Approval and Promulgation of Air Quality Implementation Plans; West Virginia; Redesignation of the Weirton, WV Portion of the Steubenville-Weirton, OH-WV 8-Hour Ozone Nonattainment Area to Attainment and Approval of the Area's Maintenance Plan

[Federal Register: May 14, 2007 (Volume 72, Number 92)]
[Rules and Regulations]
[Page 27060-27063]
From the Federal Register Online via GPO Access [wais.access.gpo.gov]
[DOCID:fr14my07-5]

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ENVIRONMENTAL PROTECTION AGENCY
40 CFR Parts 52 and 81
[EPA-R03-OAR-2006-0692; FRL-8314-1]

Approval and Promulgation of Air Quality Implementation Plans;
West Virginia; Redesignation of the Weirton, WV Portion of the
Steubenville-Weirton, OH-WV 8-Hour Ozone Nonattainment Area to
Attainment and Approval of the Area's Maintenance Plan

AGENCY: Environmental Protection Agency (EPA).
ACTION: Final rule.

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SUMMARY: EPA is approving a redesignation request and a State
Implementation Plan (SIP) revision submitted by the State of West
Virginia. The West Virginia Department of Environmental Protection
(WVDEP) is requesting that the Brooke and Hancock County, West Virginia
(Weirton) portion of the Steubenville-Weirton, OH-WV area (herein
referred to as the ``Area'') be redesignated as attainment for the 8-
hour ozone national ambient air quality standard (NAAQS). In
conjunction with its redesignation request, the State submitted a SIP
revision consisting of a maintenance plan for Weirton that provides for
continued attainment of the 8-hour ozone NAAQS for the next 12 years,
until 2018. EPA is also approving the adequacy determination for the
motor vehicle emission budgets (MVEBs) that are identified in the
Weirton 8-hour ozone maintenance plan for purposes of transportation
conformity, and is approving those MVEBs. EPA is approving the
redesignation request and the maintenance plan revision to the West
Virginia SIP in accordance with the requirements of the CAA.

DATES: Effective Date: This final rule is effective on June 13, 2007.

ADDRESSES: EPA has established a docket for this action under Docket ID
Number EPA-R03-OAR-2006-0692. All documents in the docket are listed in
the http://www.regulations.gov Web site. Although listed in the electronic
docket, some information is not publicly available, i.e., confidential
business information (CBI) or other information whose disclosure is
restricted by statute. Certain other material, such as copyrighted
material, is not placed on the Internet and will be publicly available
only in hard copy form. Publicly available docket materials are
available either electronically through http://www.regulations.gov or in hard
copy for public inspection during normal business hours at the Air
Protection Division, U.S. Environmental Protection Agency, Region III,
1650 Arch Street, Philadelphia, Pennsylvania 19103. Copies of the State
submittal are available at the West Virginia Department of
Environmental Protection, Division of Air Quality, 601 57th Street,
SE., Charleston, WV 25304.

FOR FURTHER INFORMATION CONTACT: Amy Caprio, (215) 814-2156, or by e-
mail at caprio.amy@epa.gov.

SUPPLEMENTARY INFORMATION:

I. Background

On October 2, 2006 (71 FR 57905), EPA published a notice of
proposed rulemaking (NPR) for the State of West Virginia. The NPR
proposed approval of West Virginia's redesignation request and a SIP
revision that establishes a maintenance plan for Weirton that sets
forth how Weirton will maintain attainment of the 8-hour ozone NAAQS
for the next 12 years. The formal SIP revision was submitted by the
WVDEP on August 3, 2006. Other specific requirements of West Virginia's
redesignation request SIP revision for the maintenance plan and the
rationales for EPA's proposed actions are explained in the NPR and will
not be restated here. On October 19, 2006, EPA received a comment, from
the West Virginia Division of Highways, in support of its October 2,
2006 NPR. Also, on October 28, 2006, EPA received adverse comments on
the said October 2, 2006 NPR. A summary of the comments submitted and
EPA's responses are provided in Section II of this document. However,
errata were found on page 57912 of the NPR. On page 57912 (Table 4), an
error occurred in EPA's calculation of the 2018 Ohio NO_X
point sources. The correct 2018 Ohio NO_X point source should
read 46.4 tons per day (tpd) instead of 41.0 tpd. This error adversely
affects the total NO_X point sources and the 2018 Ohio total
NO_X emissions. The correct total NO_X point
sources should read 52.0 tpd instead of 46.6 tpd. Lastly, the 2018 Ohio
total NO_X emissions should read 55.3 tpd instead of 49.9 tpd.
It should be noted that these errata do not affect the attainment of the
8-hour ozone standard or the demonstration of maintenance in the Area.

II. Summary of Public Comments and EPA Responses

Comment: The commenter stated that on behalf of the West Virginia
Division of Highways, they would like to go on record as supporting the
redesignation of Weirton from nonattainment to attainment.
Response: EPA acknowledges the comment of support for our final action.
Comment: The commenter notes that although there are no electrical
generating units (EGUs) in the Weirton portion of the Area,
``significant'' NO_X emissions reductions are expected from
2002--2018 at two EGU's located in Steubenville. The commenter requests
specific information on the controls at these plants and measures
making these emissions reductions enforceable.
Response: The Redesignation of Jefferson County, Ohio to Attainment
of the 8-Hour Ozone Standard, 72 FR 711 (January 8, 2007) notes that
Ohio's EGU NO_X emissions control rules stemming from EPA's
NO_X SIP Call, October 27, 1998 (63 FR 57356), amendments to
the NO_X SIP Call, May 14, 1999 (64 FR 26298) and March 2,
2000 (65 FR 11222), and the Clean Air Interstate Rule (CAIR) May 12,
2005 (70 FR 25162), to be implemented beyond 2006, will further lower
NO_X emissions in upwind areas, resulting in decreased ozone
and ozone precursor transport into Jefferson County and the
Steubenville-Weirton Area. This will also support maintenance of the
ozone standard in this Area, which particularly benefits from the
NO_X SIP Call and CAIR. These two regulations focus on
utility emissions in the Eastern United States and impose a permanent
cap on overall emissions from affected sources. This cap is likely to
minimize growth of this very important component of emissions in the Area.
The emission projections for Jefferson County and the Steubenville-
Weirton Area as a whole, coupled with the expected impacts of the
States' EGU NO_X rules and CAIR, lead to the conclusion that
the Area should maintain the 8-hour ozone NAAQS throughout the required
10-year maintenance period and through 2018. The projected decreases in
local VOC and local and regional NO_X emissions indicate that
peak ozone levels in the Area may actually further decline during the
maintenance period.
Based on the comparison of the projected emissions and the
attainment year emissions, we conclude that the West Virginia
Department of Environmental Protection (WVDEP) and the Ohio EPA have
successfully demonstrated that the 8-hour ozone standard should be
maintained throughout the Area.
In addition, in this action EPA is approving the Maintenance Plan
for Weirton and in a separate action has proposed approval of the
Maintenance Plan for the Jefferson County

[[Page 27061]]

(Steubenville) portion of the Area. Collectively, the Ohio and West
Virginia Maintenance Plans demonstrate why those states believe that
the Area will continue to maintain the 8-hour ozone standard for at
least 10 years from the date of redesignation. Furthermore, the
Contingency Plans, which are components of the Maintenance Plans, set
forth the steps that the States will undertake to preserve attainment
of the 8-hour ozone standard if air quality indicators show that the
air quality of the Area has declined to the point when contingency
measures to reverse that deterioration of air quality should begin
being implemented. Therefore, continued maintenance of the 8-hour ozone
standard will be assured independent of whether or not enforceable
reductions are currently called for at the two Jefferson County EGUs.
In short, if projected reductions from the Jefferson County EGUs do not
occur, and if the measures from the NO_X SIP call, CAIR and
other ozone control measures that are currently implemented or will be
implemented in the near future, fail to maintain the 8-hour ozone
standard in the Area, the States of West Virginia and Ohio nevertheless
will have, with the Contingency Plan provisions of their Maintenance
Plans, a SIP-approved process for assuring that air quality in
Steubenville-Weirton Area will continue to maintain the 8-hour ozone
standard.
Comment: The commenter states that the Weirton redesignation is
based on 2002-2004 air quality data, and should instead be based on the
most recent three years of air quality data, 2004-2006.
Response: EPA disagrees that the 2006 data was available as a basis
for redesignating Weirton to attainment, and also disagrees with the
comment that the redesignation cannot be based on the quality assured
2002-2004 air quality data. EPA may redesignate an area to attainment
of the 8-hour ozone NAAQS if three years of quality assured data
indicate that the area has attained the standard and the most recent
quality assured air quality data indicates that the area is still
attaining the standard at the time of the redesignation. EPA has
determined that Weirton has attained compliance with the 8-hour ozone
NAAQS subsequent to the calendar year 2004 ozone season (April-October)
based on three years (2002-2004) of quality assured data. It is also
worth noting that while our determination that the Area has attained
the standard is based on the 2002-2004 data, the 2005 calendar year
quality assured data and the newly available quality assured data from
2006, indicate that the Area continues to attain the standard. The 2005
and 2006 data supports our conclusion in the NPR on October 2, 2006 (71
FR 57905) that emissions reductions in the Area can be contributed to
permanent and enforceable measures throughout the Area and that air
quality monitoring data indicate that the Area continues to attain the
8-hour ozone NAAQS.\1\
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\1\ The fourth highest 8-hour ozone monitoring values at the
Hancock County, West Virginia (Weirton) monitor for 2006 were 0.085
ppm, 0.079 ppm, 0.079 ppm, and 0.077 ppm. The fourth highest 8-hour
ozone monitoring values at the Jefferson County, Ohio (Steubenville)
monitor for 2006 were 0.089, 0.083, 0.080 ppm, and 0.080 ppm. Thus
the design values at both Area monitors for monitoring years 2004-
2006 are still showing attainment of the 8-hour NAAQS with a value of 0.075
ppm at the Weirton monitor and 0.078 ppm at the Steubenville monitor.
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Comment: The commenter asks why the monitoring site in Jefferson
County, Ohio was moved at the end of 2003, where the new site is in
relation to the old one, and an explanation as to the acceptability of
combining the data from the two sites.
Response: The monitoring site in Jefferson County was relocated to
a site \1/3\ mile from the original site after 2003 because Ohio EPA
lost site access to the original site. The new site was approved by EPA
Region 5 and meets all siting criteria described in 40 CFR 58 Appendix
E. The original and final sites are sufficiently close together and
removed from sources of ozone precursors such that the two sites
represent the same air quality. Therefore, the data from the two sites
can be combined when calculating the three-year average ozone
concentration. See Redesignation of Jefferson County, Ohio to
Attainment of the 8-Hour Ozone Standard, 72 FR 711 (January 8, 2007).
Comment: The commenter asserts that cold and wet summers, rather
than enforceable emissions reductions are a significant cause of
improvement of air quality in Weirton, although the commenter also
asserts based on the number of days exceeding 84 ppb 2005 that the air
quality is actually not improving.
Response: In accordance with Appendix I to 40 CFR Part 50,
compliance with the 8-hour ozone NAAQS is met at an ambient air
monitoring site when the 3-year average of the annual fourth-highest
daily maximum 8-hour average ozone concentration is less than or equal
to 0.08 ppm; it is not based on the number of days which exceed the 8-
hour ozone standard. Additionally, EPA uses the three-year averaging
period to minimize year to year variations in the summer (i.e., ozone
season) weather. See Redesignation of Pittsburgh, Pennsylvania, 66 FR
53094, 53100 (October 19, 2001). Therefore, the number of days
exceeding 84 ppb are not relevant to a determination of whether an area
(or portion thereof), has attained the 8-hour ozone NAAQS. Information
relative to long term trends of West Virginia summer temperatures and
rainfall-based data was obtained from the National Oceanic and
Atmospheric Administration's (NOAA) National Climate Data Center
(please see attached). Based on EPA's review, this information shows
that the summers 2000 through 2006 experienced year to year variations
in average summer temperature and rainfall typical of the summer
seasons in the State of West Virginia. Thus the improvement in air
quality is not due to unusually cold and wet summers. Rather, the
improvement in air quality is due to the implementation of permanent
and enforceable measures as explained in the NPR. The permanent and
enforceable measures listed in the Weirton NPR include the National Low
Emissions Vehicle (NLEV), motor vehicle fleet turnover with new
vehicles meeting the Tier 2 standards, and the Clean Diesel Program.
These federal vehicle programs along with the NO_X SIP Call
resulted in a 3.0 tons per year (tpy) decrease in VOC emissions and a
37.2 tpy decrease in NO_X emissions throughout the
Steubenville-Weirton Area between 2002 and 2004. Therefore, EPA
believes that the improvement in 8-hour ozone air quality is a result
of identifiable, permanent and enforceable reductions in ozone
precursor emissions, not unusually cold and wet summers.
Comment: The commenter requests 2006 monitoring data for the
Weirton Area.
Response: Preliminary (not quality assured) data is publicly
available at the following Web sites: http://www.epa.gov/air/data/
and/or http://www.airnow.gov. See also, footnote 1.
Additionally, the United States Court of Appeals for the District
of Columbia Circuit recently vacated EPA's April 30, 2004 ``Final Rule
to Implement the 8-Hour Ozone National Ambient Standard'' (the Phase 1
implementation rule). South Coast Air Quality Management District v.
EPA, 472 F.3d 882 (D.C. Cir. 2007). EPA issued a supplemental proposed
rulemaking that set forth its views on the potential effect of the
Court's ruling on this and other proposed redesignation actions. 72 FR
13452 (March 22, 2007). EPA proposed to find that the Court's ruling
does not alter any requirements relevant to the

[[Page 27062]]

proposed redesignations that would prevent EPA from finalizing these
redesignations, for the reasons fully explained in the supplemental
notice. EPA provided a 15-day review and comment period on this
supplemental proposed rulemaking. The public comment period closed on
April 6, 2007. EPA received six comments, all supporting EPA's
supplemental proposed rulemaking, and supporting redesignation of the
affected areas. EPA recognizes the support provided in these comments
as well, but again, we do not believe any specific response to comments
is necessary with respect to these comments. In addition, several of
these comments included additional rationale for proceeding with these
proposed redesignations. EPA had not requested comment on any
additional rationale, does not believe any additional rationale is
necessary, and similarly does not believe any specific response to
these comments is necessary, and thus has not provided any.

III. Final Action

EPA is approving the State of West Virginia's August 3, 2006
redesignation request and maintenance plan because the requirements for
approval have been satisfied. EPA has evaluated West Virginia's
redesignation request, submitted on August 3, 2006, and determined that
it meets the redesignation criteria set forth in section 107(d)(3)(E)
of the CAA. EPA believes that the redesignation request and monitoring
data demonstrate that Weirton has attained the 8-hour ozone standard.
The final approval of this redesignation request will change the
designation of the Weirton, West Virginia portion of the Area from
nonattainment to attainment for the 8-hour ozone standard. EPA is
approving the associated maintenance plan for Weirton, submitted on
August 3, 2006, as a revision to the West Virginia SIP. EPA is
approving the maintenance plan for Weirton because it meets the
requirements of section 175A.
EPA is also approving the MVEBs submitted by West Virginia in
conjunction with its redesignation request. In this final rulemaking,
EPA is notifying the public that we have found that the MVEBs for
NO_X and VOCs in the Weirton 8-hour ozone maintenance plan
are adequate and approved for conformity purposes. As a result of our
finding, Brooke and Hancock Counties must use the MVEBs from the submitted
8-hour ozone maintenance plan for future conformity determinations. The
adequate and approved MVEBs are provided in the following table:

Adequate and Approved Motor Vehicle Emissions Budgets (MVEBs) in Tons
per Day (TPD)
------------------------------------------------------------------------
Budget year NOX VOC
------------------------------------------------------------------------
2009.......................................... 2.8 2.0
2018.......................................... 1.2 1.0
------------------------------------------------------------------------

Weirton is subject to the CAA's requirements for basic ozone
nonattainment areas until and unless it is redesignated to attainment.

IV. Statutory and Executive Order Reviews

A. General Requirements

Under Executive Order 12866 (58 FR 51735, October 4, 1993), this
final action is not a ``significant regulatory action'' and therefore
is not subject to review by the Office of Management and Budget. For
this reason, this action is also not subject to Executive Order 13211,
``Actions Concerning Regulations That Significantly Affect Energy
Supply, Distribution, or Use'' (66 FR 28355 (May 22, 2001)). This
action approves state law as meeting Federal requirements and imposes
no additional requirements beyond those imposed by state law.
Redesignation of an area to attainment under section 107(d)(3)(e) of
the Clean Air Act does not impose any new requirements on small
entities. Redesignation is an action that affects the status of a
geographical area and does not impose any new regulatory requirements
on sources. Accordingly, the Administrator certifies that this final
rule will not have a significant economic impact on a substantial
number of small entities under the Regulatory Flexibility Act (5 U.S.C.
601 et seq.). Because this rule approves pre-existing requirements
under state law and does not impose any additional enforceable duty
beyond that required by state law, it 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).
This final rule also does not have a substantial direct effect on one
or more Indian tribes, on the relationship between the Federal
Government and Indian tribes, or on the distribution of power and
responsibilities between the Federal Government and Indian tribes, as
specified by Executive Order 13175 (59 FR 22951, November 9, 2000), nor
will it have substantial direct effects on the States, on the
relationship between the national government and the States, or on the
distribution of power and responsibilities among the various levels of
government, as specified in Executive Order 13132 (64 FR 43255, August
10, 1999), because it affects the status of a geographical area, does
not impose any new requirements on sources, or allow the state to avoid
adopting or implementing other requirements, and does not alter the
relationship or the distribution of power and responsibilities
established in the Clean Air Act. This final rule also is not subject
to Executive Order 13045 (62 FR 19885, April 23, 1997), because it
approves a state rule implementing a Federal standard. In reviewing SIP
submissions, EPA's role is to approve state choices, provided that they
meet the criteria of the Clean Air Act. In this context, in the absence
of a prior existing requirement for the State to use voluntary
consensus standards (VCS), EPA has no authority to disapprove a SIP
submission for failure to use VCS. It would thus be inconsistent with
applicable law for EPA, when it reviews a SIP submission; to use VCS in
place of a SIP submission that otherwise satisfies the provisions of
the Clean Air Act. Redesignation is an action that affects the status
of a geographical area and does not impose any new requirements on
sources. Thus, the requirements of section 12(d) of the National
Technology Transfer and Advancement Act of 1995 (15 U.S.C. 272 note) do
not apply. As required by section 3 of Executive Order 12988 (61 FR
4729, February 7, 1996), in issuing this final rule, EPA has taken the
necessary steps to eliminate drafting errors and ambiguity, minimize
potential litigation, and provide a clear legal standard for affected
conduct. EPA has complied with Executive Order 12630 (53 FR 8859, March
15, 1988) by examining the takings implications of the rule in
accordance with the ``Attorney General's Supplemental Guidelines for
the Evaluation of Risk and Avoidance of Unanticipated Takings'' issued
under the executive order.

B. Submission to Congress and the Comptroller General

The Congressional Review Act, 5 U.S.C. 801 et seq., as added by the
Small Business Regulatory Enforcement Fairness Act of 1996, generally
provides that before a rule may take effect, the agency promulgating
the rule must submit a rule report, which includes a copy of the rule,
to each House of the Congress and to the Comptroller General of the
United States. EPA will submit a report containing this rule and other
required information to the U.S. Senate, the U.S. House of
Representatives, and the Comptroller General of the United States prior
to publication of the rule in

[[Page 27063]]

the Federal Register. This rule is not a ``major rule'' as defined by 5
U.S.C. 804(2).

C. Petitions for Judicial Review

Under section 307(b)(1) of the Clean Air Act, petitions for
judicial review of this action must be filed in the United States Court
of Appeals for the appropriate circuit by July 13, 2007. Filing a
petition for reconsideration by the Administrator of this final rule
does not affect the finality of this rule for the purposes of judicial
review nor does it extend the time within which a petition for judicial
review may be filed, and shall not postpone the effectiveness of such
rule or action.
This action, to approve the redesignation request, maintenance plan
and adequacy determination for MVEBs for Weirton, may not be challenged
later in proceedings to enforce its requirements. (See section 307(b)(2).)

List of Subjects

40 CFR Part 52

Environmental protection, Air pollution control, Intergovernmental
relations, Ozone, Nitrogen dioxide, Reporting and recordkeeping
requirements, Volatile organic compounds.

40 CFR Part 81

Environmental protection, Air pollution control, National parks,
Wilderness areas.

Dated: May 4, 2007.
James W. Newsom,
Acting Regional Administrator, Region III.

• 40 CFR parts 52 and 81 are amended as follows:

PART 52--[AMENDED]

• 1. The authority citation for part 52 continues to read as follows:

Authority: 42 U.S.C. 7401 et seq.

Subpart XX--West Virginia

• 2. In Sec. 52.2520, the table in paragraph (e) is amended by adding an
entry for the 8-Hour Ozone Maintenance Plan, Steubenville-Weirton, OH-
WV Area at the end of the table to read as follows:

Sec. 52.2520 Identification of plan.

* * * * *
(e) * * *

--------------------------------------------------------------------------------------------------------------------------------------------------------
Applicable geographic State
Name of non-regulatory SIP revision area submittal date EPA approval date Additional explanation
--------------------------------------------------------------------------------------------------------------------------------------------------------

* * * * * * *
8-Hour Ozone Maintenance Plan for the Brooke and Hancock 08/03/06 05/14/07 [Insert page number where ..................................
Steubenville-Weirton, OH-WV Area. Counties. the document begins].
--------------------------------------------------------------------------------------------------------------------------------------------------------

PART 81--[AMENDED]

• 3. The authority citation for part 81 continues to read as follows:

Authority: 42 U.S.C. 7401 et seq.

• 4. In Sec. 81.349 the table entitled ``West Virginia--Ozone (8-Hour
Standard)'' is amended by revising the entry for the Steubenville-
Weirton, OH-WV Area to read as follows:

Sec. 81.349 West Virginia

* * * * *

West Virginia--Ozone (8-Hour Standard)
--------------------------------------------------------------------------------------------------------------------------------------------------------
Designation \a\ Category/Classification
Designated area ---------------------------------------------------------------------------------------------------------------------
Date\1\ Type Date \1\ Type
--------------------------------------------------------------------------------------------------------------------------------------------------------

* * * * * * *
--------------------------------------------------------------------------------------------------------------------------------------------------------
Steubenville-Weirton, OH-WV Area
--------------------------------------------------------------------------------------------------------------------------------------------------------
Brooke County..................... 05/14/07 Attainment......................
Hancock County.................... 05/14/07 Attainment......................

* * * * * * *
--------------------------------------------------------------------------------------------------------------------------------------------------------
\a\ Includes Indian country located in each county or area except otherwise noted.
\1\ This date is June 15, 2004, unless otherwise noted.

* * * * *
[FR Doc. E7-9208 Filed 5-11-07; 8:45 am]
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Approval and Promulgation of Air Quality Implementation Plans; West Virginia; Redesignation of the Weirton, WV Portion of the Steubenville-Weirton, OH-WV 8-Hour Ozone Nonattainment Area to Attainment and Approval of the Area's Maintenance Plan

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