Approval and Promulgation of Air Quality Implementation Plans; Pennsylvania; Redesignation of the York (York and Adams Counties) 8- Hour Ozone Nonattainment Area to Attainment and Approval of the Area's Maintenance Plan and 2002 Base Year Inventory
[Federal Register: October 24, 2007 (Volume 72, Number 205)]
[Proposed Rules]
[Page 60296-60307]
From the Federal Register Online via GPO Access [wais.access.gpo.gov]
[DOCID:fr24oc07-27]
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ENVIRONMENTAL PROTECTION AGENCY
40 CFR Parts 52 and 81
[EPA-R03-OAR-2007-0625; FRL-8485-9]
Approval and Promulgation of Air Quality Implementation Plans;
Pennsylvania; Redesignation of the York (York and Adams Counties) 8-
Hour Ozone Nonattainment Area to Attainment and Approval of the Area's
Maintenance Plan and 2002 Base Year Inventory
AGENCY: Environmental Protection Agency (EPA).
ACTION: Proposed rule.
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SUMMARY: EPA is proposing to approve a redesignation request and State
Implementation Plan (SIP) revisions submitted by the Commonwealth of
Pennsylvania. The Pennsylvania Department of Environmental Protection
(PADEP) is requesting that the York (York and Adams Counties) ozone
nonattainment area (York Area) be redesignated as attainment for the 8-
hour ozone national ambient air quality standard (NAAQS). EPA is
proposing to approve the ozone redesignation request for the York Area.
In conjunction with its redesignation request, the Commonwealth
submitted a SIP revision consisting of a maintenance plan for the York
Area that provides for continued attainment of the 8-hour ozone NAAQS
for at least 10 years after redesignation. EPA is proposing to make a
determination that the York Area has attained the 8-hour ozone NAAQS,
based upon three years of complete, quality-assured ambient air quality
monitoring data for 2004-2006. EPA's proposed approval of the 8-hour
ozone redesignation request is based on its determination that the York
Area has met the criteria for redesignation to attainment specified in
the Clean Air Act (CAA). In addition, the Commonwealth has also
submitted a 2002 base year inventory for the York Area which EPA is
proposing to approve as a SIP revision. EPA is also providing
information on the status of its adequacy determination for the motor
vehicle emission budgets (MVEBs) that are identified in the maintenance
plan for the York Area for purposes of transportation conformity, which
EPA is also proposing to approve. EPA is proposing approval of the
redesignation request and of the maintenance plan and 2002 base year
inventory SIP revisions in accordance with the requirements of the CAA.
DATES: Written comments must be received on or before November 23, 2007.
ADDRESSES: Submit your comments, identified by Docket ID Number EPA-
R03-OAR-2007-0625 by one of the following methods:
A. http://www.regulations.gov. Follow the on-line instructions for
submitting comments.
B. E-mail: powers.marilyn@epa.gov.
C. Mail: EPA-R03-OAR-2007-0625, Marilyn Powers, Acting Chief, Air
Quality Planning Branch, Mailcode 3AP21, U.S. Environmental Protection
Agency, Region III, 1650 Arch Street, Philadelphia, Pennsylvania 19103.
D. Hand Delivery: At the previously-listed EPA Region III address.
Such deliveries are only accepted during the Docket's normal hours of
operation, and special arrangements should be made for deliveries of
boxed information.
Instructions: Direct your comments to Docket ID No. EPA-R03-OAR-
2007-0625. EPA's policy is that all comments received will be included
in the public docket without change, and may be made available online
at http://www.regulations.gov, including any personal information provided,
unless the comment includes information claimed to be Confidential
Business Information (CBI) or other information whose disclosure is
restricted by statute. Do not submit information that you consider to
be CBI or otherwise protected through http://www.regulations.gov or e-mail.
The http://www.regulations.gov Web site is an ``anonymous access'' system,
which means EPA will not know your identity or contact information
unless you provide it in the body of your comment. If you send an e-mail
comment directly to EPA without going through http://www.regulations.gov,
your e-mail address will be automatically captured and included as part
of the comment that is placed in the public docket and made available
on the Internet. If you submit an electronic comment, EPA recommends
that you include your name and other contact information in the body of
your comment and with any disk or CD-ROM you submit. If EPA cannot read
your comment due to technical difficulties and cannot contact you for
clarification, EPA may not be able to consider your comment. Electronic
files should avoid the use of special characters, any form of
encryption, and be free of any defects or viruses.
Docket: All documents in the electronic docket are listed in the
http://www.regulations.gov index. Although listed in the index, some
information is not publicly available, i.e., 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 in http://www.regulations.gov
or in hard copy 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 Pennsylvania Department of Environmental
Protection Bureau of Air Quality Control, P.O. Box 8468, 400 Market
Street, Harrisburg, Pennsylvania 17105.
FOR FURTHER INFORMATION CONTACT: LaKeshia Robertson, (215) 814-2113, or
by e-mail at robertson.lakeshia@epa.gov.
SUPPLEMENTARY INFORMATION: Throughout this document whenever ``we,''
``us,'' or ``our'' is used, we mean EPA.
Table of Contents
I. What Are the Actions EPA Is Proposing To Take?
II. What Is the Background for These Proposed Actions?
III. What Are the Criteria for Redesignation to Attainment?
IV. Why Is EPA Taking These Actions?
V. What Would Be the Effect of These Actions?
VI. What Is EPA's Analysis of the Commonwealth's Request?
VII. Are the Motor Vehicle Emissions Budgets Established and
Identified in the York Area Maintenance Plan Adequate and Approvable?
VIII. Proposed Actions
IX. Statutory and Executive Order Reviews
I. What Are the Actions EPA Is Proposing To Take?
On June 14, 2007, PADEP formally submitted a request to redesignate
the York Area from nonattainment to attainment of the 8-hour NAAQS for
ozone. Concurrently, Pennsylvania submitted a maintenance plan for the
York Area as a SIP revision to ensure continued attainment in the area
over the next 11 years. Pennsylvania also submitted a 2002 base year
inventory for the York Area as a SIP revision. The York Area is
currently designated a basic 8-hour ozone nonattainment area. EPA is
proposing to determine that the York Area has attained the 8-hour ozone
NAAQS and that it has met the requirements for redesignation pursuant
to section 107(d)(3)(E) of the CAA. EPA is, therefore, proposing to
approve the redesignation request to change the designation of the York
Area from nonattainment to attainment for the 8-
[[Page 60297]]
hour ozone NAAQS. EPA is also proposing to approve the York Area
maintenance plan as a SIP revision (such approval being one of the CAA
criteria for redesignation to attainment status). The maintenance plan
is designed to ensure continued attainment in the York Area for the
next 11 years. EPA is also proposing to approve the 2002 base year
inventory for the York Area as a SIP revision. Additionally, EPA is
announcing its action on the adequacy process for the MVEBs identified
in the York maintenance plan, and proposing to approve the MVEBs
identified for volatile organic compounds (VOCs) and nitrogen oxides
(NOX) for the York Area for transportation conformity purposes.
II. What Is the Background for These Proposed Actions?
A. General
Ground-level ozone is not emitted directly by sources. Rather,
emissions of NOX and VOC react in the presence of sunlight
to form ground-level ozone. The air pollutants NOX and VOC
are referred to as precursors of ozone. The CAA establishes a process
for air quality management through the attainment and maintenance of
the NAAQS.
On July 18, 1997, EPA promulgated a revised 8-hour ozone standard
of 0.08 parts per million (ppm). This new standard is more stringent
than the previous 1-hour standard. EPA designated, as nonattainment,
any area violating the 8-hour ozone NAAQS based on the air quality data
for the three years of 2001-2003. These were the most recent three
years of data at the time EPA designated 8-hour areas. The York Area
was designated a basic 8-hour ozone nonattainment area in a Federal
Register notice signed on April 15, 2004 and published on April 30,
2004 (69 FR 23857), based on its exceedance of the 8-hour health-based
standard for ozone during the years 2001-2003.
On April 30, 2004, EPA issued a final rule (69 FR 23951, 23996) to
revoke the 1-hour ozone NAAQS in the York Area (as well as most other
areas of the country) effective June 15, 2005. See, 40 CFR 50.9(b); 69
FR at 23966 (April 30, 2004); and 70 FR 44470 (August 3, 2005).
However, on December 22, 2006, the U.S. Court of Appeals for the
District of Columbia Circuit vacated EPA's Phase 1 Implementation Rule
for the 8-hour Ozone Standard. (69 FR 23951, April 30, 2004). South
Coast Air Quality Management Dist. v. EPA, 472 F.3d 882 (D.C. Cir.
2006) (hereafter ``South Coast''). On June 8, 2007, in South Coast Air
Quality Management Dist. v. EPA, Docket No. 04-1201, in response to
several petitions for rehearing, the D.C. Circuit clarified that the
Phase 1 Rule was vacated only with regard to those parts of the rule
that had been successfully challenged. Therefore, the Phase 1 Rule
provisions related to classifications for areas currently classified
under subpart 2 of Title I, part D of the CAA as 8-hour nonattainment
areas, the 8-hour attainment dates and the timing for emissions
reductions needed for attainment of the 8-hour ozone NAAQS remain
effective. The June 8 decision left intact the Court's rejection of
EPA's reasons for implementing the 8-hour standard in certain
nonattainment areas under Subpart 1 in lieu of subpart 2. By limiting
the vacatur, the Court let stand EPA's revocation of the 1-hour
standard and those anti-backsliding provisions of the Phase 1 Rule that
had not been successfully challenged. The June 8 decision reaffirmed
the December 22, 2006 decision that EPA had improperly failed to retain
measures required for 1-hour nonattainment areas under the anti-
backsliding provisions of the regulations: (1) Nonattainment area New
Source Review (NSR) requirements based on an area's 1-hour
nonattainment classification; (2) Section 185 penalty fees for 1-hour
severe or extreme nonattainment areas; (3) measures to be implemented
pursuant to section 172(c)(9) or 182(c)(9) of the CAA, on the
contingency of an area not making reasonable further progress toward
attainment of the 1-hour NAAQS, or for failure to attain that NAAQS.
In addition, the June 8 decision clarified that the Court's
reference to conformity requirements was limited to requiring the
continued use of 1-hour motor vehicle emissions budgets until 8-hour
budgets were available for 8-hour conformity determinations, which is
already required under EPA's conformity regulation. The Court thus
clarified that 1-hour conformity determinations are not required for
anti-backsliding purposes. The Court upheld EPA's authority to revoke
the 1-hour standard provided there were adequate anti-backsliding
provisions. Elsewhere in this document, mainly in section VI. B. ``The
York Area Has Met All Applicable Requirements Under Section 110 and
Part D of the CAA and Has a Fully Approved SIP Under Section 110(k) of
the CAA,'' EPA discusses its rationale why the decision in South Coast
is not an impediment to redesignating the York Area to attainment of
the 8-hour ozone NAAQS.
The CAA, Title I, Part D, contains two sets of provisions--subpart
1 and subpart 2--that address planning and control requirements for
nonattainment areas. Subpart 1 (which EPA refers to as ``basic''
nonattainment) contains general, less prescriptive requirements for
nonattainment areas for any pollutant--including ozone--governed by a
NAAQS. Subpart 2 (which EPA refers to as ``classified'' nonattainment)
provides more specific requirements for ozone nonattainment areas. In
2004, the York Area was classified a basic 8-hour ozone nonattainment
area based on air quality monitoring data from 2001-2003. Therefore,
the York Area is subject to the requirements of subpart 1 of Part D.
Under 40 CFR part 50, the 8-hour ozone standard is attained when
the 3-year average of the annual fourth-highest daily maximum 8-hour
average ambient air quality ozone concentrations is less than or equal
to 0.08 ppm (i.e., 0.084 ppm when rounding is considered). See 69 FR
23857 (April 30, 2004) for further information. Ambient air quality
monitoring data for the 3-year period must meet data completeness
requirements. The data completeness requirements are met when the
average percent of days with valid ambient monitoring data is greater
than 90 percent, and no single year has less than 75 percent data
completeness as determined in Appendix I of 40 CFR part 50. The ozone
monitoring data indicates that the York Area has a design value of
0.081 ppm for the 3-year period of 2004-2006, using complete, quality-
assured data. Therefore, the ambient ozone data for the York Area
indicates no violations of the 8-hour ozone standard.
B. The York Area
The York Area consists of York and Adams Counties, Pennsylvania.
Prior to its designation as an 8-hour ozone nonattainment area, the
York Area was a marginal 1-hour ozone nonattainment area, and
therefore, was subject to requirements for marginal nonattainment areas
pursuant to section 182(a) of the CAA. See 56 FR 56694 (November 6,
1991). EPA determined that the York Area has attained the 1-hour ozone
NAAQS by the November 15, 1993 attainment date (60 FR 3349, January 17,
1995).
On June 14, 2007, PADEP requested that the York Area be
redesignated to attainment for the 8-hour ozone standard. The
redesignation request included three years of complete, quality-assured
data for the period of 2004-2006, indicating that the 8-hour NAAQS for
ozone had been achieved in the York Area. The data satisfies the CAA
requirements that the 3-year
[[Page 60298]]
average of the annual fourth-highest daily maximum 8-hour average ozone
concentration (commonly referred to as the area's design value), must
be less than or equal to 0.08 ppm (i.e., 0.084 ppm when rounding is
considered). Under the CAA, a nonattainment area may be redesignated if
sufficient complete, quality-assured data is available to determine
that the area has attained the standard and the area meets the other
CAA redesignation requirements set forth in section 107(d)(3)(E).
III. What Are the Criteria for Redesignation to Attainment?
The CAA provides the requirements for redesignating a nonattainment
area to attainment. Specifically, section 107(d)(3)(E) of the CAA,
allows for redesignation, providing that:
(1) EPA determines that the area has attained the applicable NAAQS;
(2) EPA has fully approved the applicable implementation plan for
the area under section 110(k);
(3) EPA determines that the improvement in air quality is due to
permanent and enforceable reductions in emissions resulting from
implementation of the applicable SIP and applicable Federal air
pollutant control regulations and other permanent and enforceable
reductions;
(4) EPA has fully approved a maintenance plan for the area as
meeting the requirements of section 175A; and
(5) The State containing such area has met all requirements
applicable to the area under section 110 and Part D.
EPA provided guidance on redesignations in the General Preamble for
the Implementation of Title I of the CAA Amendments of 1990, on April
16, 1992 (57 FR 13498), and supplemented this guidance on April 28,
1992 (57 FR 18070). EPA has provided further guidance on processing
redesignation requests in the following documents:
• ``Ozone and Carbon Monoxide Design Value Calculations,''
Memorandum from Bill Laxton, June 18, 1990;
• ``Maintenance Plans for Redesignation of Ozone and Carbon
Monoxide Nonattainment Areas,'' Memorandum from G.T. Helms, Chief,
Ozone/Carbon Monoxide Programs Branch, April 30, 1992;
• ``Contingency Measures for Ozone and Carbon Monoxide (CO)
Redesignations,'' Memorandum from G.T. Helms, Chief, Ozone/Carbon
Monoxide Programs Branch, June 1, 1992;
• ``Procedures for Processing Requests to Redesignate Areas
to Attainment,'' Memorandum from John Calcagni, Director, Air Quality
Management Division, September 4, 1992;
• ``State Implementation Plan (SIP) Actions Submitted in
Response to Clean Air Act (Act) Deadlines,'' Memorandum from John
Calcagni, Director, Air Quality Management Division, October 28, 1992;
• ``Technical Support Documents (TSDs) for Redesignation
Ozone and Carbon Monoxide (CO) Nonattainment Areas,'' Memorandum from
G.T. Helms, Chief, Ozone/Carbon Monoxide Programs Branch, August 17, 1993;
• ``State Implementation Plan (SIP) Requirements for Areas
Submitting Requests for Redesignation to Attainment of the Ozone and
Carbon Monoxide (CO) National Ambient Air Quality Standards (NAAQS) on
or after November 15, 1992,'' Memorandum from Michael H. Shapiro,
Acting Assistant Administrator for Air and Radiation, September 17, 1993;
• Memorandum from D. Kent Berry, Acting Director, Air
Quality Management Division, to Air Division Directors, Regions 1-10,
``Use of Actual Emissions in Maintenance Demonstrations for Ozone and
CO Nonattainment Areas,'' dated November 30, 1993;
• ``Part D New Source Review (part D NSR) Requirements for
Areas Requesting Redesignation to Attainment,'' Memorandum from Mary D.
Nichols, Assistant Administrator for Air and Radiation, October 14,
1994; and
• ``Reasonable Further Progress, Attainment Demonstration,
and Related Requirements for Ozone Nonattainment Areas Meeting the
Ozone National Ambient Air Quality Standard,'' Memorandum from John S.
Seitz, Director, Office of Air Quality Planning and Standards, May 10, 1995.
IV. Why Is EPA Taking These Actions?
On June 14, 2007, PADEP requested redesignation of the York Area to
attainment for the 8-hour ozone standard. On June 14, 2007, PADEP
submitted a maintenance plan for the York Area as a SIP revision, to
ensure continued attainment of the 8-hour ozone NAAQS over the next 11
years, until 2018. PADEP also submitted a 2002 base year inventory
concurrently with its maintenance plan as a SIP revision. EPA has
determined that the York Area has attained the 8-hour ozone standard
and has met the requirements for redesignation set forth in section
107(d)(3)(E).
V. What Would Be the Effect of These Actions?
Approval of the redesignation request would change the official
designation of the York Area from nonattainment to attainment for the
8-hour ozone NAAQS found at 40 CFR part 81. It would also incorporate
into the Pennsylvania SIP a 2002 base year inventory and a maintenance
plan ensuring continued attainment of the 8-hour ozone NAAQS in the
York Area for the next 11 years, until 2018. The maintenance plan
includes contingency measures to remedy any future violations of the 8-
hour NAAQS (should they occur), and identifies the NOX and
VOC MVEBs for transportation conformity purposes for the years 2009 and
2018. These MVEBs are displayed in the following table:
Table 1.--Motor Vehicle Emissions Budgets in Tons per Summer Day (tpsd)
------------------------------------------------------------------------
Year VOC NOX
------------------------------------------------------------------------
2009.................................................. 15.9 22.8
2018.................................................. 9.0 10.0
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VI. What Is EPA's Analysis of the Commonwealth's Request?
EPA is proposing to determine that the York Area has attained the
8-hour ozone standard and that all other redesignation criteria have
been met. The following is a description of how the PADEP's June 14,
2007 submittal satisfies the requirements of section 107(d)(3)(E) of
the CAA.
A. The York Area Has Attained the Ozone NAAQS
EPA is proposing to determine that the York Area has attained the
8-hour ozone NAAQS. For ozone, an area may be considered to be
attaining the 8-hour ozone NAAQS if there are no violations, as
determined in accordance with 40 CFR 50.10 and Appendix I of part 50,
based on three complete, consecutive calendar years of quality-assured
air quality monitoring data. To attain this standard, the design value,
which is the 3-year average of the fourth-highest daily maximum 8-hour
average ozone concentrations, measured at each monitor within the area
over each year, must not exceed the ozone standard of 0.08 ppm. Based
on the rounding convention described in 40 CFR part 50, Appendix I, the
standard is attained if the design value is 0.084 ppm or below. The
data must be collected and quality-assured in accordance with 40 CFR
part 58, and recorded in the Air Quality System (AQS). The monitors
generally should have remained at the same
[[Page 60299]]
location for the duration of the monitoring period required for
demonstrating attainment.
In the York Area, there are two ozone monitors, located in York
County (York) and another in Adams County (Biglerville) that measures
air quality with respect to ozone. As part of its redesignation
request, Pennsylvania referenced ozone monitoring data for the years
2004-2006 for the York Area. This data has been quality assured and is
recorded in the AQS. PADEP uses the AQS as the permanent database to
maintain its data and quality assures the data transfers and content
for accuracy. The fourth-highest 8-hour daily maximum concentrations,
along with the three-year average are summarized in Table 2.
Table 2.--York Area Fourth Highest 8-Hour Average Values
------------------------------------------------------------------------
Annual 4th highest reading
(ppm)
Monitor/County/AIRS ID --------------------------------
2004 2005 2006
------------------------------------------------------------------------
York County Monitor/AQS ID 42-133-0008. .077 .089 .077
Adams County Monitor/AQS ID 42-001-0002 .072 .080 .074
------------------------------------------------------------------------
The average for the 3-year period 2004-2006 is 0.081 ppm (based on York
Monitor/AQS 42-133-0008).
The air quality data for 2004-2006 show that the York Area has
attained the standard with a design value of 0.081 ppm. The data
collected at the York Area monitor satisfies the CAA requirement that
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. PADEP's
request for redesignation for the York Area indicates that the data is
complete and was quality assured in accordance with 40 CFR part 58. In
addition, as discussed below with respect to the maintenance plan,
PADEP has committed to continue monitoring in accordance with 40 CFR
part 58. In summary, EPA has determined that the data submitted by
Pennsylvania and data taken from AQS indicate that the York Area has
attained the 8-hour ozone NAAQS.
B. The York Area Has Met All Applicable Requirements Under Section 110
and Part D of the CAA and Has a Fully Approved SIP Under Section 110(k)
of the CAA
EPA has determined that the York Area has met all SIP requirements
applicable for purposes of this redesignation under section 110 of the
CAA (General SIP Requirements) and that it meets all applicable SIP
requirements under Part D of Title I of the CAA, in accordance with
section 107(d)(3)(E)(v). In addition, EPA has determined that the SIP
is fully approved with respect to all requirements applicable for
purposes of redesignation in accordance with section 107(d)(3)(E)(ii)
of the CAA. In making these proposed determinations, EPA ascertained
which requirements are applicable to the York Area and determined that
the applicable portions of the SIP meeting these requirements are fully
approved under section 110(k) of the CAA. We note that SIPs must be
fully approved only with respect to applicable requirements.
The September 4, 1992 Calcagni memorandum (``Procedures for
Processing Requests to Redesignate Areas to Attainment,'' Memorandum
from John Calcagni, Director, Air Quality Management Division,
September 4, 1992) describes EPA's interpretation of section
107(d)(3)(E) with respect to the timing of applicable requirements.
Under this interpretation, to qualify for redesignation, States
requesting redesignation to attainment must meet only the relevant CAA
requirements that came due prior to the submittal of a complete
redesignation request. See also, Michael Shapiro memorandum, September
17, 1993, and 60 FR 12459, 12465-66 (March 7, 1995) (redesignation of
Detroit-Ann Arbor). Applicable requirements of the CAA that come due
subsequent to the area's submittal of a complete redesignation request
remain applicable until a redesignation is approved, but are not
required as a prerequisite to redesignation. Section 175A(c) of the
CAA. Sierra Club v. EPA, 375 F.3d 537 (7th Cir. 2004). See also, 68 FR
at 25424, 25427 (May 12, 2003) (redesignation of St. Louis).
This section sets forth EPA's views on the potential effect of the
Court's rulings on this proposed redesignation action. For the reasons
set forth below, EPA does not believe that the Court's rulings alter
any requirements relevant to this redesignation action so as to
preclude redesignation, and do not prevent EPA from proposing or
ultimately finalizing this redesignation. EPA believes that the Court's
December 22, 2006 and June 8, 2007 decisions impose no impediment to
moving forward with redesignation of this area to attainment, because
even in light of the Court's decisions, redesignation is appropriate
under the relevant redesignation provisions of the CAA and longstanding
policies regarding redesignation requests.
1. Section 110 General SIP Requirements
Section 110(a)(2) of Title I of the CAA delineates the general
requirements for a SIP, which include enforceable emissions limitations
and other control measures, means, or techniques, provisions for the
establishment and operation of appropriate devices necessary to collect
data on ambient air quality, and programs to enforce the limitations.
The general SIP elements and requirements set forth in section
110(a)(2) include, but are not limited to the following:
• Submittal of a SIP that has been adopted by the State
after reasonable public notice and hearing;
• Provisions for establishment and operation of appropriate
procedures needed to monitor ambient air quality;
• Implementation of a source permit program; provisions for
the implementation of part C requirements (Prevention of Significant
Deterioration (PSD));
• Provisions for the implementation of part D requirements
for NSR permit programs;
• Provisions for air pollution modeling; and
• Provisions for public and local agency participation in
planning and emission control rule development.
Section 110(a)(2)(D) requires that SIPs contain certain measures to
prevent sources in a State from significantly contributing to air
quality problems in another State. To implement this provision, EPA has
required certain states to establish programs to address transport of
air pollutants in accordance with the NOX SIP Call, October
27, 1998 (63 FR 57356), amendments to the NOX 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). However,
[[Page 60300]]
the section 110(a)(2)(D) requirements for a State are not linked with a
particular nonattainment area's designation and classification in that
State. EPA believes that the requirements linked with a particular
nonattainment area's designation and classifications are the relevant
measures to evaluate in reviewing a redesignation request. The
transport SIP submittal requirements, where applicable, continue to
apply to a state regardless of the designation of any one particular
area in the State. Thus, we do believe that these requirements are
applicable requirements for purposes of redesignation.
In addition, EPA believes that the other section 110 elements not
connected with nonattainment plan submissions and not linked with an
area's attainment status are not applicable requirements for purposes
of redesignation. The York Area will still be subject to these
requirements after it is redesignated. The section 110 and Part D
requirements, which are linked with a particular area's designation and
classification, are the relevant measures to evaluate in reviewing a
redesignation request. This policy is consistent with EPA's existing
policy on applicability of conformity (i.e., for redesignations) and
oxygenated fuels requirement. See, Reading, Pennsylvania, proposed and
final rulemakings (61 FR 53174, October 10, 1996), (62 FR 24826, May 7,
1997); Cleveland-Akron-Lorain, Ohio final rulemaking (61 FR 20458, May
7, 1996); and Tampa, Florida, final rulemaking (60 FR 62748, December
7, 1995). See also, the discussion on this issue in the Cincinnati
redesignation (65 FR at 37890, June 19, 2000), and in the Pittsburgh
redesignation (66 FR at 53099, October 19, 2001). Similarly, with
respect to the NOX SIP Call rules, EPA noted in its Phase 1
Final Rule to Implement the 8-hour Ozone NAAQS, that the NOX
SIP Call rules are not ``an `applicable requirement' for purposes of
section 110(1) because the NOX rules apply regardless of an
area's attainment or nonattainment status for the 8-hour (or the 1-
hour) NAAQS.'' 69 FR 23951, 23983 (April 30, 2004).
EPA believes that section 110 elements not linked to the area's
nonattainment status are not applicable for purposes of redesignation.
As we explain later in this notice, no Part D requirements applicable
for purposes of redesignation under the 8-hour standard became due for
the York Area prior to the submission of the redesignation request.
Because the Pennsylvania SIP satisfies all of the applicable
general SIP elements and requirements set forth in section 100(a)(2),
EPA concludes that Pennsylvania has satisfied the criterion of section
107(d)(3)(e) regarding section 110 of the CAA.
2. Part D Nonattainment Requirements Under the 8-Hour Standard
Pursuant to an April 30, 2004, final rule (69 FR 23951), the York
Area was designated a basic nonattainment area under subpart 1 for the
8-hour ozone standard. Sections 172-176 of the CAA, found in subpart 1
of Part D, set forth the basic nonattainment requirements applicable to
all nonattainment areas. Section 182 of the CAA, found in subpart 2 of
Part D, establishes additional specific requirements depending on the
area's nonattainment classification.
With respect to the 8-hour standard, the court's ruling rejected
EPA's reasons for classifying areas under subpart 1 for the 8-hour
standard, and remanded that matter to the Agency. Consequently, it is
possible that this area could, during a remand to EPA, be reclassified
under subpart 2. Although any future decision by EPA to classify this
area under subpart 2 might trigger additional future requirements for
the area, EPA believes that this does not mean that redesignation of
the area cannot now go forward. This belief is based upon: (1) EPA's
longstanding policy of evaluating redesignation requests in accordance
with the requirements due at the time the request is submitted; and (2)
consideration of the inequity of applying retroactively any
requirements that might in the future be applied.
At the time the redesignation request was submitted, the York Area
was classified under subpart 1 and was obligated to meet subpart 1
requirements. Under EPA's longstanding interpretation of section
107(d)(3)(E) of the CAA, to qualify for redesignation, states
requesting redesignation to attainment must meet only the relevant SIP
requirements that came due prior to the submittal of a complete
redesignation request. See, September 4, 1992 Calcagni memorandum
(``Procedures for Processing Requests to Redesignate Areas to
Attainment,'' Memorandum from John Calcagni, Director, Air Quality
Management Division). See also, Michael Shapiro Memorandum, September
17, 1993, and 60 FR 12459, 12465-66 (March 7, 1995) (Redesignation of
Detroit-Ann Arbor); Sierra Club v. EPA, 375 F.3d 537 (7th Cir. 2004),
which upheld this interpretation; 68 FR 25418, 25424, 25427 (May 12,
2003) (redesignation of St. Louis).
Moreover, it would be inequitable to retroactively apply any new
SIP requirements that were not applicable at the time the request was
submitted. The D.C. Circuit has recognized the inequity in such
retroactive rulemaking. See, Sierra Club v. Whitman, 285 F. 3d 63 (D.C.
Cir. 2002), in which the D.C. Circuit upheld a District Court's ruling
refusing to make retroactive an EPA determination of nonattainment that
was past the statutory due date. Such determination would have resulted
in the imposition of additional requirements on that area. The Court
stated: ``Although EPA failed to make the nonattainment determination
within the statutory time frame, Sierra Club's proposed solution only
makes the situation worse. Retroactive relief would likely impose large
costs on the States, which would face fines and suits for not
implementing air pollution prevention plans in 1997, even though they
were not on notice at the time.'' Id. at 68. Similarly, here it would
be unfair to penalize the area by applying to it for purposes of
redesignation, additional SIP requirements under subpart 2 that were
not in effect at the time it submitted its redesignation request.
With respect to 8-hour subpart 2 requirements, if the York Area
initially had been classified under subpart 2, the first two Part D
subpart 2 requirements applicable to the York Area under section 182(a)
of the CAA would be a base year inventory requirement pursuant to
section 182(a)(1) of the CAA, and the emissions statement requirement
pursuant to section 182(a)(3)(B).
As stated previously, these requirements are not due for purposes
of redesignation of the York Area, but nevertheless, Pennsylvania
already has in its approved SIP, an emissions statement rule for the 1-
hour standard that covers all portions of the designated 8-hour
nonattainment area, and that satisfies the emissions statement
requirement for the 8-hour standard. See, 25 Pa. Code 135.21(a)(1)
codified at 40 CFR 52.2020; 60 FR 2881, January 12, 1995. With respect
to the base year inventory requirement, in this notice of proposed
rulemaking, EPA is proposing to approve the 2002 base year inventory
for the York Area, which was submitted on June 14, 2007, concurrently
with its maintenance plan, into the Pennsylvania SIP. EPA is proposing
to approve the 2002 base year inventory as fulfilling the requirements,
if necessary, of both sections 182(a)(1) and 172(c)(3) of the CAA. A
detailed evaluation of Pennsylvania's 2002 base year inventory for the
York Area can be found in a Technical Support Document (TSD)
[[Page 60301]]
prepared by EPA for this rulemaking. EPA has determined that the
emission inventory and the emissions statement for the York Area have
been satisfied.
In addition to the fact that Part D requirements applicable for
purposes of redesignation did not become due prior to submission of the
redesignation request, EPA believes that the general conformity and NSR
requirements do not require approval prior to redesignation.
With respect to section 176, Conformity Requirements, section
176(c) of the CAA requires states to establish criteria and procedures
to ensure that Federally-supported or funded projects conform to the
air quality planning goals in the applicable SIP. The requirement to
determine conformity applies to transportation plans, programs, and
projects developed, funded or approved under Title 23 U.S.C. and the
Federal Transit Act (``transportation conformity'') as well as to all
other Federally supported or funded projects (``general conformity'').
State conformity revisions must be consistent with Federal conformity
regulations relating to consultation, enforcement and enforceability
that the CAA required the EPA to promulgate. EPA believes it is
reasonable to interpret the conformity SIP requirements as not applying
for purposes of evaluating the redesignation request under section
107(d) since State conformity rules are still required after
redesignation and Federal conformity rules apply where State rules have
not been approved. See, Wall v. EPA, 265 F. 3d 426, 438-440 (6th Cir.
2001), upholding this interpretation. See also, 60 FR 62748 (December
7, 1995).
In the case of the York Area, EPA has also determined that before
being redesignated, the York Area need not comply with the requirement
that an NSR program be approved prior to redesignation. EPA has also
determined that areas being redesignated need not comply with the
requirement that an NSR program be approved prior to redesignation,
provided that the area demonstrates maintenance of the standard without
Part D NSR in effect. The rationale for this position is described in a
memorandum from Mary Nichols, Assistant Administrator for Air and
Radiation, dated October 14, 1994, entitled ``Part D NSR Requirements
of Areas Requesting Redesignation to Attainment.'' Normally, a State's
Prevention of Significant Deterioration (PSD) program will become
effective in the area immediately upon redesignation to attainment. See
the more detailed explanations in the following redesignation
rulemakings: Detroit, MI (60 FR 12467-12468, March 7, 1995); Cleveland-
Akron-Lorrain, OH (61 FR 20458, 20469-70, May 7, 1996); Louisville, KY
(66 FR 53665, 53669, October 23, 2001); Grand Rapids, MI (61 FR 31831,
31836-31837, June 21, 1996). In the case of the York Area, the Chapter
127 Part D NSR regulations in the Pennsylvania SIP (codified at 40 CFR
52.2020(c)(1)) explicitly apply the requirements for NSR in section 184
of the CAA to ozone attainment areas within the ozone transport region
(OTR). The OTR NSR requirements are more stringent than that required
for a marginal or basic ozone nonattainment area. On October 19, 2001
(66 FR 53094), EPA fully approved Pennsylvania's NSR SIP revision
consisting of Pennsylvania's Chapter 127 Part D NSR regulations that
cover the York Area.
EPA has also interpreted the section 184 OTR requirements,
including the NSR program, as not being applicable for purposes of
redesignation. The rationale for this is based on two considerations.
First, the requirement to submit SIP revisions for the section 184
requirements continues to apply to areas in the OTR after redesignation
to attainment. Therefore, the State remains obligated to have NSR, as
well as reasonably available control technology (RACT), and Vehicle
Inspection and Maintenance (I/M) programs even after redesignation.
Second, the section 184 control measures are region-wide requirements
and do not apply to the York Area by virtue of the area's designation
and classification. See, 61 FR 53174, 53175-53176 (October 10, 1996)
and 62 FR 24826, 24830-32 (May 7, 1997).
3. Part D Nonattainment Area Requirements Under the 1-Hour Standard
In its June 8, 2007 decision the Court limited its vacatur so as to
uphold those provisions of the anti-backsliding requirements that were
not successfully challenged. Therefore the Area must meet the federal
anti-backsliding requirements, see 40 CFR 51.900, et seq.; 70 FR 30592,
30604 (May 26, 2005), which apply by virtue of the area's
classification for the 1-hour ozone NAAQS. As set forth in more detail
below, the area must also address four additional anti-backsliding
provisions identified by the Court in its decisions.
The anti-backsliding provisions at 40 CFR 51.905(a)(1) prescribe 1-
hour ozone NAAQS requirements that continue to apply after revocation
of the 1-hour ozone NAAQS to former 1-hour ozone nonattainment areas.
Section 51.905(a)(1)(i) provides that:
``The area remains subject to the obligation to adopt and implement the
applicable requirements as defined in section 51.900(f), except as
provided in paragraph (a)(1)(iii) of paragraph (b) of this section.''
Section 51.900(f), as amended by 70 FR 30592, 30604 (May 26, 2005),
states that:
``Applicable requirements means for an area the following requirements
to the extent such requirements applied to the area for the area's
classification under section 181(a)(1) of the CAA for the 1-hour NAAQS
at the time of designation for the 8-hour NAAQS.''
(1) RACT.
(2) I/M.
(3) Major source applicability cut-offs for purposes of RACT.
(4) Rate of Progress (ROP) reductions.
(5) Stage II vapor recovery.
(6) Clean fuels fleet program under section 183(c)(4) of the CAA.
(7) Clean fuels for boilers under section 182(e)(3) of the CAA.
(8) Transportation Control Measures (TCMs) during heavy traffic
hours as required by section 182(e)(4) of the CAA.
(9) Enhanced (ambient) monitoring under section 182(c)(1) of the CAA.
(10) Transportation control measures (TCMs) under section 182(c)(5)
of the CAA.
(11) Vehicle miles traveled (VMT) provisions of section 182(d)(1)
of the CAA.
(12) NOX requirements under section 182(f) of the CAA.
(13) Attainment demonstration or alternative as provided under
section 51.905(a)(1)(ii).''
Pursuant to 40 CFR 51.905(c), the York Area is subject to the
obligations set forth in 51.905(a) and 51.900(f).
Prior to its designation as an 8-hour ozone nonattainment area, the
York Area was designated a marginal nonattainment area for the 1-hour
standard. With respect to the 1-hour standard, the applicable
requirements under the anti-backsliding provisions at 40 CFR
51.905(a)(1) for the York Area are limited to the RACT and I/M programs
specified in section 182(a) of the CAA and are discussed in the
following paragraphs:
Section 182(a)(2)(A) required SIP revisions to correct or amend
RACT for sources in marginal areas, such as the York Area, that were
subject to control technique guidelines (CTGs) issued before November
15, 1990 pursuant to CAA section 108. On December 22, 1994, EPA fully
approved into the Pennsylvania SIP all corrections required under
section 182(a)(2)(A) of
[[Page 60302]]
the CAA (59 FR 65971, December 22, 1994). EPA believes that this
requirement applies only to marginal and higher classified areas under
the 1-hour NAAQS pursuant to the 1990 amendments to the CAA; therefore,
this is a one-time requirement. After an area has fulfilled the section
182(a)(2)(A) requirement for the 1-hour NAAQS, there is no requirement
under the 8-hour NAAQS.
Section 182(a)(2)(B) of the CAA relates to the savings clause for
certain I/M programs. It requires marginal areas to adopt vehicle I/M
programs. This provision was not applicable to the York Area because
this area did not have nor was required to have an I/M program before
November 15, 1990.
In addition the Court held that EPA should have retained four
additional measures in its anti-backsliding provisions: (1)
Nonattainment area NSR; (2) Section 185 penalty fees; (3) contingency
measures under section 172(c)(9) or 182(c)(9) of the CAA; and (4) 1-
hour motor vehicle emissions budgets that were yet not replaced by 8-
hour emissions budgets. These requirements are addressed below:
With respect to NSR, EPA has determined that areas being
redesignated need not have an approved nonattainment New Source Review
program, for the same reasons discussed previously with respect to the
applicable Part D requirement for the 8-hour standard.
The section 185 penalty fee requirement applies only to severe and
extreme nonattainment areas, and was never applicable in the York 1-
hour marginal nonattainment area.
With respect to the requirement for submission of contingency
measures for the 1-hour standard, section 182(a) does not require
contingency measures for marginal areas.
The conformity portion of the Court's ruling does not impact the
redesignation request for the York Area except to the extent that the
Court in its June 8 decision clarified that for those areas with 1-hour
MVEBs, anti-backsliding requires that those 1-hour budgets must be used
for 8-hour conformity determinations until replaced by 8-hour budgets.
There are no applicable 1-hour MVEBs for the York Area. (As discussed
elsewhere in this document, EPA is proposing to approve 8-hour MVEBs
for the York Area.) To meet this requirement, conformity determinations
in such areas must comply with the applicable requirements of EPA's
conformity regulations at 40 CFR Part 93. The court clarified that 1-
hour conformity determinations are not required for anti-backsliding
purposes.
Thus EPA has concluded that the York Area has met all requirements
applicable for redesignation under the 1-hour standard.
4. Transport Region Requirements
All areas in the Ozone Transport Region (OTR), both attainment and
nonattainment, are subject to additional control requirements under
section 184 for the purpose of reducing interstate transport of
emissions that may contribute to downwind ozone nonattainment. The
section 184 requirements include RACT, NSR, enhanced vehicle inspection
and maintenance (I/M), and Stage II vapor recovery or a comparable measure.
In the case of the York Area, which is located in the OTR,
nonattainment NSR will continue to be applicable after redesignation.
On October 19, 2001, EPA approved the 1-hour NSR SIP revision for the
area. See 66 FR 53094 (October 19, 2001).
EPA has also interpreted the section 184 OTR requirements,
including NSR, as not being applicable for purposes of redesignation.
Reading, PA Redesignation, 61 FR 53174, (October 10, 1996), 62 FR 24826
(May 7, 1997). The rationale for this is based on two considerations.
First, the requirement to submit SIP revisions for the section 184
requirements continues to apply to areas in the OTR after redesignation
to attainment. Therefore, the State remains obligated to have NSR, as
well as RACT, and I/M even after redesignation. Second, the section 184
control measures are region-wide requirements and do not apply to the
area by virtue of the area's nonattainment designation and
classification, and thus are properly considered not relevant to an
action changing an area's designation. See 61 FR 53174, 53175-53176
(October 10, 1996) and 62 FR 24826, 24830-24832 (May 7, 1997).
5. York Area Has a Fully Approved SIP for Purposes of Redesignation
EPA has fully approved the Pennsylvania SIP for the purposes of
this redesignation. EPA may rely on prior SIP approvals in approving a
redesignation request. Calcagni Memo, p. 3; Southwestern Pennsylvania
Growth Alliance v. Browner, 144 F. 3d 984, 989-90 (6th Cir. 1998); Wall
v. EPA, 265 F. 3d 426 (6th Cir. 2001), plus any additional measures it
may approve in conjunction with a redesignation action. See also, 68 FR
at 25425 (May 12, 2003) and citations therein.
C. The Air Quality Improvement in the York Area Is Due to Permanent and
Enforceable Reductions in Emissions Resulting From Implementation of
the SIP and Applicable Federal Air Pollution Control Regulations and
Other Permanent and Enforceable Reductions
EPA believes that the Commonwealth has demonstrated that the
observed air quality improvement in the York Area is due to permanent
and enforceable reductions in emissions resulting from implementation
of the SIP, Federal measures, and other State-adopted measures.
Emissions reductions attributable to these rules are shown in Table 3.
Table 3.--Total VOC and NOX Emissions for 2002 and 2004 in tons per summer day (tpsd)
----------------------------------------------------------------------------------------------------------------
Year Point Area Nonroad Mobile Total
----------------------------------------------------------------------------------------------------------------
Volatile Organic Compounds (VOC)
----------------------------------------------------------------------------------------------------------------
2002..................................................... 8.5 27.1 25.3 10.4 71.3
2004..................................................... 5.3 26.8 21.3 10.1 63.5
Diff. (02-04)............................................ -3.2 -0.3 -4.0 -0.3 -7.8
----------------------------------------------------------------------------------------------------------------
Nitrogen Oxides (NOX)
----------------------------------------------------------------------------------------------------------------
2002..................................................... 70.2 2.9 36.6 14.3 124.0
2004..................................................... 75.3 3.0 31.9 13.7 123.9
Diff. (02-04)............................................ 5.1 0.1 -4.7 -0.6 -0.1
----------------------------------------------------------------------------------------------------------------
[[Page 60303]]
Between 2002 and 2004, VOC emissions decreased by 7.8 tpsd, and
NOX emissions decreased by 0.1 tpsd. These reductions, and
anticipated future reductions, are due to the following permanent and
enforceable measures.
1. Stationary Point Sources
Federal NOX SIP Call (66 FR 43795, August 21, 2001).
2. Stationary Area Sources
Solvent Cleaning (68 FR 2206, January 16, 2003).
Portable Fuel Containers (69 FR 70893, December 8, 2004).
3. Highway Vehicle Sources
Federal Motor Vehicle Control Programs (FMVCP).
--Tier 1 (56 FR 25724, June 5, 1991).
--Tier 2 (65 FR 6698, February 10, 2000).
Heavy-duty Engine and Vehicle Standards (62 FR 54694, October 21,
1997, and 65 FR 59896, October 6, 2000).
National Low Emission Vehicle (NLEV) Program (PA) (64 FR 72564,
December 28, 1999).
Vehicle Emission Inspection/Maintenance Program (70 FR 58313,
October 6, 2005).
4. Non-Road Sources
Non-road Diesel (69 FR 38958, June 29, 2004).
EPA believes that permanent and enforceable emissions reductions
are the cause of the long-term improvement in ozone levels and are the
cause of the York Area achieving attainment of the 8-hour ozone standard.
D. The York Area Has a Fully Approvable Maintenance Plan Pursuant to
Section 175A of the CAA
In conjunction with its request to redesignate the York Area to
attainment status, Pennsylvania submitted a SIP revision to provide for
maintenance of the 8-hour ozone NAAQS in the York Area for at least 11
years after redesignation. The Commonwealth is requesting that EPA
approve this SIP revision as meeting the requirement of CAA 175A. Once
approved, the maintenance plan for the 8-hour ozone NAAQS will ensure
that the SIP for the York Area meets the requirements of the CAA
regarding maintenance of the applicable 8-hour ozone standard.
What Is Required in a Maintenance Plan?
Section 175 of the CAA sets forth the elements of a maintenance
plan for areas seeking redesignation from nonattainment to attainment.
Under section 175A, the plan must demonstrate continued attainment of
the applicable NAAQS for at least 10 years after approval of a
redesignation of an area to attainment. Eight years after the
redesignation, the Commonwealth must submit a revised maintenance plan
demonstrating that attainment will continue to be maintained for the 10
years following the initial 10-year period. To address the possibility
of future NAAQS violations, the maintenance plan must contain such
contingency measures, with a schedule for implementation, as EPA deems
necessary to assure prompt correction of any future 8-hour ozone
violations. Section 175A of the CAA sets forth the elements of a
maintenance plan for areas seeking redesignation from nonattainment to
attainment. The Calcagni memo provides additional guidance on the
content of a maintenance plan. An ozone maintenance plan should address
the following provisions:
(a) an attainment emissions inventory;
(b) a maintenance demonstration;
(c) a monitoring network;
(d) verification of continued attainment; and
(e) a contingency plan.
Analysis of the York Area Maintenance Plan
(a) Attainment inventory--An attainment inventory includes the
emissions during the time period associated with the monitoring data
showing attainment. PADEP determined that the appropriate attainment
inventory year is 2004. That year establishes a reasonable year within
the three-year block of 2004-2006 as a baseline and accounts for
reductions attributable to implementation of the CAA requirements to
date. The 2004 inventory is consistent with EPA guidance and is based
on actual ``typical summer day'' emissions of VOC and NOX
during 2004 and consists of a list of sources and their associated
emissions.
The 2002 and 2004 point source data was compiled from actual
sources. Pennsylvania requires owners and operators of larger
facilities to submit annual production figures and emission
calculations each year. Throughput data are multiplied by emission
factors from Factor Information Retrieval (FIRE) Data Systems and EPA's
publication series AP-42, and are based on Source Classification Codes
(SCC).
The 2002 area source data was compiled using county-level activity
data, from census numbers, from county numbers, etc. The 2004 area
source data was projected from the 2002 inventory using temporal
allocations provided by the Mid-Atlantic Regional Air Management
Association (MARAMA).
The on-road mobile source inventories for 2002 and 2004 were
compiled using MOBILE6.2 and Pennsylvania Department of Transportation
(PENNDOT) estimates for VMT. The PADEP has provided detailed data
summaries to document the calculations of mobile on-road VOC and
NOX emissions for 2002, as well as for the projection years
of 2004, 2009, and 2018 (shown in Tables 5 and 6 below).
The 2002 and 2004 emissions for the majority of non-road emission
source categories were estimated using the EPA NONROAD 2005 model. The
NONROAD model calculates emissions for diesel, gasoline, liquefied
petroleum gasoline, and compressed natural gas-fueled non-road
equipment types and includes growth factors. The NONROAD model does not
estimate emissions from locomotives or aircraft. For 2002 and 2004
locomotive emissions, the PADEP projected emissions from a 1999 survey
using national fuel consumption information and EPA emission and
conversion factors. There are no commercial aircraft operations in York
and Adams Counties. For 2002 and 2004 aircraft emissions, PADEP
estimated emissions using small airport operations statistics from
http://www.airnav.com, 
and emission factors and operational
characteristics in the EPA-approved model, Emissions and Dispersion
Modeling System (EDMS).
More detailed information on the compilation of the 2002, 2004,
2009, and 2018 inventories can found in the Technical Appendices, which
are part of the June 14, 2007 state submittal.
(b) Maintenance Demonstration--On June 14, 2007, the PADEP
submitted a maintenance plan as required by section 175A of the CAA.
The York Area maintenance plan shows maintenance of the 8-hour ozone
NAAQS by demonstrating that current and future emissions of VOC and
NOX remain at or below the attainment year 2004 emissions
levels throughout the York Area through the year 2018. A maintenance
demonstration need not be based on modeling. See, Wall v. EPA, supra;
Sierra Club v. EPA, supra. See also, 66 FR at 53099-53100; 68 FR at
25430-25432.
Tables 4 and 5 specify the VOC and NOX emissions for the
York Area for 2004, 2009, and 2018. The PADEP chose 2009 as an interim
year in the maintenance demonstration period to demonstrate that the
VOC and NOX emissions are not projected to increase
[[Page 60304]]
above the 2004 attainment level during the time of the maintenance period.
Table 4.--Total VOC Emissions for 2004-2018 (tpsd)
------------------------------------------------------------------------
2004 VOC 2009 VOC 2018 VOC
Source category emissions emissions emissions
------------------------------------------------------------------------
Point*........................... 5.3 8.2 10.1
Area............................. 26.8 26.2 28.9
Mobile**......................... 21.3 15.9 9.0
Nonroad.......................... 10.1 8.4 6.9
--------------------------------------
Total........................ 63.5 58.7 54.9
------------------------------------------------------------------------
*The stationary point source emissions shown here do not include
available banked emission credits as indicated in Appendix A-4
submitted with the maintenance plan.
**Includes safety margin identified in the motor vehicle emission
budgets for transportation conformity.
Table 5.--Total NOX Emissions for 2004-2018 (tpsd)
------------------------------------------------------------------------
2004 NOX 2009 NOX 2018 NOX
Source category emissions emissions emissions
------------------------------------------------------------------------
Point*........................... 75.3 74.1 79.7
Area............................. 3.0 3.1 3.3
Mobile**......................... 31.9 22.8 10.0
Non-road......................... 13.7 11.2 6.5
--------------------------------------
Total........................ 123.9 111.2 99.5
------------------------------------------------------------------------
*The stationary point source emissions shown here do not include
available banked emission credits as indicated in Appendix A-4.
**Includes safety margin identified in the motor vehicle emission
budgets for transportation conformity.
Additionally, the following programs are either effective or due to
become effective and will further contribute to the maintenance
demonstration of the 8-hour ozone NAAQS:
• The Clean Air Interstate Rule (CAIR) (71 FR 25328, April 28, 2006).
• The Federal NOX SIP Call (66 FR 43795, August 21, 2001).
• Area VOC regulations concerning portable fuel containers
(69 FR 70893, December 8, 2004), consumer products (69 FR 70895,
December 8, 2004), and architectural and industrial maintenance
coatings (AIM) (69 FR 68080, November 23, 2004).
• Federal Motor Vehicle Control Programs (light-duty) (Tier
1, Tier 2; 56 FR 25724, June 5, 1991; 65 FR 6698, February 10, 2000).
• Vehicle emission/inspection/maintenance program (70 FR
58313, October 6, 2005).
• Heavy duty diesel on-road (2004/2007) and low sulfur on-
road (2006) (66 FR 5002, January 18, 2001).
• Non-road emission standards (2008) and off-road diesel
fuel (2007/2010) (69 FR 38958 June 29, 2004).
• NLEV/PA Clean Vehicle Program (54 FR 72564, December 28,
1999)--Pennsylvania will implement this program in car model year 2008.
• Pennsylvania Heavy-Duty Diesel Emissions Control Program
(May 10, 2002).
Based on the comparison of the projected emissions and the
attainment year emissions along with the additional measures, EPA
concludes that PADEP has successfully demonstrated that the 8-hour
ozone standard should be maintained in the York Area.
(c) Monitoring Network--There are currently two monitors measuring
ozone in the York Area. PADEP will continue to operate its current air
quality monitor (located in York and Adams Counties), in accordance
with 40 CFR part 58.
(d) Verification of Continued Attainment--In addition to
maintaining the key elements of its regulatory program, the
Commonwealth will track the attainment status of the ozone NAAQS in the
York Area by reviewing air quality and emissions data during the
maintenance period. The Commonwealth will perform an annual evaluation
of Vehicle Miles Traveled (VMT) data and emissions reported from
stationary sources, and compare them to the assumptions about these
factors used in the maintenance plan. The Commonwealth will also
evaluate the periodic (every three years) emission inventories prepared
under EPA's Consolidated Emission Reporting Regulation (40 CFR part 51,
subpart A) to see if they exceed the attainment year inventory (2004)
by more than 10 percent. PADEP will also continue to operate the
existing ozone monitoring station in the York Area pursuant to 40 CFR
part 58 throughout the maintenance period and submit quality-assured
ozone data to EPA through the AQS system. Section 175A(b) of the CAA
states that eight years following the redesignation of the York Area,
PADEP will be required to submit a second maintenance plan that will
ensure attainment through 2028. PADEP has made that commitment to meet
the requirement of section 175A(b).
(e) The Maintenance Plan's Contingency Measures--The contingency
plan provisions are designed to promptly correct a violation of the
NAAQS that occurs after redesignation. Section 175A of the CAA requires
that a maintenance plan include such contingency measures as EPA deems
necessary to ensure that the State will promptly correct a violation of
the NAAQS that occurs after redesignation. The maintenance plan should
identify the events that would ``trigger'' the adoption and
implementation of a contingency measure(s), the contingency measure(s)
that would be adopted and implemented, and the schedule indicating the
timeframe by which the state would adopt and implement the measure(s).
The ability of the York Area to stay in compliance with the 8-hour
ozone standard after redesignation depends upon VOC and NOX
emissions in the area remaining at or below 2004 levels. The
Commonwealth's maintenance plan projects VOC and NOX
emissions to decrease and stay below 2004 levels through the year 2018. The
[[Page 60305]]
Commonwealth's maintenance plan outlines the procedures for the
adoption and implementation of contingency measures to further reduce
emissions should a violation occur.
Contingency measures will be considered if for two consecutive
years the fourth highest 8-hour ozone concentrations at the York and
Adams Counties monitors are above 84 ppb. If this trigger point occurs,
the Commonwealth will evaluate whether additional local emission
control measures should be implemented in order to prevent a violation
of the air quality standard. PADEP will also analyze the conditions
leading to the excessive ozone levels and evaluate which measures might
be most effective in correcting the excessive ozone levels. PADEP will
also analyze the potential emissions effect of Federal, state, and
local measures that have been adopted but not yet implemented at the
time the excessive ozone levels occurred. PADEP will then begin the
process of implementing any selected measures.
Contingency measures will also be considered in the event that a
violation of the 8-hour ozone standard occurs at the York and Adams
Counties, Pennsylvania monitors. In the event of a violation of the 8-
hour ozone standard, PADEP will adopt additional emissions reduction
measures as expeditiously as practicable in accordance with the
implementation schedule listed later in this notice and the
Pennsylvania Air Pollution Control Act in order to return the area to
attainment with the standard. Contingency measures to be considered for
the York Area will include, but not be limited to the following:
Regulatory measures:
--Additional controls on consumer products.
--Additional controls on portable fuel containers.
Non-Regulatory measures:
--Voluntary diesel engine ``chip reflash'' (installation software to
correct the defeat device option on certain heavy-duty diesel engines).
--Diesel retrofit, including replacement, repowering or alternative
fuel use, for public or private local on-road or off-road fleets.
--Idling reduction technology for Class 2 yard locomotives.
--Idling reduction technologies or strategies for truck stops,
warehouses and other freight-handling facilities.
--Accelerated turnover of lawn and garden equipment, especially
commercial equipment, including promotion of electric equipment.
--Additional promotion of alternative fuel (e.g., biodiesel) for home
heating and agricultural use.
The plan lays out a process to have any regulatory contingency
measures in effect within 19 months of the trigger. The plan also lays
out a process to implement the non-regulatory contingency measures
within 12-24 months of the trigger.
VII. Are the Motor Vehicle Emissions Budgets Established and Identified
in the York Area Maintenance Plan Adequate and Approvable?
A. What Are the Motor Vehicle Emissions Budgets?
Under the CAA, States are required to submit, at various times,
control strategy SIPs and maintenance plans in ozone areas. These
control strategy SIPs (i.e., RFP SIPs and attainment demonstration
SIPs) and maintenance plans identify and establish MVEBs for certain
criteria pollutants and/or their precursors to address pollution from
on-road mobile sources. In the maintenance plan, the MVEBs are termed
``on-road mobile source emission budgets.'' Pursuant to 40 CFR part 93
and Sec. 51.112, MVEBs must be established in an ozone maintenance
plan. An MVEB is the portion of the total allowable emissions that is
allocated to highway and transit vehicle use and emissions. An MVEB
serves as a ceiling on emissions from an area's planned transportation
system. The MVEB concept is further explained in the preamble to the
November 24, 1993, transportation conformity rule (58 FR 62188). The
preamble also describes how to establish and revise the MVEBs in
control strategy SIPs and maintenance plans.
Under section 176(c) of the CAA, new transportation projects, such
as the construction of new highways, must ``conform'' to (i.e., be
consistent with) the part of the State's air quality plan that
addresses pollution from cars and trucks. ``Conformity'' to the SIP
means that transportation activities will not cause new air quality
violations, worsen existing violations, or delay timely attainment of
or reasonable progress towards the NAAQS. If a transportation plan does
not ``conform,'' most new projects that would expand the capacity of
roadways cannot go forward. Regulations at 40 CFR part 93 set forth EPA
policy, criteria, and procedures for demonstrating and ensuring
conformity of such transportation activities to a SIP.
When reviewing submitted ``control strategy'' SIPs or maintenance
plans containing MVEBs, EPA must affirmatively find the MVEB contained
therein ``adequate'' for use in determining transportation conformity.
After EPA affirmatively finds the submitted MVEB is adequate for
transportation conformity purposes, that MVEB can be used by state and
federal agencies in determining whether proposed transportation
projects ``conform'' to the SIP as required by section 176(c) of the
CAA. EPA's substantive criteria for determining ``adequacy'' of a MVEB
are set forth in 40 CFR 93.118(e)(4).
EPA's process for determining ``adequacy'' consists of three basic
steps: public notification of a SIP submission, a public comment
period, and EPA's adequacy finding. This process for determining the
adequacy of submitted SIP MVEBs was initially outlined in EPA's May 14,
1999 guidance, ``Conformity Guidance on Implementation of March 2,
1999, Conformity Court Decision.'' This guidance was finalized in the
Transportation Conformity Rule Amendments for the ``New 8-Hour Ozone
and PM2.5 National Ambient Air Quality Standards and Miscellaneous
Revisions for Existing Areas; Transportation Conformity Rule
Amendments--Response to Court Decision and Additional Rule Change'' on
July 1, 2004 (69 FR 40004). EPA consults this guidance and follows this
rulemaking in making its adequacy determinations.
The MVEBS for the York Area are listed in Table 1 of this document
for 2009 and 2018, and are the projected emissions for the on-road
mobile sources plus any portion of the safety margin allocated to the
MVEBs (safety margin allocation for 2009 and 2018 only). These emission
budgets, when approved by EPA, must be used for transportation
conformity determinations.
B. What Is a Safety Margin?
A safety margin is the difference between the attainment level of
emissions (from all sources) and the projected level of emissions (from
all sources) in the maintenance plan. The attainment level of emissions
is the level of emissions during one of the years in which the area met
the NAAQS. The safety margin is the extra emissions that can be
allocated as long as the total attainment level of emissions is
maintained. The credit, or a portion thereof, can be allocated to any
of the source categories. The following example is for the 2018 safety
margin: the York Area first attained the 8-hour ozone NAAQS during the
2002 to 2004 time period. The Commonwealth used 2004 as a year to
determine attainment levels of emissions for the York Area.
The total emissions from point, area, mobile on-road, and mobile
non-road sources in 2004 equaled 63.5 tpd of
[[Page 60306]]
VOC and 123.9 tpd of NOX. PADEP projected emissions out to
the year 2018 and projected a total of 54.9 tpd of VOC and 99.5 tpd of
NOX from all sources in the York Area. The safety margin for
the York Area for 2018 is the difference between these amounts, or 8.6
tpd of VOC and 24.4 tpd of NOX. The emissions up to the
level of the attainment year including the safety margins are projected
to maintain the area's air quality consistent with the 8-hour ozone
NAAQS. Table 6 shows the safety margins for the 2009 and 2018 years.
Table 6.--2009 and 2018 Safety Margins for the York Area
------------------------------------------------------------------------
VOC Emissions NOX Emissions
Inventory year (tpd) (tpd)
------------------------------------------------------------------------
2004 Attainment................... 63.5 123.9
2009 Interim...................... 58.7 111.2
2009 Safety Margin................ 4.8 12.7
2004 Attainment................... 63.5 123.9
2018 Final........................ 54.9 99.5
2018 Safety Margin................ 8.6 24.4
------------------------------------------------------------------------
PADEP allocated 0.8 tpd VOC and 1.0 tpd NOX to the 2009
interim VOC projected on-road mobile source emissions projection and
the 2009 interim NOX projected on-road mobile source
emissions projection to arrive at the 2009 MVEBs. For the 2018 MVEBs,
PADEP allocated 1.1 tpd VOC and 1.0 tpd NOX from the 2018
safety margins to arrive at the 2018 MVEBs. Once allocated to the
mobile source budgets, these portions of the safety margins are no
longer available, and may not be allocated to any other source
category. Table 7 shows the final 2009 and 2018 MVEBs for the York Area.
Table 7.--2009 and 2018 Final MVEBs for the York Area
------------------------------------------------------------------------
VOC Emissions NOX Emissions
Inventory Year (tpd) (tpd)
------------------------------------------------------------------------
2009 Projected On-road Mobile 15.1 21.8
Source Projected Emissions.......
2009 Safety Margin Allocated to 0.8 1.0
MVEBs............................
2009 MVEBs........................ 15.9 22.8
2018 Projected On-road Mobile 7.9 9.0
Source Projected Emissions.......
2018 Safety Margin Allocated to 1.1 1.0
MVEBs............................
2018 MVEBs........................ 9.0 10.0
------------------------------------------------------------------------
C. Why Are the MVEBs Approvable?
The 2009 and 2018 MVEBs for the York Area are approvable because
the MVEBs for NOX and VOCs continue to maintain the total
emissions at or below the attainment year inventory levels as required
by the transportation conformity regulations.
D. What Is the Adequacy and Approval Process for the MVEBs in the York
Area Maintenance Plan?
The MVEBs for the York Area maintenance plan are being posted to
EPA's conformity Web site concurrently with this proposal. The public
comment period will end at the same time as the public comment period
for this proposed rule. In this case, EPA is concurrently processing
the action on the maintenance plan and the adequacy process for the
MVEBs contained therein. In this proposed rule, EPA is proposing to
find the MVEBs adequate and also proposing to approve the MVEBs as part
of the maintenance plan. The MVEBs cannot be used for transportation
conformity until the maintenance plan and associated MVEBs are approved
in a final Federal Register notice, or EPA otherwise finds the budgets
adequate in a separate action following the comment period.
If EPA receives adverse written comments with respect to the
proposed approval of the York Area MVEBs, or any other aspect of our
proposed approval of this updated maintenance plan, we will respond to
the comments on the MVEBs in our final action or proceed with the
adequacy process as a separate action. Our action on the York Area
MVEBs will also be announced on EPA's conformity Web site:
http://www.epa.gov/otaq/stateresources/transconf/index.htm (once
there, click on ``Adequacy Review of SIP Submissions).
VIII. Proposed Actions
EPA is proposing to determine that the York Area has attained the
8-hour ozone NAAQS. EPA is also proposing to approve the redesignation
of the York Area from nonattainment to attainment for the 8-hour ozone
NAAQS. EPA has evaluated Pennsylvania's redesignation request 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 the York Area has attained
the 8-hour ozone standard. The final approval of this redesignation
request would change the designation of the York Area from
nonattainment to attainment for the 8-hour ozone standard. EPA is
proposing to approve the maintenance plan for the York Area, submitted
on June 14, 2007, as a revision to the Pennsylvania SIP. EPA is
proposing to approve the maintenance plan for the York Area because it
meets the requirements of section 175A as described previously in this
notice. EPA is also proposing to approve the 2002 base-year inventory
for the York Area, and the MVEBs submitted by Pennsylvania for the York
Area in conjunction with its redesignation request. EPA is soliciting
public comments on the issues discussed in this document. These
comments will be considered before taking final action.
IX. Statutory and Executive Order Reviews
Under Executive Order 12866 (58 FR 51735, October 4, 1993),
this proposed action is not a ``significant regulatory action'' and
therefore is not subject to review by the Office of Management and
[[Page 60307]]
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 merely proposes to approve 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 CAA 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. Redesignation of an area to attainment under section
107(d)(3)(E) of the CAA 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 proposed
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 proposes to approve 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). Because this action affects the status of a
geographical area or allows the state to avoid adopting or implementing
other requirements and because this action does not impose any new
requirements on sources, this proposed 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 merely proposes to approve a state rule implementing a Federal
requirement, and does not alter the relationship or the distribution of
power and responsibilities established in the CAA. This proposed 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 CAA. 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 CAA. 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 proposed 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.
This rule, proposing to approve the redesignation of the York Area
to attainment for the 8-hour ozone NAAQS, the associated maintenance
plan, the 2002 base-year inventory, and the MVEBs identified in the
maintenance plan, does not impose an information collection burden
under the provisions of the Paperwork Reduction Act of 1995 (44 U.S.C.
3501 et seq.).
List of Subjects
40 CFR Part 52
Environmental protection, Air pollution control, Nitrogen oxides,
Ozone, Reporting and recordkeeping requirements, Volatile organic
compounds.
40 CFR Part 81
Environmental protection, Air pollution control, National parks,
Wilderness areas.
Authority: 42 U.S.C. 7401 et seq.
Dated: October 16, 2007.
Donald S. Welsh,
Regional Administrator, Region III.
[FR Doc. E7-20942 Filed 10-23-07; 8:45 am]
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