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Proposed Rule2026-04991

Air Plan Approval; Connecticut; Revision to the State Implementation Plan for Inclusion of Consent Order No. 8383-Algonquin Gas Transmission, LLC and Negative Declaration for Rubber Tire Manufacturing Sources

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Published

March 13, 2026

Issuing agencies

Environmental Protection Agency

Abstract

The Environmental Protection Agency (EPA) is proposing to approve a State Implementation Plan (SIP) revision submitted by Connecticut (CT) to address certain Federal requirements for the 2008 and 2015 8-hour ozone National Ambient Air Quality Standard (NAAQS) under the Clean Air Act (CAA). Specifically, the EPA is proposing to approve a source-specific SIP revision for Algonquin Gas Transmission, LLC's compressor station facility, located in Cromwell, CT, to address reasonably available control technology (RACT) determinations for major stationary sources of volatile organic compounds (VOC). These RACT determinations are required because the source is located in the New York-Northern New Jersey-Long Island, NY-NJ-CT 2008 ozone Severe nonattainment area and 2015 ozone serious nonattainment area. The State of Connecticut is also located in the Ozone Transport Region (OTR). Section 172 of the CAA outlines the general nonattainment plan provisions and CAA section 182 requires additional plan requirements for ozone nonattainment areas based on classification status. Additionally, if a state is in the OTR, it is subject to requirements under CAA section 184, which include implementing RACT requirements statewide. The EPA is also proposing to approve a negative declaration for existing rubber tire manufacturing sources statewide. The EPA is proposing to approve the State's submission as a SIP revision pursuant to sections 110, 172, 182, 184 and part D of the CAA and EPA's regulations.

Full Text

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<title>Federal Register, Volume 91 Issue 49 (Friday, March 13, 2026)</title>
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[Federal Register Volume 91, Number 49 (Friday, March 13, 2026)]
[Proposed Rules]
[Pages 12333-12338]
From the Federal Register Online via the Government Publishing Office [<a href="http://www.gpo.gov">www.gpo.gov</a>]
[FR Doc No: 2026-04991]

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ENVIRONMENTAL PROTECTION AGENCY

40 CFR Part 52

[EPA-R01-OAR-2025-0656; FRL-13272-01-R1]

Air Plan Approval; Connecticut; Revision to the State
Implementation Plan for Inclusion of Consent Order No. 8383--Algonquin
Gas Transmission, LLC and Negative Declaration for Rubber Tire
Manufacturing Sources

AGENCY: Environmental Protection Agency (EPA).

ACTION: Proposed rule.

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SUMMARY: The Environmental Protection Agency (EPA) is proposing to
approve a State Implementation Plan (SIP) revision submitted by
Connecticut (CT) to address certain Federal requirements for the 2008
and 2015 8-hour ozone National Ambient Air Quality Standard (NAAQS)
under the Clean Air Act (CAA). Specifically, the EPA is proposing to
approve a source-specific SIP revision for Algonquin Gas Transmission,
LLC's compressor station facility, located in Cromwell, CT, to address
reasonably available control technology (RACT) determinations for major
stationary sources of volatile organic compounds (VOC). These RACT
determinations are required because the source is located in the New
York-Northern New Jersey-Long Island, NY-NJ-CT 2008 ozone Severe
nonattainment area and 2015 ozone serious nonattainment area. The State
of Connecticut is also located in the Ozone Transport Region (OTR).
Section 172 of the CAA outlines the general nonattainment plan
provisions and CAA section 182 requires additional plan requirements
for ozone nonattainment areas based on classification status.
Additionally, if a state is in the OTR, it is subject to requirements
under CAA section 184, which include implementing RACT requirements
statewide. The EPA is also proposing to approve a negative declaration
for existing rubber tire manufacturing sources statewide. The EPA is
proposing to approve the State's submission as a SIP revision pursuant
to sections 110, 172, 182, 184 and part D of the CAA and EPA's
regulations.

[[Page 12334]]

DATES: Written comments must be received on or before April 13, 2026.

ADDRESSES: Submit your comments, identified by Docket ID No. EPA-R01-
OAR-2025-0656 at <a href="https://www.regulations.gov">https://www.regulations.gov</a>, or via email to
<a href="/cdn-cgi/l/email-protection#89e2e6fae0e7a7e4e0eae1ece5ecc9ecf9e8a7eee6ff">[email&#160;protected]</a>. For comments submitted at <a href="http://Regulations.gov">Regulations.gov</a>,
follow the online instructions for submitting comments. Once submitted,
comments cannot be edited or removed from <a href="http://Regulations.gov">Regulations.gov</a>. For either
manner of submission, 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, please contact the person
identified in the For Further Information Contact section. For the full
EPA public comment policy, information about CBI or multimedia
submissions, and general guidance on making effective comments, please
visit <a href="https://www.epa.gov/dockets/commenting-epa-dockets">https://www.epa.gov/dockets/commenting-epa-dockets</a>. Publicly
available docket materials are available at <a href="https://www.regulations.gov">https://www.regulations.gov</a>
or at the U.S. Environmental Protection Agency, EPA Region 1 Regional
Office, Air and Radiation Division, 5 Post Office Square--Suite 100,
Boston, MA. EPA requests that if at all possible, you contact the
contact listed in the FOR FURTHER INFORMATION CONTACT section to
schedule your inspection.

FOR FURTHER INFORMATION CONTACT: Michele Kosin, Physical Scientist, Air
Quality Branch, Air & Radiation Division U.S. Environmental Protection
Agency, EPA Region 1, 5 Post Office Square--Suite 100, (Mail code 5-
MI), Boston, MA 02109-3912, telephone: (617) 918-1175, email:
<a href="/cdn-cgi/l/email-protection#b3d8dcc0dadd9ddedad0dbd6dfd6f3d6c3d29dd4dcc5">[email&#160;protected]</a>.

SUPPLEMENTARY INFORMATION: Throughout this document whenever ``we,''
``us,'' or ``our'' is used, we mean EPA.

Table of Contents

I. Background and Purpose
II. Description and Review of Submittals
A. Order for Algonquin Gas Transmission, LLC.
1. Centrifugal Compressors
2. Fugitive Emission Components
3. Pneumatic Controllers
4. Organic Liquids Storage Vessels
5. Conclusion
B. Negative Declaration for Existing Rubber Tire Manufacturing
Sources
III. Proposed Action
IV. Incorporation by Reference
V. Statutory and Executive Order Reviews

I. Background and Purpose

On December 9, 2024, the Connecticut Department of Energy and
Environmental Protection (CT DEEP) issued Consent Order No. 8383 to
Algonquin Gas Transmission, LLC. Consent Order No. 8383 establishes
emission standards that CT DEEP determined satisfy RACT for VOC
pursuant to Section 22a-174-32(e)(1)(D) of the Regulations of
Connecticut State Agencies (RCSA) for the facility located at 252
Shunpike Road, Cromwell, Middlesex County, CT. On December 10, 2024, CT
DEEP submitted a proposed SIP revision to the EPA to incorporate
Consent Order No. 8383 into the Connecticut SIP. Algonquin Gas
Transmission, LLC maintains and operates the following equipment and
activities at the Cromwell compressor station facility, which are
subject to the requirements of Consent Order No. 8383: two (2)
centrifugal compressors with dry seals, each driven by a 4,700
horsepower (hp) Solar Centaur 40-T4702S gas turbine; one (1)
centrifugal compressor with dry seals, driven by a 15,900 hp Solar Mars
100-16002 gas turbine; one (1) centrifugal compressor with dry seals,
driven by a 7,700 hp Solar Taurus 60-7802 gas turbine; one (1)
centrifugal compressor with dry seals, driven by a 6,130 hp Solar
Centaur 50-6102 gas turbine; fugitive emission components; pneumatic
controllers; and organic liquids storage vessels. Algonquin Gas
Transmission, LLC, transports natural gas throughout New England by way
of a 1,129-mile pipeline and owns and operates the Cromwell compressor
station.\1\
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\1\ Except where otherwise noted, any reference to ``compressor
station'' herein applies to compressor stations in the natural gas
transmission and storage segment, not to upstream/production or
midstream/processing compressor stations.
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The Cromwell compressor station is located in the CT portion of the
New York-Northern New Jersey-Long Island, NY-NJ-CT Severe 2008 ozone
nonattainment area and 2015 serious ozone nonattainment area; is a
major source of nitrogen oxides (NO<INF>X</INF>) and VOC (both ozone
precursors); and operates under the CT DEEP-issued Title V Permit No.
043-0020-TV. Because the facility is located in an ozone nonattainment
area and the OTR, CT DEEP is required under CAA sections 184, and
182(d) and 182(f) in combination, to implement a RACT program for major
stationary sources of NO<INF>X</INF> and VOC, and for sources of VOC
that are covered by a Control Techniques Guideline (CTG) issued by the
EPA. This action is only addressing RACT requirements for VOC. The
state has codified requirements to implement RACT for major sources of
VOC at Section 22a-174-32, and for sources of VOC covered by a CTG
sources at Section 22a-174-20. RACT, as defined by Connecticut's rules,
is ``the lowest emission limitation that a particular stationary source
is capable of meeting by the application of control technology that is
reasonably available considering technological and economic
feasibility.'' \2\
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\2\ RCSA Section 22a-174-1(98).
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In 2014, the Cromwell compressor station became subject to major
source VOC RACT under Section 22a-174-32 of the RCSA because the
potential VOC emissions exceeded the major source threshold at RSCA
Section 22a-174-32 with 61 tons per year (tpy). Under Connecticut's
major source VOC RACT rules, the owner or operator of an affected
source shall submit a VOC RACT compliance plan to CT DEEP for review
and approval. RCSA 22a-174-32 also allows owners or operators to submit
an alternative VOC RACT compliance demonstration in lieu of meeting the
standard requirements of the major source VOC RACT rule. Algonquin
submitted an alternative VOC RACT compliance plan to CT DEEP via
several submittals from 2021-2023. CT DEEP approved Algonquin's
alternative VOC RACT compliance plan through the issuance of Consent
Order No. 8383, which CT DEEP then submitted to the EPA as a SIP
revision. The EPA is proposing to add Consent Order No. 8383 to the
Connecticut SIP.
EPA is also proposing to approve a negative declaration for
existing rubber tire manufacturing sources submitted by CT DEEP on May
16, 2025. CAA section 182(b)(2)(A) requires that for ozone
nonattainment areas classified as Moderate or above, a state must
revise its SIP to include provisions to implement RACT for each
category of VOC sources covered by a CTG document. CAA section
184(b)(1)(B) extends the RACT obligation to all areas of the state
within the OTR. In addition to Connecticut being classified as
nonattainment for the 2008 and 2015 ozone standards in the Connecticut
portion of the New York-Northern New Jersey-Long Island, NY-NJ-CT area
and the Greater Connecticut area, Connecticut is in the OTR. A state

[[Page 12335]]

subject to RACT requirements is required to adopt controls for sources
covered by a CTG, either via the adoption of regulations or by issuance
of single source orders or permits that outline the controls the source
is required to implement. If a state contains no sources covered by a
particular CTG, the state may submit as a SIP revision a negative
declaration documenting this fact. A negative declaration is a formal
statement by a state that it has no sources subject to a particular
CTG. In this case, CT DEEP has certified that there are no facilities
in Connecticut subject to EPA's CTG ``Control of Volatile Organic
Emissions from Manufacture of Pneumatic Rubber Tires.'' \3\
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\3\ Control of Volatile Organic Emissions from Manufacture of
Pneumatic Rubber Tires, EPA-450/2-78-030, December 1978, available
at <a href="https://nepis.epa.gov/Exe/ZyPDF.cgi?Dockey=00001TB0.txt">https://nepis.epa.gov/Exe/ZyPDF.cgi?Dockey=00001TB0.txt</a>.
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II. Description and Review of Submittals

A. Order for Algonquin Gas Transmission, LLC

In accordance with 22a-174-32 of the RCSA, CT DEEP issued Consent
Order 8383 to approve the alternative compliance plan submitted by
Algonquin to satisfy RACT for the Cromwell facility. CT DEEP used a
three-step RACT analysis for each category of VOC-emitting equipment or
processes at the Cromwell compressor station subject to Section 22a-
174-32 in the evaluation of Algonquin's proposed alternative VOC RACT
compliance plan. CT DEEP compared Algonquin's proposed RACT with (1)
the RACT standards in EPA's 2016 CTG for the oil and natural gas
industry (``2016 CTG''); \4\ (2) the best system of emission reduction
(BSER) for VOC for new, modified, and reconstructed sources, as set
forth in the oil and gas 2016 New Source Performance Standards at 40
CFR part 60, subpart OOOOa (``2016 NSPS'') \5\ and (3) the BSER for VOC
for new, modified, and reconstructed sources in the oil and gas 2024
NSPS at 40 CFR part 60, subpart OOOOb (``2024 NSPS''),\6\ and the BSER
for methane for existing sources in the 2024 Emission Guidelines (EG)
at 40 CFR part 60, subpart OOOOc (``2024 EG'').\7\
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\4\ Available at <a href="https://www.epa.gov/sites/default/files/2016-10/documents/2016-ctg-oil-and-gas.pdf">https://www.epa.gov/sites/default/files/2016-10/documents/2016-ctg-oil-and-gas.pdf</a>.
\5\ 40 CFR 60.5360a, et seq.
\6\ 40 CFR 60.5360b, et seq.
\7\ 40 CFR 60.5360c, et seq.
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In Step 1, the transmission sources that are discussed in the 2016
CTG document and the equipment at these sources is often similar in
nature to the equipment at production and processing sources. If the
CTG supports RACT, as established in 2016, for the equipment/processes
in more VOC-intensive ends of the industry, then CT DEEP states that it
also should support RACT for the same equipment/processes in the less
VOC-intensive natural gas transmission and storage segment. In
analyzing Step 2, CT DEEP noted that the 2016 NSPS set forth BSER for
VOC for new, modified, and reconstructed sources in the oil and gas
sector, including the natural gas transmission and storage segment. CT
DEEP reasoned that the BSER as promulgated in 2016, for new, modified,
and reconstructed sources should be at least as stringent as--and is
likely more stringent than--RACT for existing sources. And for Step 3
of the RACT analysis, CT DEEP considered BSER for methane in the 2024
EG for existing sources in the oil and gas sector, and BSER for VOC and
methane in the 2024 NSPS for new, modified, and reconstructed sources
in the oil and gas sector, including the natural gas transmission and
storage segment. CT DEEP reasoned that BSER for VOC and methane for
new, modified, and reconstructed sources should be at least as
stringent as--and is likely more stringent than--RACT for existing
sources. CT DEEP also reasoned that BSER for methane for existing
sources should be at least as stringent as and likely more stringent
than RACT for existing sources in the natural gas transmission segment.
CT DEEP concluded that RACT was met or exceeded for each category of
VOC-emitting equipment/process if the emission reduction and method for
such category met RACT as outlined in Step 1, BSER as outlined in Step
2, and, in certain cases, BSER as outlined in Step 3. A more detailed
discussion of CT DEEP's RACT analysis for each category of equipment/
process subject to CT DEEP's VOC RACT regulations is included below.
1. Centrifugal Compressors
Compressors are mechanical devices that increase the pressure of
natural gas and allow it to be transported through the supply chain and
to the consumer.\8\ The types of compressors used by the natural gas
industry are reciprocating and centrifugal compressors. All compressors
at the Algonquin facility are centrifugal compressors with dry seals.
According to section 5.2 of the oil and gas CTG, dry seal systems offer
an 87 percent reduction in VOC emissions over wet seal systems and emit
considerably less gas than reciprocating compressors.\9\ EPA also noted
in the 2016 CTG that dry seal systems are an available control option
for reducing VOC emissions from wet seal centrifugal compressors, but
EPA did not recommend dry seals as RACT for centrifugal compressors,
because EPA had previously determined that dry seals may not be
technically feasible for certain compressor sizes.\10\ In addition, EPA
observed in the 2016 NSPS that the only VOC emission control option for
dry seal compressors is the use of dry seal.\11\ In 2019, Algonquin
upgraded two of the oldest compressor units from 1985 (EU-07, EU-08)
from wet to dry seals.
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\8\ 2016 CTG at 5-1.
\9\ Memorandum from Bradley Nelson, EC/R to Jodi Howard, EPA/
OAQPS/SPPD, Estimation of Potential Emission Reductions with the
Implementation of a Method 21 Monitoring Program. April 25, 2016.
\10\ 2016 CTG at 5-4 (citing 77 FR 49490 at 49523 (August 16,
2012); 80 FR 56593 at 56619).
\11\ 80 FR 56593 at 56619 (September 18, 2015); 77 FR 49490 at
49532 (August 16, 2012).
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EPA also reviewed RACT regulations for nearby states to assess the
adequacy of CT DEEP's RACT determination for centrifugal compressors.
During its review, EPA identified RACT regulations approved into the
New York SIP that regulate centrifugal compressors at compressor
stations. 87 FR 52337 (August 25, 2022).\12\ In particular, New York
regulations at 6 NYCRR Sec. 203-4.3(b) and (c) allow the use of dry
seals on centrifugal compressors located at compressor stations in the
transmission segment. These regulations also require compliance with
leak detection and repair (LDAR) standards that include Method 21 or
OGI,\13\ which is consistent with the LDAR methods provided in Consent
Order No. 8383 and discussed further below.
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\12\ New York's SIP-approved regulations are available at
<a href="https://www.epa.gov/system/files/documents/2024-06/ibr-ny-part-203-eff-march-18-2022_1.pdf">https://www.epa.gov/system/files/documents/2024-06/ibr-ny-part-203-eff-march-18-2022_1.pdf</a>.
\13\ 6 NYCRR Subpart 203-7.
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CT DEEP determined that no additional controls are needed to
satisfy RACT, because all Algonquin centrifugal compressors already use
dry seals. The RACT Order requires Algonquin to use dry seals or a seal
system that achieves the same or better VOC control effectiveness.\14\
Based on CT DEEP's RACT evaluation and the EPA's evaluation of the SIP-
approved RACT regulations in the neighboring state of New York, EPA is
proposing to agree that the use of dry seals satisfies RACT for these
sources of VOC emissions.
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\14\ Consent Order No. 8383 at B.2.

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[[Page 12336]]

2. Fugitive Emission Components
At the Algonquin facility, there are numerous piping components in
natural gas service, heavy oil service, and pipeline liquids service,
with potential fugitive emissions of VOC. The collection of fugitive
emission components are subject to quarterly LDAR program requirements
under the 2016 NSPS, which include the allowable threshold of 500 parts
per unit volume (ppmv) and the applicable test method of EPA Reference
Method 21.\15\ The 2024 NSPS strengthens the BSER standard that was
initially established under the 2016 NSPS. The 2024 NSPS and 2024 EG
include a monthly audio/visual/olfactory (AVO) inspection requirement
for fugitive emission components in the natural gas transmission and
storage segment.\16\ CT DEEP included monthly AVO inspections as an
element of this RACT order, in addition to the quarterly Method 21
LDAR.\17\ Routine AVO inspections can lead to the discovery of
significant leaks that originate between quarterly LDAR surveys and
might otherwise go undetected for an extended period. Optical Gas
Imaging (OGI) cameras use infrared technology to make invisible gas
leaks, including VOC, visible in real-time, allowing operators to
quickly identify sources for repair and ensure compliance with
applicable requirements. The 2024 NSPS and 2024 EG allow the use of OGI
equipment as an alternative to Method 21 for screening for fugitive
emissions or leaks. Therefore, the RACT order incorporates both
quarterly Method 21 LDAR (with optional use of OGI in lieu of Method
21); and monthly AVO inspections, with a requirement that any
indication of leakage discovered during an AVO inspection be treated as
a fugitive emission and that such fugitive emission be repaired,
recorded, and reported according to the applicable provisions of the
2016 NSPS.\18\ Therefore, the EPA is proposing to approve the fugitive
emissions requirements in Consent Order 8383 satisfy RACT for this
source of VOC emissions at the facility.
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\15\ 40 CFR 60.5397a(a), (g)2), and (c)(2).
\16\ Id. at Sec. Sec. 60.5397b, 60.5397c.
\17\ Consent Order No. 8383 at B.3.
\18\ 40 CFR 60.5397a.
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3. Pneumatic Controllers
The Cromwell compressor station uses only intermittent-bleed
natural gas-actuated pneumatic controllers, which vent gas only when
actuated (i.e., the valve position is moved from open to closed and
back). Cromwell has a total of 68 intermittent-bleed natural gas-
actuated pneumatic controllers, with a collective VOC PTE of 0.5 tpy as
calculated by Algonquin. Annual gas venting volume from pneumatic
actuators is dependent upon the volume of gas venting per actuation and
the number of actuations per year.
To determine RACT for the pneumatic controllers at the Cromwell
compressor station, DEEP reviewed the oil and gas CTG, the 2016 NSPS,
and the 2024 NSPS/EG, as discussed earlier. The oil and gas CTG and
2016 NSPS do not specifically address intermittent-bleed natural gas-
actuated pneumatic controllers but focus instead on lowering bleed
rates of continuous-bleed controllers, due to their potential for
higher emissions.19 20 Under the 2016 NSPS, however,
intermittent bleed natural gas-actuated controllers are a compliance
alternative to low-bleed continuous bleed pneumatic controllers. The
2024 NSPS regulates both continuous and intermittent-bleed natural gas-
actuated pneumatic controllers, setting a BSER standard of zero-
emissions of VOCs, but only for process controllers constructed,
modified, or reconstructed after December 6, 2022; the 2024 NSPS does
not apply to existing process controllers constructed, modified, or
reconstructed prior to that date.\21\ As noted above, the Cromwell
compressor station does not have continuous-bleed pneumatic
controllers. Furthermore, the intermittent-bleed natural gas actuated
pneumatic controllers at the facility were constructed prior to
December 2022 and are not subject to requirements of the 2024 NSPS. In
addition, although the 2024 EG determined that the replacement of
pneumatic controllers at existing facilities may be cost-effective, the
EG regulations were based on, and set a BSER standard for, the control
of methane and not VOCs.\22\ To determine whether zero-bleed
controllers constitute RACT at the Cromwell compressor station, DEEP
examined their cost effectiveness at the facility by using total annual
costs (TAC) for such controllers that EPA calculated in the proposal
for the 2024 NSPS.The lowest TAC for large, existing plants is electric
controllers,\23\ at $3,709 per year.\24\ Using that figure, CT DEEP
determined that the cost effectiveness for VOC for electric controllers
at the Cromwell facility is $8,448 per ton based on a baseline
calculated VOC emissions of 0.439 tons per year.25 26
However, CT DEEP considered that its cost effectiveness calculation
incorporates a degree of uncertainty due to a variety of factors,
including the difference between the number of pneumatic controllers at
the Cromwell facility versus the 2024 NSPS and EG analysis, the use of
TAC from the 2024 NSPS and EG versus a site-specific value, the varying
pollutant baseline emissions calculations (i.e. methane vs VOC), as
well as the estimates of the number of controllers types (i.e. low-
bleed, high-bleed, and intermittent bleed) at each facility used in the
2024 NSPS and EG cost analysis. Given the nominal VOC emissions from
Algonquin's Cromwell facility (less than 1 tpy) and the uncertainty in
the cost effectiveness calculations of retrofitting and replacing the
intermittent-bleed natural gas actuated pneumatic controllers with
zero-bleed pneumatic controllers at the facility, CT DEEP determined
that the existing intermittent bleed pneumatic controllers meet the
state's RACT requirements for these sources of VOC emissions.
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\19\ 2016 CTG at Section 6.2; 40 CFR 60.5365a(d). In the 2016
CTG, EPA also explained that intermittent controllers serve
functionally different purposes than continuous bleed devices and
that EPA did not, in 2016, consider the use of intermittent
controllers to be a technically practical control option for all
continuous bleed controllers. 2016 CTG at 6-3.
\20\ By comparison, continuous-bleed pneumatic controllers vent
gas even when not actuated. The rate at which the continuous release
occurs is referred to as the bleed rate.
\21\ 40 CFR 60.5390b(a).
\22\ 87 FR 74702 at 74768 (Table 28), ``Standards of Performance
for New, Reconstructed, and Modified Sources and Emissions
Guidelines for Existing Sources: Oil and Natural Gas Sector Climate
Review'' (December 6, 2022).
\23\ Table 26 of EPA's Standards of Performance for New,
Reconstructed, and Modified Sources and Emissions Guidelines for
Existing Sources: Oil and Natural Gas Sector Climate Review''
indicates a ``large: facility consists of greater than 15 pneumatic
controllers.
\24\ See Table 27 at 87 FR 74767.
\25\ More information on CT DEEP's cost effectiveness analysis
is included in the TSD in the docket for this rulemaking.
\26\ CT DEEP calculated the baseline VOC emissions using the
baseline methane emissions estimated by EPA in the supplemental
proposal for the 2024 NSPS/EG for large, existing facilities (15.9
tpy) multiplied by the weight ratio of VOC:methane (0.0276--rounded)
to get baseline VOC emissions of 0.439 tpy-VOC. See 87 FR at 74767
(Table 26) and Page 17 of CT's TSD in the docket for this
rulemaking.
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CT DEEP also reviewed EPA's nationwide RACT/BACT/LAER Clearinghouse
and did not find any RACT demonstrations requiring the use of zero-
bleed controllers at existing natural gas transmission facilities for
the control of VOCs.\27\ In addition, EPA reviewed RACT regulations for
nearby states to assess the adequacy of CT DEEP's RACT determination
for pneumatic controllers. During its review, EPA identified RACT

[[Page 12337]]

regulations approved into the New York SIP that regulate pneumatic
controllers at compressor stations. 87 FR 52337 (August 25, 2022).\28\
In particular, New York regulations at 6 NYCRR Sec. 203-4.2(d) allow
the use of intermittent bleed pneumatic controllers at compressor
stations and require compliance with LDAR standards that include Method
21 or OGI,\29\ which is consistent with the LDAR methods provided in
Consent Order No. 8383. Therefore, based on CT DEEP's RACT evaluation
and SIP-approved RACT regulations in the neighboring state of New York,
EPA is proposing to agree that the use of existing intermittent bleed
pneumatic controllers implement RACT for these sources of VOC
emissions.
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\27\ See page 25 of CT DEEP's TSD in the docket for this
rulemaking.
\28\ New York's SIP-approved regulations are available at
<a href="https://www.epa.gov/system/files/documents/2024-06/ibr-ny-part-203-eff-march-18-2022_1.pdf">https://www.epa.gov/system/files/documents/2024-06/ibr-ny-part-203-eff-march-18-2022_1.pdf</a>.
\29\ See 6 NYCRR Subpart 203-7.
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4. Organic Liquid Storage Vessels
The Algonquin facility contains the following vessels to include
tanks and separators: one 2,940-gallon pipeline condensate tank, one
1,000-gallon oil (lubricating or heavy oil) storage tank, one 750-
gallon oil storage tank, one 1,000-gallon oily water (oil comingled
with condensed water) storage tank, one 2,790-gallon coolant storage
tank, one 350-gallon coolant storage tank, and five process separators.
Several of these vessels at the facility meet the definition of
``storage vessel'' in the 2016 CTG, the 2016 NSPS, the 2024 NSPS, and
the 2024 EG: ``a tank or other vessel that contains an accumulation of
crude oil, condensate, intermediate hydrocarbon liquids, or produced
water, and that is constructed primarily of nonearthen materials (such
as wood, concrete, steel, fiberglass, or plastic) which provide
structural support.'' 30 31 While this definition excludes
process vessels such as knockout vessels,\32\ process vessels at
Algonquin are subject to the RACT requirements for fugitive emission
components discussed earlier. Similarly, fugitive emission components
associated with storage vessels covered by the above definition are
also covered by the fugitive emission components discussed earlier.
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\30\ 2016 CTG at Section 4.1; 40 CFR 60.5430a, 60.5430b,
60.5430c.
\31\ Other vessels that do not meet the definition of ``storage
vessel'' do not store volatile liquids and have negligible VOC
emissions.
\32\ 2016 CTG at Section 4.1; 40 CFR 60.5430a, 60.5430b.
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The 2016 CTG recommends that any storage vessel with potential
emissions greater than or equal to 6 tpy-VOC be served by a VOC capture
and control system, unless uncontrolled actual VOC emissions have
remained below 4 tpy, as calculated monthly, for 12 consecutive months
and such emission rate is maintained.\33\ The 2016 NSPS requires
controls on any storage vessel with potential and actual emission at
the same thresholds,\34\ and the 2024 NSPS retains the 6 tpy-VOC
applicability threshold.\35\
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\33\ 2016 CTG at Section 4.4.
\34\ 40 CFR 60.5365a(e), 60.5395a(a)(3).
\35\ Id. at Sec. Sec. 60.5365b(e)(1), 60.5395b(a)(3).
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CT DEEP determined that Algonquin does not have any storage vessels
with a VOC PTE greater than or equal to 6 tpy. The aggregate potential
VOC emissions of all storage vessels identified by Algonquin (including
the vessels that do not meet the traditional definition of ``storage
vessel'') is 1.16 tpy.
Therefore, CT DEEP determined that no emission controls are
necessary to satisfy VOC RACT since the aggregate VOC PTE of the
storage vessels is significantly less than the 6 tpy threshold in the
2016 CTG, 2016 NSPS, and 2024 NSPS and EG. However, Consent Order No.
8383 requires that Algonquin maintain the potential emissions of each
affected storage vessel below 6 tpy-VOC, calculated in accordance with
the methodology set forth in the 2016 NSPS at 40 CFR 60.5365a(e)(1),
and keep documentation to this effect.\36\ As an alternative compliance
option, consistent with the 2016 NSPS, Consent Order No. 8383 provides
the option for Algonquin to maintain the actual uncontrolled VOC
emissions of each affected storage vessel at a rate less than 4 tpy, as
determined monthly.\37\ This compliance option may be exercised only if
Algonquin demonstrates that actual uncontrolled VOC emissions have
remained less than 4 tpy, as determined monthly, for the 12 consecutive
months prior to exercising this compliance option.\38\ After making
such demonstration, Algonquin is required to determine, and keep
records of, the actual uncontrolled VOC emission rate each month.\39\
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\36\ Consent Order No. 8383 at B.5.a.
\37\ Id. at B.5.b.
\38\ Id.
\39\ Id.
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As another alternative compliance option, consistent with the 2016
NSPS, Consent Order No. 8383 also provides the option for Algonquin to
install a VOC capture and control system that reduces VOC emissions
from each affected storage vessel by at least 95 percent.\40\ If
Algonquin becomes ineligible to operate under the first two compliance
options (PTE less than 6 tpy-VOC or actual emissions less than 4 tpy-
VOC), Consent Order No. 8383 requires Algonquin to comply with this VOC
capture and control requirement within 60 days after loss of
eligibility.\41\
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\40\ Id. at B.5.c.
\41\ Id. at B.5.d.
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5. Conclusion
EPA has reviewed the CT DEEP SIP submittal with respect to Consent
Order No. 8383 issued to Algonquin's Cromwell facility and proposes to
approve the state's determination that the VOC stationary source
controls requirements in the Consent Order meet the RACT obligation. As
discussed above, CT DEEP used a three-step process to determine VOC
RACT and compared emissions control recommendations in EPA's 2016 CTG
for the oil and natural gas industry and BSER for the 2016 NSPS and
2024 NSPS and EG for each of the VOC emitting equipment and processes.
CT DEEP determined that the requirements in the order are generally
consistent with EPA's determinations for new sources and, in some
cases, for existing sources in this sector. In sum, the compressor
station employs intermittent bleed actuated pneumatic controllers with
total VOC emissions less than 1 tpy, all five centrifugal compressors
use dry seals (which are a compliance alternative to wet seals (NSPS
0000a) and achieve 95% reductions compared to wet seals), Algonquin
must perform quarterly Method 21 LDAR and monthly AVO inspections for
fugitive emissions, and the storage vessels at the facility have a
combined PTE of 1.16 tpy (which is below the 6 tpy threshold in the
2016 CTG, 2016 NSPS, and 2024 NSPS and EG). EPA is proposing to find
that these requirements implement RACT and is therefore proposing to
approve the addition of the Consent Order into the CT SIP.

B. Negative Declaration for Existing Rubber Tire Manufacturing Sources

On May 16, 2025, CT DEEP submitted a negative declaration for
existing rubber tire manufacturing sources to EPA. This source category
is covered by EPA's Control Techniques Guideline (CTG) EPA--450/2-78-
030, Control of Volatile Organic Emissions from Manufacture of
Pneumatic Rubber Tires. CT DEEP has determined that there are currently
no sources of rubber tire manufacturing located in the state. To make
this determination, CT DEEP reviewed the inventory of sources for
facilities with the North American Industrial Classification System
(NAICS) codes and Standard Industrial

[[Page 12338]]

Classification (SIC) codes, interviewed its enforcement staff, and
searched internet web pages. Based on the state's representations, EPA
is proposing to approve the negative declaration for rubber tire
manufacturing resources.

III. Proposed Action

EPA is proposing to approve a SIP revision submitted on December
10, 2024, by the CT DEEP to add Consent Order No. 8383 issued to
Algonquin Gas Transmission, LLC, located in Cromwell, CT, to the
Connecticut SIP. The intended effect of this action is to establish
emission standards that implement RACT for VOC. EPA is also proposing
to approve the CT DEEP's negative declaration for existing rubber tire
manufacturing sources covered by the EPA's CTG EPA--450/2-78-030,
Control of Volatile Organic Emissions from Manufacture of Pneumatic
Rubber Tires.
EPA is soliciting public comments on the issues discussed in this
proposal or on other relevant matters. These comments will be
considered before EPA takes final action. Interested parties may
participate in the Federal rulemaking procedure by submitting comments
on this proposed rule by following the instructions listed in the
ADDRESSES section of this Federal Register.

IV. Incorporation by Reference

In this rule, the EPA is proposing to include in a final EPA rule
regulatory text that includes incorporation by reference. In accordance
with requirements of 1 CFR 51.5, the EPA is proposing to incorporate by
reference revisions to the Connecticut SIP to include Consent Order No.
8383 and approve a negative declaration for existing rubber tire
manufacturing sources as discussed in section I. of this preamble and
set forth below in the amendments to 40 CFR part 52. The EPA has made,
and will continue to make, these documents generally available through
<a href="https://www.regulations.gov">https://www.regulations.gov</a> and at the EPA Region 1 Office (please
contact the person identified in the FOR FURTHER INFORMATION CONTACT
section of this preamble for more information).

V. Statutory and Executive Order Reviews

Under the Clean Air Act, the Administrator is required to approve a
SIP submission that complies with the provisions of the Clean Air Act
and applicable Federal regulations. See 42 U.S.C. 7410(k); 40 CFR
52.02(a). Thus, in reviewing SIP submissions, EPA's role is to approve
state choices, provided that they meet the criteria of the Clean Air
Act. Accordingly, this proposed action merely approves state law as
meeting Federal requirements and does not impose additional
requirements beyond those imposed by state law. For that reason, this
proposed action:
<bullet> Is not a significant regulatory action subject to review
by the Office of Management and Budget under Executive Orders 12866 (58
FR 51735, October 4, 1993);
<bullet> Is not subject to Executive Order 14192 (90 FR 9065,
February 6, 2025) because SIP actions are exempt from review under
Executive Order 12866;
<bullet> Does not impose an information collection burden under the
provisions of the Paperwork Reduction Act (44 U.S.C. 3501 et seq.);
<bullet> Is certified as not having a significant economic impact
on a substantial number of small entities under the Regulatory
Flexibility Act (5 U.S.C. 601 et seq.);
<bullet> Does not contain any unfunded mandate or significantly or
uniquely affect small governments, as described in the Unfunded
Mandates Reform Act of 1995 (Pub. L. 104-4);
<bullet> Does not have federalism implications as specified in
Executive Order 13132 (64 FR 43255, August 10, 1999);
<bullet> Is not subject to Executive Order 13045 (62 FR 19885,
April 23, 1997) because it approves a state program;
<bullet> Is not a significant regulatory action subject to
Executive Order 13211 (66 FR 28355, May 22, 2001); and
<bullet> Is not subject to requirements of Section 12(d) of the
National Technology Transfer and Advancement Act of 1995 (15 U.S.C. 272
note) because application of those requirements would be inconsistent
with the Clean Air Act.
In addition, the SIP is not approved to apply on any Indian
reservation land or in any other area where EPA or an Indian tribe has
demonstrated that a tribe has jurisdiction. In those areas of Indian
country, the rule does not have tribal implications and will not impose
substantial direct costs on tribal governments or preempt tribal law as
specified by Executive Order 13175 (65 FR 67249, November 9, 2000).

List of Subjects in 40 CFR Part 52

Environmental protection, Air pollution control, Carbon monoxide,
Incorporation by reference, Intergovernmental relations, Lead, Nitrogen
dioxide, Ozone, Particulate matter, Reporting and recordkeeping
requirements, Sulfur oxides, Volatile organic compounds.

Dated: March 11, 2026.
Mark Sanborn,
Regional Administrator, EPA Region 1.
[FR Doc. 2026-04991 Filed 3-12-26; 8:45 am]
BILLING CODE 6560-50-P

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