, and the natural gas transmission and storage segments of the oil and natural gas sector. In particular, the EPA is interested in the following information: 1. HAP emissions from storage vessels without PFE from the oil and natural gas production segment; 2. Emission information on HAP other than BTEX from small glycol dehydrators and available control options. In addition, the EPA recently learned of a potential compliance demonstration issue with respect to the 2012 BTEX MACT standards for small glycol dehydration units as they apply to units with very low BTEX emissions. The EPA is also soliciting comment and information related to this issue. The Agency also requests any additional relevant information for sources covered by the NESHAP. Section III of this action discusses in more detail the information identified above. The EPA is providing a 60-day period for the public to submit the requested information. III. Solicitation of Data and Comments The following presents the issues on which we are particularly interested in receiving feedback, data, and information. A. Storage Vessels Without Potential Flash Emissions We request available data on storage vessels without PFE. Crude oil, condensate, and produced water are typically stored in fixed-roof storage vessels. Some vessels used for storing produced water may be open-top tanks. These fixed-roof vessels, which are operated at or near atmospheric pressure conditions, are typically located in tank batteries at well sites and at centralized gathering facilities. A tank battery refers to the collection of process components used to separate, treat, and store crude oil, condensate, intermediate hydrocarbon liquids, and produced water. The extracted products from production wells enter the tank battery through the production header, which may collect product from many wells. Emissions from storage vessels are a result of working, breathing, and flash losses. Working losses occur due to the emptying and filling of storage vessels. Breathing losses are the release of gas associated with daily temperature fluctuations and other equilibrium effects. Flash losses occur when a liquid with entrained gases is transferred from a vessel with higher pressure to a vessel with lower pressure, and thus, allowing entrained gases or a portion of the liquid to vaporize or flash. In the oil and natural gas production segment, flashing losses occur when crude oil or condensate flows into a storage vessel from a processing vessel operated at a higher pressure. Typically, the larger the pressure drop, the more flash emissions will occur in the storage vessel. Temperature of the liquid may also influence the amount of flash emissions. In 1999, the EPA promulgated the NESHAP for the Oil and Natural Gas Production Facilities major source category (40 CFR part 63, subpart HH). The 1999 NESHAP included the MACT standards for storage vessels with PFE, which are defined in subpart HH, 40 CFR 63.761. The 1999 NESHAP left unregulated storage vessels without PFE (i.e., storage vessels that do not meet the above definition). In the 2011 proposal to revise the Oil and Natural Gas [[Page 74070]] NESHAP,\2\ the EPA proposed MACT standards for storage vessels without PFE pursuant to CAA section 112(d)(2) and (3), but did not take final action on that proposal. As explained in the preamble to the 2012 NESHAP revisions, ``we need (and intend to gather) additional data on these sources in order to analyze and establish MACT emission standards for this subcategory of storage vessels under section 112(d)(2) and (3) of the CAA.'' 77 FR 49503. --------------------------------------------------------------------------- \2\ Proposed Rule, Oil and Natural Gas Sector: New Source Performance Standards and National Emission Standards for Hazardous Air Pollutants Reviews, 76 FR 52738 (August 23, 2011). --------------------------------------------------------------------------- We request available data regarding storage vessels without PFE. In particular, we are interested in data and other relevant information characterizing emissions and emission rates of storage vessels in the oil and natural gas production segment that do not have PFE, but that nonetheless emit HAP. We also request information on technologies and/ or practices for reducing emissions from storage vessels without PFE. B. Studies of HAP Emissions From Small Glycol Dehydrators The EPA is specifically interested in receiving data for units with low inlet concentration of BTEX and the amount of these HAP emissions from small glycol dehydration units. In 2012, pursuant to CAA section 112(d)(2) and (3), the EPA revised 40 CFR part 63, subparts HH and HHH to include MACT standards for ``small glycol dehydration units.'' See 40 CFR 63.761 and 63.1271. The standards for both existing and new sources of small glycol dehydration units are in the form of a unit- specific BTEX emission limit determined by the equations provided in that subpart. The EPA recently learned of a potential compliance demonstration issue for certain small glycol dehydration units with very low BTEX emissions. Specifically, we were informed that for certain small glycol dehydrators that operate with low BTEX inlet concentrations, the equations may result in emission standards that are below the detection limit for the reference method used for compliance purposes. If there are units that fit this criterion, it is theoretically possible that neither the source nor the EPA could verify compliance using the methods specified in the rule. To enable us to fully evaluate this issue, we are requesting source data that demonstrates whether compliance with the standard can be verified at small glycol dehydration units for which this is a potential issue. We request that commenters submit estimates on the number of units where this is a potential problem and the data showing the HAP inlet concentrations for these units.\3\ --------------------------------------------------------------------------- \3\ The EPA is not requesting information that would identify the units. Rather, we are requesting information demonstrating that for an affected facility, the applicable standard would be below the detection limit of the EPA method used to show compliance. --------------------------------------------------------------------------- We are also requesting information on emissions of HAP other than BTEX from small glycol dehydrators. As explained above, in the 2012 NESHAP revisions, the EPA established MACT standards for BTEX emitted from small glycol dehydration units. While our data indicate that there is potential for other HAP to be emitted from small glycol dehydration units, we do not have sufficient information to establish MACT standards for other HAP emitted from these units. We are, therefore, requesting data that show the types and quantities of HAP emissions other than BTEX from small glycol dehydration units. In addition to non-BTEX HAP emissions data, we are requesting information on methods employed to control these non-BTEX HAP, including whether BTEX control measures are an effective method for other non-BTEX HAP emitted by the units. Dated: November 3, 2015. Janet G. McCabe, Acting Assistant Administrator, Office of Air and Radiation. [FR Doc. 2015-30103 Filed 11-25-15; 8:45 am] BILLING CODE 6560-50-P
![74068 Federal Register / Vol. 80, No. 228 / Friday, November 27, 2015 / Proposed Rules
is not placed on the Internet and will be the Oil and Natural Gas Production Docket. All documents in the docket
publicly available only in hard copy Facilities and the Natural Gas are listed in the http://
form. Publicly available docket Transmission and Storage Facilities www.regulations.gov index. Although
materials are available in major source categories. This action listed in the index, some information is
www.regulations.gov or may be viewed requests additional data and not publicly available, e.g., CBI or other
during normal business hours at the Air information that was not available at information whose disclosure is
Protection Division, U.S. Environmental that time. In particular, we are restricted by statute. Certain other
Protection Agency, Region III, 1650 requesting data on storage vessels material, such as copyrighted material,
Arch Street, Philadelphia, Pennsylvania without potential flash emissions (PFE) will be publicly available only in hard
19103. Copies of the State submittal are and data on HAP emissions from copy. Publicly available docket
available at the Virginia Department of regulated small glycol dehydrators. materials are available either
Environmental Quality, 629 East Main With regard to the small glycol electronically at http://
Street, Richmond, Virginia 23219. dehydrators we are particularly www.regulations.gov or in hard copy at
FOR FURTHER INFORMATION CONTACT: interested in data regarding any the U.S. Environmental Protection
Irene Shandruk, (215) 814–2166, or by emissions of HAP other than benzene, Agency, EPA Docket Center, EPA WJC
email at shandruk.irene@epa.gov. toluene, ethylbenzene, and xylene West Building, Room 3334, 1301
SUPPLEMENTARY INFORMATION: For (BTEX), information on available Constitution Ave. NW., Washington,
further information, please see the control options for any such HAP and DC. The Public Reading Room is open
information provided in the direct final information regarding a potential from 8:30 a.m. to 4:30 p.m., Monday
action, with the same title, that is compliance demonstration issue with through Friday, excluding legal
located in the ‘‘Rules and Regulations’’ respect to the 2012 standards for small holidays. The telephone number for the
section of this Federal Register glycol dehydration units, as they apply Public Reading Room is (202) 566–1744,
publication. to units with very low emissions. and the telephone number for the Air
DATES: Comments must be received on Docket is (202) 566–1742.
Dated: November 12, 2015.
or before January 26, 2016.
Shawn M. Garvin, FOR FURTHER INFORMATION CONTACT: For
ADDRESSES: Submit your comments,
Regional Administrator, Region III. further information about this action,
identified by Docket ID No. EPA–HQ–
[FR Doc. 2015–30105 Filed 11–25–15; 8:45 am] contact Mr. Matthew Witosky, Sector
OAR–2015–0747, to the Federal
BILLING CODE 6560–50–P Policies and Programs Division (E143–
eRulemaking Portal: http://
05), Office of Air Quality Planning and
www.regulations.gov. Follow the online
Standards, Environmental Protection
ENVIRONMENTAL PROTECTION instructions for submitting comments.
Once submitted, comments cannot be Agency, Research Triangle Park, North
AGENCY Carolina 27711, telephone number:
edited or withdrawn. The EPA may
publish any comment received to its (919) 541–2865; facsimile number: (919)
40 CFR Part 63 541–3740; email address:
public docket. Do not submit
[EPA–HQ–OAR–2015–0747; FRL–9937–04– electronically any information you witosky.matthew@epa.gov. For further
OAR]
consider to be Confidential Business information on the EPA’s oil and natural
RIN 2060–AS13 Information (CBI) or other information gas sector regulatory program, contact
whose disclosure is restricted by statute. Mr. Bruce Moore, Sector Policies and
Oil and Natural Gas Sector: National Multimedia submissions (audio, video, Programs Division (E143–05), Office of
Emission Standards for Hazardous Air etc.) must be accompanied by a written Air Quality Planning and Standards,
Pollutants comment. The written comment is Environmental Protection Agency,
considered the official comment and Research Triangle Park, North Carolina
AGENCY: Environmental Protection 27711, telephone number: (919) 541–
Agency (EPA). should include discussion of all points
you wish to make. The EPA will 5460; facsimile number: (919) 541–3470;
ACTION: Request for information. email address: moore.bruce@epa.gov.
generally not consider comments or
SUMMARY: This action requests comment contents located outside of the For additional contact information, see
information related to hazardous air primary submission (i.e., on the web, the following SUPPLEMENTARY
INFORMATION section.
pollutant (HAP) emissions from sources cloud, or other file sharing system). For
in the oil and natural gas production additional submission methods, the full SUPPLEMENTARY INFORMATION:
and natural gas transmission and storage EPA public comment policy,
segments of the oil and natural gas information about CBI or multimedia I. General Information
sector. In 2012, the Environmental submissions, and general guidance on A. Does this action apply to me?
Protection Agency (EPA) revised the making effective comments, please visit
National Emission Standards for http://www2.epa.gov/dockets/ Categories and entities potentially
Hazardous Air Pollutants (NESHAP) for commenting-epa-dockets. affected by this action include:
TABLE 1—INDUSTRIAL SOURCE CATEGORIES AFFECTED BY THIS ACTION
Category NAICS code 1 Examples of regulated entities
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Industry ..................................................... 211111 Crude Petroleum and Natural Gas Extraction.
211112 Natural Gas Liquid Extraction.
221210 Natural Gas Distribution.
486110 Pipeline Distribution of Crude Oil.
486210 Pipeline Transportation of Natural Gas.
Federal government .................................. ........................ Not affected.
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![74070 Federal Register / Vol. 80, No. 228 / Friday, November 27, 2015 / Proposed Rules
NESHAP,2 the EPA proposed MACT pursuant to CAA section 112(d)(2) and problem and the data showing the HAP
standards for storage vessels without (3), the EPA revised 40 CFR part 63, inlet concentrations for these units.3
PFE pursuant to CAA section 112(d)(2) subparts HH and HHH to include MACT We are also requesting information on
and (3), but did not take final action on standards for ‘‘small glycol dehydration emissions of HAP other than BTEX from
that proposal. As explained in the units.’’ See 40 CFR 63.761 and 63.1271. small glycol dehydrators. As explained
preamble to the 2012 NESHAP The standards for both existing and new above, in the 2012 NESHAP revisions,
revisions, ‘‘we need (and intend to sources of small glycol dehydration the EPA established MACT standards
gather) additional data on these sources units are in the form of a unit-specific for BTEX emitted from small glycol
in order to analyze and establish MACT BTEX emission limit determined by the dehydration units. While our data
emission standards for this subcategory equations provided in that subpart. indicate that there is potential for other
of storage vessels under section HAP to be emitted from small glycol
112(d)(2) and (3) of the CAA.’’ 77 FR The EPA recently learned of a dehydration units, we do not have
49503. potential compliance demonstration sufficient information to establish
We request available data regarding issue for certain small glycol MACT standards for other HAP emitted
storage vessels without PFE. In dehydration units with very low BTEX from these units. We are, therefore,
particular, we are interested in data and emissions. Specifically, we were requesting data that show the types and
other relevant information informed that for certain small glycol quantities of HAP emissions other than
characterizing emissions and emission dehydrators that operate with low BTEX BTEX from small glycol dehydration
rates of storage vessels in the oil and inlet concentrations, the equations may units. In addition to non-BTEX HAP
natural gas production segment that do result in emission standards that are emissions data, we are requesting
not have PFE, but that nonetheless emit below the detection limit for the information on methods employed to
HAP. We also request information on reference method used for compliance control these non-BTEX HAP, including
technologies and/or practices for purposes. If there are units that fit this whether BTEX control measures are an
reducing emissions from storage vessels criterion, it is theoretically possible that effective method for other non-BTEX
without PFE. neither the source nor the EPA could HAP emitted by the units.
B. Studies of HAP Emissions From verify compliance using the methods Dated: November 3, 2015.
Small Glycol Dehydrators specified in the rule. To enable us to Janet G. McCabe,
fully evaluate this issue, we are Acting Assistant Administrator, Office of Air
The EPA is specifically interested in requesting source data that and Radiation.
receiving data for units with low inlet demonstrates whether compliance with [FR Doc. 2015–30103 Filed 11–25–15; 8:45 am]
concentration of BTEX and the amount the standard can be verified at small BILLING CODE 6560–50–P
of these HAP emissions from small glycol dehydration units for which this
glycol dehydration units. In 2012,
is a potential issue. We request that 3 The EPA is not requesting information that
2 Proposed Rule, Oil and Natural Gas Sector: New
commenters submit estimates on the would identify the units. Rather, we are requesting
number of units where this is a potential information demonstrating that for an affected
Source Performance Standards and National facility, the applicable standard would be below the
Emission Standards for Hazardous Air Pollutants detection limit of the EPA method used to show
Reviews, 76 FR 52738 (August 23, 2011).
compliance.
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Document Created: 2015-12-14 14:05:32
Document Modified: 2015-12-14 14:05:32
| Category | Regulatory Information | |
| Collection | Federal Register | |
| sudoc Class | AE 2.7: GS 4.107: AE 2.106: | |
| Publisher | Office of the Federal Register, National Archives and Records Administration | |
| Section | Proposed Rules | |
| Action | Request for information. | |
| Dates | Comments must be received on or before January 26, 2016. | |
| Contact | For further information about this action, contact Mr. Matthew Witosky, Sector Policies and Programs Division (E143-05), Office of Air Quality Planning and Standards, Environmental Protection Agency, Research Triangle Park, North Carolina 27711, telephone number: (919) 541-2865; facsimile number: (919) 541- | |
| FR Citation | 80 FR 74068 | |
| RIN Number | 2060-AS13 |
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