Agency Information Collection Activities: Proposed Collection; Comment Request; Electric Utility Steam Generating Unit Mercury Emissions Collection Effort

ENVIRONMENTAL PROTECTION AGENCY

[AD-FRL-5993-7]

Agency Information Collection Activities: Proposed Collection;

Comment Request; Electric Utility Steam Generating Unit Mercury

Emissions Collection Effort

AGENCY: Environmental Protection Agency (EPA).

ACTION: Notice.

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SUMMARY: In compliance with the Paperwork Reduction Act (44 U.S.C. 3501

et seq.), this document announces that EPA is planning to submit the

following proposed Information Collection Request (ICR) to the Office

of Management and Budget (OMB): Electric Utility Steam Generating Unit

Mercury Emissions Information Collection Effort Information Collection

Request; EPA ICR No. 1858.01. Before submitting the ICR to OMB for

review and approval, EPA is soliciting comments on specific aspects of

the proposed information collection as described below.

DATES: Comments must be submitted on of before June 8, 1998.

ADDRESSES:Comments. Comments should be submitted (in duplicate, if

possible) to: U.S. Environmental Protection Agency, Air and Radiation

Docket and Information Center (6102), Attention Docket No. A-92-55,

Room M-1500, 401 M Street, S.W., Washington, D.C. 20460. The EPA

requests that a separate copy also be sent to Mr. William Maxwell,

Combustion Group (MD-13), U.S. Environmental Protection Agency,

Research Triangle Park, North Carolina 27711.

Copies of ICR

The draft ICR and other relevant materials, including the draft

supporting statement, are available from the docket at the above

address in Room M-1500, Waterside Mall (ground floor), phone number

(202) 260-7548. A reasonable fee may be charged for copying. The docket

is open for public inspection and copying between 8:00 a.m. and 4:00

p.m., Monday through Friday, except for Federal holidays. Copies of the

draft ICR may also be obtained free of charge from the EPA's website

listing Federal Register Notices at ``http://www.epa.gov/ttn/oarpg/

t3pfpr.html'' or by contacting one of the people listed below.

Public Meeting

The EPA plans to hold a public meeting in Washington, D.C., at

which time interested parties can provide comment on this ICR. A

document will be published in the near future in the Federal Register

announcing the date, time, and location of this meeting.

FOR FURTHER INFORMATION CONTACT: For information concerning specific

aspects of this ICR, contact Mr. William Maxwell [telephone number

(919) 541-5430; facsimile number (919) 541-5450; e-mail

``[email protected]''], Combustion Group, Emission Standards

Division (MD-13); or Mr. William Grimley [telephone number (919) 541-

1065; facsimile number (919) 541-1039; e-mail

``[email protected]''], Emission Measurement Center,

[[Page 17407]]

Emission Monitoring and Analysis Division (MD-19), U.S. Environmental

Protection Agency, Research Triangle Park, North Carolina 27711.

SUPPLEMENTARY INFORMATION:

Affected entities: Entities potentially affected by this action are

owners and operators of coal-fired electric utility steam generating

units as defined by section 112(a)(8) of the Clean Air Act, as amended

(the Act).

Title: Electric Utility Steam Generating Unit Mercury Emissions

Information Collection Effort Information Collection Request; EPA ICR

No. 1858.01.

Abstract: Section 112(n)(1)(A) of the Act requires EPA to perform a

study of the hazards to public health reasonably anticipated to occur

as a result of emissions by electric utility steam generating units of

hazardous air pollutants (HAPs) after imposition of the requirements of

the Act and to prepare a Report to Congress containing the results of

the study. The Agency is to proceed with rulemaking activities under

section 112 to control HAP emissions from utilities if EPA finds such

regulation is appropriate and necessary after considering the results

of the study. The study has been completed and the Final Report to

Congress was issued on February 24, 1998.

In the Final Report to Congress, the EPA stated that mercury is the

HAP emission of greatest potential concern from coal-fired utilities

and that additional research and monitoring are merited. The EPA also

listed a number of research needs related to such mercury emissions.

These include obtaining additional data on the mercury content of

various types of coal as burned in electric utility steam generating

units and additional data on mercury emissions to the atmosphere (e.g.,

how much is emitted from various types of units; how much is divalent

vs. elemental mercury; and how do factors such as control device, fuel

type, and plant configuration affect emissions and speciation).

As indicated above, section 112(n)(1)(A) of the Act requires the

Administrator to regulate electric utility steam generating units under

section 112 if the Administrator finds that such regulation is

appropriate and necessary after ``considering the results of the

study'' noted above. The Administrator interprets the quoted language

as indicating that the results of the study are to play a principle,

but not exclusive, role in informing the Administrator's decision as to

whether it is appropriate and necessary to regulate electric utility

steam generating units under section 112. The Administrator believes

that in addition to considering the results of the study, she may

consider any other available information in making her decision. The

Administrator also believes that she is authorized to collect and

evaluate any additional information which may be necessary to make an

informed decision.

After carefully considering the Final Report to Congress, the

Administrator has concluded that obtaining additional information under

the authority of section 114 of the Act prior to making the required

determination is appropriate. In the Final Report to Congress, the EPA

stated that at this time, the available information, on balance,

indicates that utility mercury emissions are of sufficient potential

concern for public health to merit further research and monitoring. The

EPA acknowledged that there are substantial uncertainties that make it

difficult to quantify the magnitude of the risks due to utility mercury

emissions, and that further research and/or evaluation would be needed

to reduce those uncertainties. The EPA believes that among those

uncertainties are: (i) the actual cumulative amount of mercury being

emitted by all electric utility steam generating units on an annual

basis; (ii) the speciation of the mercury which is being emitted; and,

(iii) the effectiveness of various control technologies in reducing the

volume of each form of mercury which is emitted.

To address the question of the cumulative amount of mercury

potentially being emitted by all electric utility steam generating

units on an annual basis, the EPA believes that it is necessary to

require the owners/operators of all such units to provide information

on the mercury content of the coal burned in each unit as well as the

volume of coal burned in each unit. Thus, the ICR includes a

requirement for the owners/operators of all coal-fired electric utility

steam generating units with a capacity greater than 25 megawatts

electric (MWe) to periodically measure the mercury content of the coal

which they burn on a weekly basis and report the results together with

the corresponding volume of coal burned in each unit.

In preparing the Final Report to Congress, the Agency had available

mercury emission data from a number of utility boilers. These data

included measurements of the mercury emitted during various stages of

the process (e.g., exiting the boiler, exiting the various control

devices). Research conducted during the period between acquisition of

these data and release of the report has highlighted the importance of

the specific valence state of the emitted mercury on the ability of a

particular control device to remove mercury from the exhaust gas

stream. In addition, advances have been made in emission testing

methodologies that more accurately differentiate among the various

species of mercury that may be emitted from an electric utility steam

generating unit. Thus, the ICR also includes provisions for acquiring

additional speciated mercury data on both controlled and uncontrolled

air emissions so that the relationship between mercury content and

other characteristics of the coal, the species of mercury formed in the

boiler, and the mercury removal performance of various control devices

may be further evaluated.

Although the actual variables that affect mercury speciation are

still being determined in ongoing research efforts, two variables that

appear to have an effect are coal characteristics and scrubber type.

For purposes of grouping the coal-fired units (boilers) into

categories, these two variables were used so that a more representative

sample of coal-fired units can be selected for testing. Coal

characteristics are related to the coal type, which is defined as

either bituminous (including anthracite for this ICR), subbituminous,

or lignite. Scrubber type is defined as either a dry-scrubber (of any

type/model), wet-scrubber (of any type/model), or no scrubber at all.

ICR Description: To address the issues related to coal

characteristics, this ICR requires that the owner/operator of each

facility at which one or more individual coal-fired unit(s) (boiler(s))

is (are) located (there are approximately 421 nationwide) provide

periodic analyses of all coals fired. This would be accomplished by

obtaining weekly as-fired coal analyses from each distinct coal storage

pile, including silos, etc., in use at the facility, rather than from

each boiler located at the facility. In this way, information will be

provided from which the amount of mercury entering each of the

approximately 1,017 coal-fired boilers (nationwide) may be estimated at

a minimum burden level for any given facility. It would also be

necessary to measure and record the amount of coal burned in each week

and identify the source of the coal (e.g., State, seam, etc.). Each

coal sample would be analyzed using one of several standardized

analytical methods for mercury, chlorine, and other specified items.

These analyses would be obtained either by direct sampling and analysis

by each owner/operator or by submission of suitable analyses

[[Page 17408]]

provided by the coal supplier. Analyses performed by the coal supplier

would not be considered suitable if the coal would subsequently be

cleaned at the facility where the electric utility steam generating

unit(s) is (are) located. The Agency will ultimately apply appropriate

correction factors to these data to derive a reasonable estimate of the

total amount of mercury emitted by each coal-fired electric utility

steam generating unit on an annual basis. To better evaluate whether

mercury emissions from coal-fired electric utility steam generating

units vary over time and to provide information to the public on

mercury emissions over time, the Agency is considering requiring coal

sampling and emissions reporting to be conducted for a number of years.

To address the issues related to scrubber type, this ICR also

requires that quarterly, triplicate simultaneous before/after control

device stack sampling be performed by a subset of boilers using a

specified mercury speciation method. During the stack testing, a

statistically appropriate number of coal samples would be required to

be collected for analysis. When dealing with a large population

(approximately 1,017 individual boilers) of this nature with

consideration being made for the cost of the data collection effort

(which involves sampling the fewest number of units possible without

compromising the integrity of the data being collected), a

statistically representative sample is considered to be 30. These

samples can be selected in one of two ways: equally among the viable

categories or proportional allocation of sample to stratified

population (units within each category). The universe of boilers was

divided into nine scrubber type/coal characteristic categories. One

possible category had no members, leaving eight viable categories. A

proportional allocation methodology was selected, with provisions being

made for having at least two members selected from each category

(assessing one sample would provide no basis for comparison).

A random selection process will be used to determine what units are

required to participate in this testing program. If possible, once a

unit from a particular site (facility) has been selected, no other

unit(s) at that site will be chosen for that particular category (i.e.,

some facilities have units with different scrubber types or that burn

coal from different sources). This will provide the Agency with more

information from a larger number of facilities. Appropriate quality

assurance/quality control (QA/QC) procedures would be required for each

part of the ICR.

Burden Statement: Burden means the total time, effort, or financial

resources expended by persons to generate, maintain, retain, or

disclose or provide information to or for a Federal agency. This

includes the time needed to review instructions; develop, acquire,

install, and utilize technology and systems for the purposes of

collecting, validating, and verifying information, processing and

maintaining information, and disclosing and providing information;

adjust the existing ways to comply with any previously applicable

instructions and requirements; train personnel to be able to respond to

a collection of information; search data sources; complete and review

the collection of information; and transmit or otherwise disclose the

information.

The total annual reporting and recordkeeping burden for this ICR is

estimated to be 40,516 hours and $14,659,264. This is the estimated

burden for 421 facilities to provide coal analyses (assuming no more

than two coal storage piles per facility) and 30 units to provide

speciated mercury emission data. The average annual base reporting and

recordkeeping burden and cost for this information collection for

facilities having units subject only to the first component of the

mercury emissions data gathering effort is 37 hours and $22,925. The

average annual per electric utility steam generating unit base

reporting and recordkeeping burden and cost for this information

collection for units subject to the second component of the mercury

emissions data gathering effort is 174 hours and $166,928. This ICR

does not include any requirements that would cause the respondents to

incur either capital and start-up costs or operation and maintenance

costs. The EPA has assumed that all respondents will contract (i.e.,

purchase services) for the weekly coal analyses and for the quarterly

stack testing. These costs are $8,804,800 for the coal analyses and

$4,800,000 for the stack testing.

Request for Comments

The EPA solicits comments on the following aspects of the ICR

itself.

1. Will the information that the Agency proposes to collect have

practical utility in informing the Administrator's decision on whether

it is appropriate and necessary to regulate HAP emissions from electric

utility steam generating units under section 112 of the Act?

2. Is the Agency's estimate of the burden of the proposed

collection of information, including the validity of the methodology

and assumptions used, accurate?

3. Are there ways to enhance the quality, utility, and clarity of

the information to be collected?

4. How can the Agency best minimize the burden of the collection of

information on those who are to respond? Through the use of appropriate

automated electronic, mechanical, or other technological collection

techniques or other forms of information technology (e.g., permitting

electronic submission of responses)?

The Agency also solicits comment on the following specific

technical issues.

1. What is the exact amount, representativeness, and sufficiency of

information on the mercury content of as-fired coal that already

exists?

2. To what extent are analyses of mercury in as-fired coal

currently being performed?

3. Do coal analyses performed on cleaned coal by coal suppliers

accurately represent as-fired coal to the same degree as analyses of

actual on-site samples?

4. What factors could increase or decrease the number of individual

samples needed to identify with reasonable certainty an average annual

mercury in coal value for a particular unit?

5. What is the minimum number of individual samples required for a

particular unit to identify with reasonable certainty an average annual

mercury in coal value?

6. Would a statistical sampling approach provide comprehensive data

on the mercury content of the total volume of as-fired coal burned in

electric utility steam generating units comparable in quality and

reliability to that obtained by requiring the sampling of all such

coals?

7. Could a particular facility be placed at a competitive

disadvantage due to a disproportionate cost burden in either the coal

or stack testing?

8. What is the specific amount, representativeness, and sufficiency

of information on the speciation of mercury in stack gases that already

exists or is currently being collected?

9. What difficulties in sampling at those sources selected for

stack testing might occur due to unusual operating or physical

characteristics?

10. Would requiring coal sampling and analyses for more than one

year provide information that would be valuable to the public, as well

as allow the Agency to better evaluate whether the characteristics of

the as-fired coal burned in electric utility steam generating units

vary over time and the impact of any such variation on mercury

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emissions? The Agency seeks comment also on how best to design a

mercury monitoring protocol beyond the first year.

Finally, the Agency requests comment on the following four general

questions.

1. Are there other approaches to obtaining the desired information

that the Agency could take which would provide data of comparable, or

better, quality at a reduced burden?

2. Will the information which the Agency proposes to collect

provide the Administrator with all of the information on the quantity

and speciation of mercury emissions from electric utility steam

generating units needed to determine whether it is appropriate and

necessary to regulate HAP emissions from electric utility steam

generating units under section 112 of the Act and to develop

appropriate regulations if the Administrator determines that such

regulation is appropriate and necessary?

3. Does the population of electric utility steam generating units

from which the Agency proposes to obtain information (i.e.,

approximately 1,017 coal-fired boilers at approximately 421 facilities)

adequately reflect the true population that meets the section 112(a)(8)

definition (i.e., a population that may include publicly-owned utility

companies, rural electric cooperatives, investor-owned utility

generating companies, and non-utility generators)?

4. Is there any other information which the Agency should obtain to

inform the Administrator's decision of whether it is appropriate and

necessary to regulate HAP emissions from electric utility steam

generating units under section 112 of the Act?

An agency may not conduct or sponsor, and a person is not required

to respond to, a collection of information that is sent to ten or more

persons unless it displays a currently valid OMB control number. The

OMB control numbers for EPA's approved information collection requests

are listed in 40 CFR part 9 and 48 CFR Chapter 15. This notice is the

first step in obtaining approval for the ICR described above.

Dated: April 3, 1998.

Richard D. Wilson,

Acting Assistant Administrator, Office of Air and Radiation.

[FR Doc. 98-9390 Filed 4-8-98; 8:45 am]

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