1 1 NMPA Rule Update 6/2/14 Rule Overview Regulation No.3, 6 and 7 June 3, 2014 Colorado Department of Public Health and Environment Air Pollution Control Division
2 2 NMPA Rule Update 6/2/14 Resources Send comments to: More information: Air Emissions Requirements for Oil and Gas Industry Rule Summary NSPS OOOO Reporting Form Frequently Asked Questions (FAQ document) Regulation No. 3 PS Memo
5 5 NMPA Rule Update 6/2/14 Regulation No. 3 Catch-all Provisions REMOVED Part A, Section II.D.1. and Part B, Sections II.A.5. and II.D. Sources are no longer required to submit an APEN or obtain a permit due solely to applicability to federal NSPS or MACT rules! Sources may utilize other APEN or permit exemptions to aid in determination of requirements, including the 1/2 tpy APEN and 2/5 tpy permit thresholds Permits currently issued remain in force; Sources may elect to request cancellation of their permits
6 6 NMPA Rule Update 6/2/14 Regulation No. 3 Non-criteria Reportable Pollutant Threshold REVISED Part A, Appendix A NCRPs are now reportable at a flat 250 lb/year threshold, regardless of Bin or Scenarios Requirements! Revised APENs with newly reported NCRPs are due by April 30, 2015! Revised APENs with removal of NCRPs are due at the next renewal! NCRP emissions below 250 lb/year will not be used in calculating annual fees for the 2015 billing cycle (which encompasses the 2014 inventory year)
7 7 NMPA Rule Update 6/2/14 Regulation No. 3 Crude Oil Tank Permit Exemption REPEALED Part B, Section II.D.1.n. and Part C, Section II.E.3.ddd. Crude oil tanks are no longer categorically exempt from permitting! Sources may utilize other permit exemptions to aid in determination of requirements, including the 2/5 tpy thresholds Statewide Crude Oil Emission Factors! Sources may use the statewide emission factors or develop site specific emission factors for comparison to the APEN/permit thresholds VOC (lb/bbl) Benzene (lb/bbl) n-hexane (lb/bbl)
8 8 NMPA Rule Update 6/2/14 NSPS OOOO ADOPTED
9 9 NMPA Rule Update 6/2/14 Regulation No. 6 NSPS OOOO ADOPTED Part A, Subpart OOOO Colorado has full authority for all aspects of NSPS OOOO. Reporting and notifications! 2-day well completion notifications should go to COGCC; not required to send also to EPA address! Annual reports should be submitted to: Form for NSPS OOOO reporting: Air Emissions Requirements for Oil and Gas Industry >> Annual Compliance Report NSPS OOOO
10 10 NMPA Rule Update Section XVII REVISED Section XVIII REVISED 6/2/14
13 13 NMPA Rule Update 6/2/14 Resources Send comments to: Next Steps: Well unloading meeting with industry and Division Ongoing meetings with COGA, CPA, other industry groups More information: Air Emissions Requirements for Oil and Gas Industry
14 Revisions to Colorado Air Quality Control Commission s Regulation Numbers 3, 6, and 7 Fact Sheet Rulemaking Summary: On February 23, 2014, Colorado s Air Quality Control Commission ( Commission ) fully adopted EPA s Standards of Performance for Crude Oil and Natural Gas Production, Transmission, and Distribution found in 40 C.F.R. Part 60, Subpart OOOO ( NSPS OOOO ) into Regulation Number 6, Part A; adopted corresponding revisions to its emissions reporting and permitting framework in Regulation Number 3, Parts A, B, and C; and adopted complementary oil and gas control measures in Regulation Number 7. This rulemaking was the culmination of the Commission s October 2012, directive to consider full adoption of EPA s NSPS OOOO. These oil and gas control measures revisions focus on identifying and repairing leaks in the oil and gas sector, but also contain some recordkeeping and reporting requirements. This rulemaking received support from environmental groups and some companies within the oil and gas industry. In addition to extensive VOC reductions, the Regulation Number 7 revisions also regulate methane emissions from the oil and gas industry. These oil and gas control measures are estimated to reduce VOC emissions by approximately 93,500 tons per year and methane/ethane emissions by approximately 65,000 tons per year, at a cost of approximately $42.5 million per year. Discussion of Revisions: Regulation Number 3 The revisions remove the so-called catchall provisions from Part A., Section II.D.1., and Part B, Sections II.A.5. and II.D. Sources subject to a federal New Source Performance Standard ( NSPS ) or National Emission Standard for Hazardous Air Pollutants ( NESHAP ) incorporated into Regulation Numbers 6 or 8 are no longer subject to reporting and permitting solely due to being subject to that NSPS or NESHAP. These sources now only trigger reporting and permitting if the source s emissions exceed the reporting and permitting thresholds. The revisions set a 250 lb/year reporting threshold for non-criteria reportable pollutants, replacing the complex matrix in Part A, Appendix A. The revisions remove the crude oil storage tank permitting exemptions in Part B, Section II.D.1.n., and Part C, Section II.E.3.ddd., and correct an error in the crude oil truck loading equipment permitting exemption in Part B, Section II.D.1.l. Regulation Number 6, Part A The revisions fully adopt NSPS OOOO. Regulation Number 7, Sections II., XVII., and XVIII. Revisions regulate hydrocarbon emissions from oil and gas on a state-only, state-wide basis. General Provisions (Section XVII.B.) The revisions expand the requirement to use good air pollution control practices to minimize hydrocarbon emissions from hydrocarbon liquid collection, storage, processing, and handling. The revisions expand the requirement to use auto-igniters. Combustion devices installed on or after May 1, 2014, must utilize an auto-igniter upon installation. Combustion devices installed before May 1, 2014, must utilize auto-igniters beginning May 1, March 5,
15 Revisions to Colorado Air Quality Control Commission s Regulation Numbers 3, 6, and 7 Fact Sheet Beginning January 1, 2015, the revisions require that open-ended valves or lines be sealed or become subject to leak detection and repair ( LDAR ) requirements, centrifugal compressors reduce hydrocarbon emissions by 95%, and reciprocating compressors at natural gas compressor stations replace rod packing every 26,000 hours of operation or every 36 months. The revisions also require storage tanks to comply with both applicable federal control requirements (NSPS OOOO) and Regulation Number 7, Section XVII. The revisions similarly require glycol natural gas dehydrators and internal combustion engines to comply with both applicable federal control requirements and Regulation Number 7, Section XVII.F. leak detection and repair requirements. Storage Tanks (Section XVII.C.) ons per year ( tpy ) to control hydrocarbon emissions by 95% (and if using a combustion device, the device must be designed to achieve 98% control). The revisions require all storage tanks, except temporary frac tanks, utilized during the first 90 days of production to control emissions by 95% (and similarly meet a 98% design control efficiency) unless projected emissions during those 90 days are < 1.5 tons. o The revisions require controlled tanks to conduct audio, visual and olfactory ( AVO ) and additional visual inspections at the frequency of liquids loadout (not more than every 7 days, and at least every 31 days). o The revisions require controlled tanks to operate without venting during normal operation. The revisions require storage tanks subject to system-wide controls in Section XII.D.2., and storage tanks with VOC to develop and employ Storage Tank Emission Management ( STEM ) plans to meet the operate without venting standard, which includes Approved Instrument Monitoring Method ( AIMM ) inspections. Storage tanks constructed on or after May 1, 2014, must comply with STEM and implement AIMM inspections within 90 days after the storage tank commences operation, or within 30 days of the phase-in schedule for facilities subject to monthly AIMM, and thereafter in accordance with Table 1. Storage tanks constructed before May 1, 2014, must comply with STEM by May 1, 2015, and implement AIMM inspections within 90 days of the phase-in schedule in Table 1. Table 1 Storage Tank Inspections Threshold: Storage Tank Approved Instrument Phase-In Schedule Uncontrolled Actual VOC Emissions (tpy) Monitoring Method Inspection Frequency > 6 and < 12 Annually January 1, 2016 > 12 and < 50 Quarterly July 1, 2015 > 50 Monthly January 1, 2015 The revisions do not require AVO/visual inspections or AIMM inspections where it is unsafe, difficult, or inaccessible to monitor. The revisions require STEM records be made available to the Division upon request. The revisions also require monitoring records be kept for 2 years and also be made available to the Division. The revisions do not require storage tank reporting. March 5,
16 Revisions to Colorado Air Quality Control Commission s Regulation Numbers 3, 6, and 7 Fact Sheet Glycol Natural Gas Dehydrators (Section XVII.D.) The revisions require glycol natural gas dehydrators constructed on or after May 1, 2015, with uncontrolled actual VOC emissions greater than 2 tpy, to control emissions by 95% (and if using combustion device, the device must be designed to achieve 98% control). The revisions require glycol natural gas dehydrators constructed before May 1, 2015, with VOC emissions greater than 6 tpy, or 2 tpy if located within 1,320 feet of a building unit or designated outside activity area, to control by 95% (and similarly meet a 98% design control efficiency). LDAR (Section XVII.F.) The revisions require owners/operators to inspect components at natural gas compressor stations and well production facilities for leaks. o Natural gas compressor stations must be inspected beginning January 1, The frequency of inspections is based on fugitive VOC emissions, calculated using Table 2-4 of the 1995 EPA Protocol for Equipment Leak Emission Estimates, as provided in Table 3. Table 3 Natural Gas Compressor Station Component Inspections Fugitive VOC Emissions (tpy) Inspection Frequency > 0 and < 12 Annually > 12 and < 50 Quarterly > 50 Monthly o Well production facilities constructed on or after October 15, 2014, must be inspected days after the facility commences operation, and thereafter in accordance with Table 4. Well production facilities constructed before October 15, 2014, must be inspected within 90 days of the phase-in schedule in Table 4, or within 30 days of the phase-in schedule for facilities subject to monthly AIMM, and also thereafter in accordance with the frequencies in Table 4. The frequency of inspections is based on the uncontrolled actual VOC emissions from the highest emitting storage tank, or the total controlled actual VOC emissions from all permanent equipment and components for well production facilities without oil or condensate storage tanks. Table 4 Well Production Facility Component Inspections Thresholds (per XVII.F.4.c.) Well production AVO facilities with Inspection storage tanks (tpy) Frequency Well production facilities without storage tanks (tpy) Approved Instrument Monitoring Method Inspection Frequency Phase-In Schedule > 0 and < 6 > 0 and < 6 One time Monthly January 1, 2016 > 6 and < 12 > 6 and < 12 Annually Monthly January 1, 2016 > 12 and < 20 > 12 and < 50 Quarterly Monthly January 1, 2015 > 20 > 50 Monthly January 1, 2015 o The revisions do not require AVO or AIMM inspections for components that are unsafe, difficult, or inaccessible to monitor. March 5,
17 Revisions to Colorado Air Quality Control Commission s Regulation Numbers 3, 6, and 7 Fact Sheet The revisions set different thresholds for leaks requiring repair based on the method used to detect the leak. The leak thresholds do not apply to leaks associated with normal equipment operation, such as pneumatic device actuation and crank case ventilation. The leak threshold for leaks detected with an IR camera or AVO is any detectable emission. The leak thresholds for leaks detected with EPA Reference Method 21 are: o > 2,000 ppm hydrocarbons for compressor stations constructed before May 1, 2014; o > 500 ppm for well production facilities constructed before May 1, 2014; and o > 500 ppm for compressor stations and well production facilities constructed on or after May 1, o Leaks detected using AIMM or AVO may be remonitored with EPA Method 21 prior to repair for comparison to the leak thresholds specified for EPA Method 21 monitoring. The revisions require a first attempt to repair within 5 days, unless parts are unavailable, shutdown is required, or for other good cause, and remonitoring within 15 days of repair. The revisions require LDAR records be kept for 2 years, and made available to the Division. The revisions require an annual LDAR report be submitted to the Division by every May 31. Well Operation Beginning August 1, 2014, the revisions require gas from newly constructed, hydraulically fractured, or recompleted wells be routed to a gas gathering line or controlled by 95% (and if using combustion device, the device must be designed to achieve 98% control). Well Maintenance and Liquids Unloading Beginning May 1, 2014, the revisions require best management practices to minimize hydrocarbon emissions and the need for well venting during well maintenance and liquids unloading. The revisions also require records be kept for 2 years, and made available to the Division upon request. Pneumatic Controllers The revisions expand the low-bleed pneumatic controller requirement statewide, beginning May 1, The revisions also require no-bleed pneumatic controllers where on-site electrical grid power is used and the no-bleed pneumatic controller is technically and economically feasible. For More Information: Revisions to Regulation Number 3 (5 CCR ), Regulation Number 6 (5 CCR ) and Regulation Number 7 (5 CCR ) will become effective on upon publication by Colorado s Secretary of State, and will be posted at: https://www.sos.state.co.us/ccr/welcome.do Unofficial regulatory text and related documents associated with the rulemaking hearing may be found at: Implementation tools, guidance and other compliance assistance tools are currently being developed and will be posted on the Division s website at: Finally, please submit questions or comments to: March 5,
18 Colorado Venting and Flaring; Reg. 7 AKA the Oil and Gas or Methane Rule June 6th, 2014
47 Company Profile A pioneer in groundbreaking scientific and engineering developments since 1969, TRC is a national engineering, consulting and construction management firm that provides integrated services to three primary markets: Energy Environmental Infrastructure Expert problem solvers 100+ U.S. offices London office 3,000+ employees NYSE: TRR 30
48 Matthew J. Hazleton Denver Air Quality Manager P: E: TRC Companies, Inc. All rights reserved. No part of this document may be copied or reproduced or stored in any form of retrieval system, or transmitted in any form or by any electronic, mechanical, photographic, or other means without the prior written permission of TRC Companies, Inc. ( TRC ). TRC does not authorize copying of this document or the information contained herein. The unauthorized reproduction or distribution of this copyrighted work is illegal. Copyright infringement, including infringement without monetary gain, is subject to civil and criminal liability. The information and material in this presentation is for informational purposes only and is not intended to be construed or used as any general technical advice. Please contact the author if you have questions regarding this information and material. The author has made a good faith effort to present the material accurately. However, no one should rely on the information or material presented here, and each reader or recipient of this presentation should seek the advice of a professional engineer.
49 6/5/2014 New Mexico Environment Department Air Quality Bureau Permitting Program Ted Schooley Permit Programs Manager (505) Production Facilities & Tank Batteries Permitting Mechanisms for Limiting Potential To Emit (PTE) below NSPS OOOO thresholds These sources often require an NOI prior to construction. 2 1
50 6/5/2014 Relying on NMAC to limit PTE is not a viable option NMAC Hydrocarbon Storage Facilities As written, NMAC is not practically enforceable by the state or federal government. In order for NMAC to be considered a practically enforceable regulation, the regulation would need to be revised to include appropriate operating, monitoring, recordkeeping and reporting requirements. 3 Relying on NMAC to limit PTE is not a viable option NMAC Notice of Intent (NOI) & Emissions Inventory NMAC does not provide a mechanism to limit the PTE of a facility or storage vessel because NMAC does not establish allowable emission limits and is neither federally or state enforceable. Emission limits and conditions to demonstrate compliance are essential to the practical enforceability of any method of limiting PTE. 4 2
51 6/5/2014 Option 1 GCP-6 Oil & Gas Storage Vessels The GCP-6 is a voluntary permit in the sense that there is no regulatory requirement to obtain a GCP-6. The Air Quality Bureau specifically developed the GCP-6 for the oil and gas industry to limit the PTE of storage vessels below the 6 tpy/storage vessel thresholds established in NSPS OOOO. Facilities may use this GCP by itself or in conjunction with another permit at the facility. 5 Option 2 GCP-4 Combustion Sources & Related Equipment In the GCP-4 application, facilities can request a limit for its storage vessels to a limit below 6 tpy. This wasn t the original intent of the GCP-4, but the GCP-4 establishes an allowable VOC emission limit for storage vessels in the permit application and therefore can limit a facility s PTE to below NSPS OOOO applicability. 6 3
52 6/5/2014 Option 3 Part 72 NMAC Construction Permit If a facility has the time and requires a Part 72 permit anyway, the storage vessel(s) PTE can be limited by a construction permit. This likely does not suit the needs for most O&G production facilities and tank batteries for the following: - Time (up to 120 days) - Expense (application fee typically around $8,000- $10,000 + annual fee) - Complexity 7 Option 4 Part 73 NMAC Process vs. Control Determination A facility may elect to use a closed looped system to capture and reroute VOC to a sales gas pipeline and use the NOI application to obtain a NMED determination that this design is part of the process and not a control device. Doing so has the possibility of reducing storage vessel PTE to below NSPS OOOO applicability thresholds. - If total VOC emissions (including maintenance) are less than 6 tpy - If the Process vs Control determination is approved - If the VRU meets the cover and closed loop system requirements at (b) and (c) 8 4
53 6/5/2014 Typical Application Mistakes Observed by the Department 1) Failure to incorporate a closed loop design 2) Failure to make a proper Process vs. Control analysis. 3) Failure to include SSM emissions in the PTE calculations. 4) Failure to incorporate reasonable down time in calculations. 5) Failure to submit a new application when the closed loop system compressor is removed due to low wellhead pressure or decreases in well production. 9 Questions? Liz Bisbey-Kuehn Minor Source Program Manager Ted Schooley Permit Programs Manager
93 REVISING AQB S AUDIT POLICY Sandra Ely AQB Compliance and Enforcement Section Chief June 3, 2014
94 Audit Policy Purpose of Policy: To encourage regulated entities to voluntarily discover, disclose, correct and prevent violations. Incentives: Provides up to 100% reduction in gravity based penalties if all conditions are met. (Any economic benefit from non compliance will still be assessed.) Provides up to 75% reduction in gravity based penalties if all conditions are met except systematic discovery.
95 Revision Process Current policy does not meet Bureau or industry needs. Established in Began taking comments on the current policy in March. We are still taking comments. Anticipate releasing a draft policy for public comment this summer. Anticipate final policy sometime this fall.
96 General Provisions Considering Applicability: Air Quality Bureau only. Considering Written Notice: Before initiating an audit, written notice will be provided to the Bureau identifying the scope of the audit and the timeframe for conducting the audit. Considering Applicability to Compliance History: Violations discovered during an environmental audit will not be used when evaluating a company s compliance history.
97 Definitions Current: Environmental Audit means a systematic, documented, periodic and objective review by regulated entities of facility operations and practices related to meeting environmental requirements. Input: How does the agency assess periodic? Considering: Remove periodic.
98 Condition 1 : Systematic Discovery Current : The violation was discovered through an environmental audit or a systematic procedure or practice that reflects the regulated entity's due diligence in preventing, detecting, and correcting violations Input: None Considering: No Change
99 Condition 2: Voluntary Discovery Current: The violation was identified voluntarily, and not through a legally mandated monitoring or sampling requirement prescribed by statute, regulation, permit, judicial or administrative order, or consent agreement Input: None Considering: No Change
100 Condition 3: Prompt Disclosure Current: The regulated entity voluntarily and fully discloses a specific violation within ten (10) days after it has discovered that the violation has occurred, or may have occurred, in writing to NMED and all appropriate federal, state and local agencies Input: Provide more time to disclose (21-30 days) Allow audit findings to be finalized before disclosure Specify who to notify within the agency Do other agencies really need to be notified?
101 Condition 3: Prompt Disclosure Considering: Providing more time to disclose (21 calendar days consistent with EPA policy) If violations are discovered through an environmental audit, and the Bureau was notified of the audit before it was initiated, the time frame for submitting findings will start when the audit is finalized. If violations are not discovered through an environmental audit, the time frame for disclosure starts after discovery occurred or may have occurred. We will specify who needs to be notified. No other agencies will need to be notified.
102 Condition 3a: Discovery and Disclosure Current: (The violation was disclosed) prior to (a) the commencement of a federal, state or local agency inspection, investigation or information request; (b) notice of a citizen suit; (c) the filing of a complaint by a third party; or (d) the regulated entity's knowledge that the discovery of the violation by NMED or a third person or entity was imminent Input: None Considering: Separating this condition from the prompt disclosure condition.
103 Condition 4: Prompt Correction and Remediation Current: The regulated entity corrects the violation expeditiously and in no event later than within sixty (60) days, certifies in writing that violations have been corrected, and takes appropriate prompt measures as determined by NMED to remedy any environmental or human harm due to the violation Input: Clarify when the 60 day clock starts 60 day clock should start when agency notified, not when violation discovered. Considering: Clarifying that clock starts when the violation is discovered.
104 Condition 5: Remediation of Imminent and Substantial Endangerment Current: The regulated entity immediately remedies any condition that has created or may create an imminent and substantial endangerment to human health or the environment Input: Clarify what is meant by imminent and substantial endangerment. Considering: We will clarify and provide examples.
105 Condition 6: Prevention of Recurrence Current: The regulated entity implements appropriate measures to prevent a recurrence of the violation, which may include improvements to its environmental auditing or due diligence efforts. The implementation of measures should be completed within a reasonable amount of time given the nature of the violation and type of measure Input: How does the agency expect an audit to impact recurrence of violations? Response: Once a violation is identified, we expect the company to implement strategies to prevent recurrence of that violation.
106 Condition 7: No Repeat Violations Current: The specific violation, by type not location, has not occurred previously within the past three years at the same facility or is not part of a series of federal, state or local violations by the facility's parent organization, which have occurred within the past five years Input: Remove not location from first sentence. Clarify what we mean by type of violation and give examples. How will NMED determine violations by parent organization?
107 Condition 7: No Repeat Violations Considering: Providing more clarity by removing not location and stating what we mean by type of violation. When evaluating violations by the parent organization, we generally just look at air quality violations in NM.
108 Condition 8: Cooperation Current: The regulated entity cooperates and provides such information as is reasonably necessary and required by NMED to determine the applicability of this policy. Cooperation includes, at a minimum, providing all requested documents and access to employees and assistance in any further investigations into the violation and other related compliance problems of the regulated entity; Input: None Considering: No Change
109 Condition 9: Written Agreement Current: Where appropriate, NMED may require that to satisfy any of these conditions, a regulated entity must enter into a written agreement, stipulated final order, administrative consent order or judicial consent decree, particularly where compliance or remedial measures are complex or a lengthy schedule for attaining and maintaining compliance or remediating harm is required Input: None Considering: No Change
110 Condition 10: Excluded Violations Current: The violation is not one which (i) resulted in serious actual harm, or may have presented an imminent and substantial endangerment to human health or the environment, or (ii) violates the specific terms of any judicial or Administrative order, or consent agreement. Input: None Considering: No Change
111 No Criminal Recommendations Current: NMED may not recommend to the Attorney General or USEPA that criminal charges be brought against a regulated entity where NMED determines that Conditions I through 9 in Section D above for reduction of civil penalties are met... Input: Be more definitive on when criminal referrals will be made Condition 1 (Systematic Discovery) should not be required to avoid criminal case referrals Considering: Not applying the policy to criminal activities.
112 Other Input Develop FAQs with examples. Great idea. Do not be more restrictive than federal EPA policy. We are considering being more restrictive by not applying the policy to criminal activity. Incorporate EPA s Interim Approach to Applying the Audit Policy to New Owners. We will consider this.
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