Approval and Promulgation of Implementation Plans and Designation of Areas for Air Quality Planning Purposes: Portneuf Valley, Idaho, Area, 29243-29252 [05-10149]
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Federal Register / Vol. 70, No. 97 / Friday, May 20, 2005 / Proposed Rules
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Dated: May 11, 2005.
Julie M. Hagensen,
Acting Regional Administrator, Region 10.
[FR Doc. 05–10148 Filed 5–19–05; 8:45 am]
BILLING CODE 6560–50–P
ENVIRONMENTAL PROTECTION
AGENCY
40 CFR Parts 52 and 81
[R10–OAR–2005–ID–0001; FRL–7915–7]
Approval and Promulgation of
Implementation Plans and Designation
of Areas for Air Quality Planning
Purposes: Portneuf Valley, Idaho, Area
Environmental Protection
Agency.
ACTION: Proposed rule.
AGENCY:
SUMMARY: The Environmental Protection
Agency (EPA, Agency, or we) proposes
to approve revisions to the Idaho State
Implementation Plan (SIP) for
particulate matter with an aerodynamic
diameter less than or equal to a nominal
ten micrometers (PM–10) for the
Portneuf Valley nonattainment area. The
revisions include a nonattainment area
plan that brought the area into
attainment by the applicable attainment
date of December 31, 1996, a
maintenance plan that will provide for
maintaining the PM–10 national
ambient air quality standards (NAAQS)
ten years into the future, and a request
to redesignate the Portneuf Valley
nonattainment area to attainment for
PM–10. We are proposing to approve
these revisions because we believe the
State adequately demonstrates that the
control measures being implemented in
the Portneuf Valley result in attainment
and maintenance of the PM–10 National
Ambient Air Quality Standards and that
all other requirements of the Clean Air
Act for redesignation to attainment are
met.
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Comments must be received on
or before June 20, 2005.
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identified by Docket ID No. R10–OAR–
2005–ID–0001, by one of the following
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Toxics, Environmental Protection
Agency, Attn: Steve Body, Mailcode:
AWT–107, 1200 Sixth Avenue, Seattle,
WA 98101.
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Protection Agency Region 10, Attn:
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holidays. Please contact the individual
listed in the FOR FURTHER INFORMATION
CONTACT section to schedule your
review of these records.
FOR FURTHER INFORMATION CONTACT:
Steve Body, Office of Air, Waste and
Toxics, Region 10, AWT–107,
Environmental Protection Agency, 1200
Sixth Ave., Seattle, WA 98101; phone:
(206) 553–0782; fax number: (206) 553–
0110; e-mail address:
body.steve@epa.gov.
SUPPLEMENTARY INFORMATION:
Table of Contents
I. General Overview
A. What action are we taking?
B. What is the background for this action?
1. Description of Area
2. Description of Air Quality Problem
3. Designation History of the
Nonattainment Area
4. SIP Submittal History of the
Nonattainment Area
C. What impact does this action have on
the Portneuf Valley community?
II. Review of Nonattainment Area Plan
A. What criteria did EPA use to review the
nonattainment area plan?
1. New Source Review Permit Program
2. Demonstration of Attainment
3. Reasonably Available Control Measures
(RACM) including Reasonably Available
Control Technology (RACT)
4. Major Stationary Sources of PM–10
Precursors
5. Emissions Inventory Requirements
6. Enforceable Emission Limitations and
Other Control Measures
7. Additional Requirements for
Nonattainment Area Plans
B. What do we conclude about the
nonattainment area plan?
III. Review of Maintenance Plan
A. What criteria did EPA use to review the
maintenance plan?
1. Attainment Emissions Inventory
2. Maintenance Demonstration
3. State Monitoring of Air Quality to Verify
Continued Attainment
4. Contingency Measures
5. Transportation Conformity
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6. Additional Requirements for
Maintenance Plans
B. What do we conclude about the
maintenance plan?
IV. Review of Redesignation Request
A. What criteria did EPA use to review the
request for redesignation?
1. Attainment Determination
2. Fully Approved Nonattainment Area
Plan
3. Permanent and Enforceable
Improvements in Air Quality
4. Other Planning Requirements
5. Section 110 Requirements
6. Part D Requirements
7. Section 172(c) Plan Provisions
Requirements
8. Subpart 4 requirements
B. What do we conclude about the request
for redesignation?
V. Statutory and Executive Order Reviews
I. General Overview
A. What Action Are We Taking?
We are proposing to approve the State
Implementation Plan (SIP) revision for
PM–10 submitted on June 30, 2004, by
the State of Idaho Division of
Environmental Quality (IDEQ) for the
Portneuf Valley PM–10 nonattainment
area. The revision includes a
nonattainment area plan, maintenance
plan, and a request to redesignate the
Portneuf Valley nonattainment area to
attainment for PM–10. We are proposing
to approve these two plans and the
request for redesignation because we
believe the State adequately
demonstrates that the control measures
being implemented in the Portneuf
Valley result in attainment and
maintenance of the PM–10 National
Ambient Air Quality Standards
(NAAQS) and that all other
requirements of the Clean Air Act (the
Act) for redesignation to attainment are
met.
B. What Is the Background for This
Action?
1. Description of Area
The Portneuf Valley, Idaho PM–10
nonattainment area is located in
southeastern Idaho and includes the
Cities of Pocatello and Chubbuck. For a
legal description of the boundaries, see
40 CFR 81.313. The nonattainment area
covers 96.6 square miles and the
combined population of the two cities is
approximately 76,000.
The topography of the Portneuf Valley
area is complex. The City of Pocatello
lies in the Portneuf Valley at an
elevation of approximately 4500 feet.
The Pocatello Mountain Range, with
elevations reaching 9000 feet above
mean sea level (MSL), forms the east
side of the Valley and the Bannock
Mountain Range, reaching 7500 feet
above MSL, lies to the west. The
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Portneuf Valley empties into the Snake
River plain.
The Portneuf Valley is arid with
significant variation in temperature
between winter and summer seasons.
Winter average temperature is 24.4
degrees Fahrenheit. Winter and spring
are characterized by brisk southwest
winds of 20 to 30 miles per hour (mph)
which often persist for days. Migratory
weather disturbances are greatly
influenced by the complex terrain,
making prediction of wind flow patterns
difficult. Periodically, stagnate air
conditions are established for a period
of several days that can lead to elevated
PM–10 levels. July is the warmest
month with an average temperature of
69.2 degrees Fahrenheit. Annual rainfall
of 12.5 inches is distributed throughout
the year with a maximum in the spring.
Average snow fall is 41.7 inches.
2. Description of Air Quality Problem
The highest PM–10 levels in the
Portneuf Valley nonattainment area
occur in the winter. Cold temperature,
high relative humidity, and fog are
conducive to sulfur dioxide (SO2)
rapidly reacting with ammonia in the
atmosphere to create ammonium sulfate.
Also during these conditions, oxides of
nitrogen (NOX) react with ammonia to
create ammonium nitrate. These winter
conditions are also often associated with
stagnation episodes. Very little
ventilation occurs through vertical
mixing or by horizontal transport out of
the valley. Without a means of
ventilation, PM–10 levels increase dayto-day from both primary and secondary
formation, and tend to peak by the third
day of a stagnation episode. Sources of
primary PM–10 are J.R. Simplot, reentrained dust from paved roads,
agricultural activity, residential/
commercial construction, nonagricultural windblown dust, and to a
lesser extent, residential combustion
and motor vehicles. Sources of
precursor emissions resulting in
secondary PM–10 formation are from
one stationary source and to a limited
extent, motor vehicles (cars, trucks, and
locomotives).
Secondary PM–10 in the Portneuf
Valley has been measured during these
winter stagnation events at more than 50
percent of the total PM–10 mass. In
extreme events, snow cover is present
for an extended period which increases
radiative cooling and maintains
temperature near or below the freezing
point, heightens the strength and depth
of the deep stable layer, and promotes
the formation of valley fog. The breakup
of the stagnation episode is usually
accompanied by precipitation.
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3. Designation History of the
Nonattainment Area
On July 1, 1987, (52 FR 24634), the
Environmental Protection Agency
revised the NAAQS for particulate
matter with a new indicator that
includes only those particles with an
aerodynamic diameter less than or equal
to a nominal 10 micrometers (PM–10).
See 40 CFR 50.6. The 24-hour primary
PM–10 standard is 150 micrograms per
cubic meter (µg/m3), with no more than
one expected exceedance per year over
a three year period. The annual primary
PM–10 standard is 50 µg/m3 expected
annual arithmetic mean over a three
year period. The secondary PM–10
standards are identical to the primary
standards.
On August 7, 1987, (52 FR 29383),
EPA identified a number of areas across
the country as PM–10 ‘‘Group I’’ areas
of concern, i.e., areas with a 95% or
greater likelihood of violating the PM–
10 NAAQS and requiring substantial
SIP revisions. What is now known as
the Portneuf Valley nonattainment area
was originally part of a Group I area
called ‘‘Power-Bannock Counties
(Pocatello),’’ an area subsequently
designated as a moderate PM–10
nonattainment area by the Act. See also
56 FR 11101. This original
nonattainment area has gone through
two boundary changes. First, on June
12, 1995, EPA corrected the ‘‘PowerBannock Counties (Pocatello)’’
boundaries to more closely represent the
air shed in which the City of Pocatello
is located. 61 FR 29667. Second, on
November 5, 1998, EPA granted a
request from the State to divide the
nonattainment area (as corrected) into
two areas separated by the Fort Hall
Indian Reservation boundary. 63 FR
59722. The area consisting of land
under State jurisdiction is now
identified as the Portneuf Valley
nonattainment area, and the area
consisting of land within the exterior
boundary of the Fort Hall Indian
Reservation is now identified as the Fort
Hall nonattainment area. See 40 CFR
81.313. Today’s proposed approval of
the nonattainment area plan,
maintenance plan, and redesignation
request applies only to the Portneuf
Valley nonattainment area.
4. SIP Submittal History of the
Nonattainment Area
Under the Act, the State of Idaho was
required to submit a PM–10 SIP (or
‘‘nonattainment area plan’’) for the
Power-Bannock Counties (Pocatello)
nonattainment area for meeting the PM–
10 NAAQS. In March 1993, Idaho
submitted a PM–10 SIP (1993 SIP) to
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meet this requirement. Among other
things the 1993 SIP submittal addressed
primary particulate and made a finding
that PM–10 precursors were an
insignificant contributor to violations of
the PM–10 standard. Under the Act,
control requirements for major
stationary sources of PM–10 also apply
to major stationary sources of PM–10
precursors, except where such sources
do not contribute significantly to PM–10
levels which exceed the standards in the
area. However, because PM–10
precursors were not insignificant in the
area and the 1993 SIP submittal did not
address them, the State was required to
submit a revised plan.
On February 26, 1999, the State
submitted the ‘‘Portneuf Valley
Particulate Matter (PM–10) Air Quality
Improvement Plan, 1998–1999’’ (1999
SIP). In June 2000, EPA informed the
State that although the 1999 SIP
submittal addressed PM–10 precursors,
the 1999 SIP submittal was inadequate,
specifically with respect to
transportation conformity and the motor
vehicle emissions budget. The State was
required to submit a revised plan.
On June 30, 2004, the State submitted
the ‘‘Portneuf Valley PM–10
Nonattainment Area State
Implementation Plan, Maintenance
Plan, and Redesignation Request’’ (June
30, 2004 SIP submittal). This submittal
contains a nonattainment area plan
(replacing the State’s 1993 and 1999 SIP
submittals), a maintenance plan, and a
request for redesignation to attainment.
We are proposing to approve both plans
and the request for designation to
attainment based on our evaluation
below. See the Technical Support
Document (TSD) accompanying this
notice for further supporting
documentation.
C. What Impact Does This Action Have
on the Portneuf Valley Community?
EPA’s approval of the State’s June 30,
2004, SIP submittal (that is, approval of
the nonattainment area plan,
maintenance plan, and redesignation
request) would result in redesignation of
Portneuf Valley to a PM–10 attainment
area. A redesignation to attainment
would relieve the Portneuf Valley area
of certain obligations currently in place
because of its nonattainment status. In
the event of new sources in the area,
minor New Source Review (NSR) and
Prevention of Significant Deterioration
(PSD) requirements would apply.
Although the SIP revision contains
emissions reduction control measures
that impact residential wood
combustion, roadways, and industrial
facilities, these control measures are
already in place and are enforceable by
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the State. Therefore, our approval of
these measures now has little or no
additional regulatory impact on the
Portneuf Valley community.
II. Review of Nonattainment Area Plan
A. What Criteria Did EPA Use To
Review the Nonattainment Area Plan?
The air quality planning requirements
for moderate PM–10 nonattainment
areas are set out in subparts 1 and 4 of
Part D, Title I of the Act. The EPA has
issued a ‘‘General Preamble’’ describing
EPA’s preliminary views on the how
EPA intends to review SIP’s and SIP
revisions submitted under Title I of the
Act, including those State submittals
containing provisions to implement the
moderate PM–10 nonattainment area
SIP requirements. See generally 57 FR
13498 (April 16, 1992) and 57 FR 18070
(April 28, 1992).
Under section 189(a) of the Act, States
containing initial moderate PM–10
nonattainment areas are required to
submit an implementation plan that
includes the following elements:
1. An approved permit program for
construction of new or modified major
stationary sources of PM–10.
2. A demonstration that the plan
provides for attainment by the
applicable attainment date or that
attainment by such date is
impracticable.
3. Provisions to assure that reasonably
available control technology (RACT) is
implemented.
Below is a discussion of how the
Portneuf Valley nonattainment area plan
meets the requirements of section 189(a)
and associated requirements in section
172(c)(1) and (5). We also discuss how
the nonattainment area plan meets
certain other provisions of section 189
and Part D (specifically the PM–10
precursor control provision in section
189(e), the emissions inventory
requirement in section 172(c)(3) and the
requirement for enforceable control
measures in section 110(a)(2)(A)). For
discussion of how other requirements in
section 189, Part D, and section
110(a)(2) are met, see the TSD
accompanying this document.
1. New Source Review Permit Program
Section 189(a)(1)(A) of the Act
requires, ‘‘For the purpose of meeting
the requirements of section 172(c)(5), a
permit program providing that permits
meeting the requirements of section 173
are required for construction and
operation of new and modified major
sources of PM–10.’’
Section 189(a) and section 172(c)(5)
require each nonattainment area plan to
provide for permits for the construction
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and operation of new or modified major
stationary sources anywhere in the
nonattainment area. The Act requires a
permit program for the construction and
operation of new and modified major
stationary sources of PM–10 located in
moderate nonattainment areas (known
as ‘‘nonattainment area NSR’’). EPA
approved nonattainment NSR rules for
PM–10 nonattainment areas in Idaho on
July 23, 1993 (58 FR 39445), and
amended provisions were approved by
EPA on January 16, 2003 (68 FR 2217).
See 60 FR 28726 (June 2, 1995).
Therefore, the State has met this permit
program requirement.
2. Demonstration of Attainment
Section 189(a)(1)(B) of the Act
requires either a demonstration
(including air quality modeling) that the
plan will provide for attainment by the
applicable attainment date or a
demonstration that attainment by such
date is impracticable.
The initial attainment date for the
Power-Bannock Counties (Pocatello)
nonattainment area (and therefore the
Portneuf Valley nonattainment area)
was established by operation of law as
no later than December 31, 1994. See
section 189(c)(1) of the Act. Section
189(d) of the Act provides criteria by
which the Administrator may grant two,
1-year extensions to the attainment date.
The State met the requirements for
extending the attainment date and EPA
granted two 1-year extensions. 61 FR
20730 and 61 FR 66602. Consequently,
the attainment date for the Portneuf
Valley nonattainment area is December
31, 1996.
To demonstrate attainment, the State
relies on a combination of supporting
evidence. First it points to ambient air
quality monitoring data showing the
area attained both the 24-hour and
annual PM–10 NAAQS as of December
31, 1996. We published an official
finding of attainment by this date in a
Federal Register notice on July 5, 2002,
67 FR 48552. Subsequent air monitoring
data shows that the area has continued
to meet both NAAQS for every three
year period since the attainment date.
Thus, monitoring data as of and since
the attainment date demonstrates
attainment of the NAAQS.
Second, the State relies on emissions
reduction measures from sources
impacting the nonattainment area to
bring the area into attainment. These
measures include stationary source
controls, residential wood burning
controls, outdoor burning controls, and
road sanding emissions reduction
measures. With these measures in place,
there have been no further violations of
the 24-hour or annual PM–10 NAAQS
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in the nonattainment area, thus,
providing further support of a
demonstration of attainment. Each
specific control measure is discussed in
more detail in the TSD.
Finally, the State relies on speciated
linear rollback modeling. The rollback
model uses filter analyses, emissions
inventories, and chemical source
profiles to assess the impacts of sources
and source groups on PM–10
concentrations. For the Portneuf Valley
nonattainment area, the model predicts
a 24-hour PM–10 level of 146 µg/m3 in
2000, then a decrease to 103 µg/m3 by
2005 followed by a gradual increase up
to 111 µg/m3 in 2020. These predicted
levels also demonstrate attainment of
the NAAQS.
Based on air quality data for the area
since the attainment date, control
measures that have been implemented
without further violation of the NAAQS
and speciated linear rollback modeling
showing attainment in the year 2000, we
conclude that the state has adequately
demonstrated attainment of the PM–10
NAAQS.
3. Reasonably Available Control
Measures (RACM) Including Reasonably
Available Control Technology (RACT)
Section 189(a)(1)(C) of the Act
requires that moderate area SIPs contain
‘‘reasonably available control measures’’
(RACM) for the control of PM–10
emissions. Section 172(c)(1) of the Act,
in turn, provides that RACM for
nonattainment areas shall include ‘‘such
reductions in emissions from existing
sources in the area as may be obtained
through the adoption, at a minimum, of
reasonably available control
technology* * *’’. Read together, these
provisions require that moderate area
PM–10 SIPs include RACM and RACT
for existing sources of PM–10 emissions.
The General Preamble provides
further guidance on interpretation of the
requirement for RACM and RACT.
Congress, in enacting the amended Act,
did not use the word ‘‘all’’ in
conjunction with RACT. Thus, it is
possible that a State could demonstrate
that an existing source in an area should
not be subject to a control technology
especially where such a control is
unreasonable in light of the specific
area’s individual attainment needs or is
infeasible. EPA recommends that
available control technology be applied
to those existing sources in the
nonattainment area that are reasonable
to control in light of the feasibility of
such controls and the individual
attainment needs of the specific area.
The nonattainment area plan contains
a description of available control
measures that the State determined to be
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reasonable. For agricultural area
sources, control measures qualifying as
RACM include best management
practices and land conservation
practices for agricultural activities
under the Federal Food Security Act of
1985 (FSA), as amended in 1996 and
2002, (see 16 U.S.C. 3801–3862).
Control measures for other area sources
include a certified wood stove
ordinance, a mandatory residential
wood combustion curtailment program,
tax and other incentives for noncertified wood stove replacements, an
air pollution emergency rule (open
burning ban) and city, county and state
written agreements to reduce road
sanding emissions. These measures are
consistent with measures identified as
RACM in Appendix C to the General
Preamble. 57 FR 18070 (April 28, 1992).
Federal area source requirements that
were relied on by the State and qualify
as RACM include Tier 2 Federal Motor
Vehicle Emissions requirements. (65 FR
6698, February 10, 2000, as amended on
April 13, 2001, June 3, 2002, and
December 6, 2002). The State did not
rely on emissions reductions from the
Federal non-road motor vehicle rule (69
FR 38958, June 29, 2004) or
requirements limiting the sulfur content
in diesel fuel (66 FR 5002, January 18,
2001). These measures provide
additional reductions.
For industrial sources, the
nonattainment area plan contains an
analysis of RACT for the J.R. Simplot,
Don Plant (J.R. Simplot), the single
largest industrial source of both primary
particulate and precursor emissions in
the area. This is the only industrial
source for which Idaho assessed RACT
because it is the only major stationary
source in the nonattainment area. Based
on its evaluation, the State determined
that construction and installation of
additional control technology is not
required to implement RACT. However,
for some emission units at J.R. Simplot,
the State established more restrictive
emission limits. These new emission
limits are reasonable because the source
has already demonstrated that it is
meeting these limits and require no
additional cost to the source. The State
included the new limits in a Tier II
operating permit #077–00006 and has
submitted the permit as part of the June
30, 2004 SIP revision. See the TSD
accompanying this notice for additional
discussion of the permit limits.
The State also relies on emissions
reductions from Astaris (FMC), an
elemental phosphorus facility located in
the adjacent Fort Hall nonattainment
area. Astaris (FMC) was a major source
of PM–10 and PM–10 precursors until it
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permanently ceased manufacturing
operations in 2001.
Based on Appendix C in the General
Preamble, the State’s evaluation of
RACT and RACM for sources
contributing to PM–10 concentrations in
the nonattainment area, and the
individual attainment needs of this
specific area, we conclude that the State
has met the requirements for
implementing RACM and RACT on
sources of PM–10 and precursor
emissions in the non-attainment area.
4. Major Stationary Sources of PM–10
Precursors
Section 189(e) of the Clean Air Act
provides that control requirements for
major stationary sources of PM–10 shall
also apply to major stationary sources of
PM–10 precursors, except where the
Administrator determines that such
sources do not contribute significantly
to PM–10 levels which exceed the
standards in the area. Secondary
ammonium sulfate and ammonium
nitrate are a significant fraction of the
highest PM–10 concentrations reported
for the Portneuf Valley nonattainment
area. J.R. Simplot is the only major
stationary source of these precursor
emissions in the area. Therefore, RACT
(discussed above) has been established
for J.R. Simplot. In light of the control
requirements established for this major
stationary source of PM–10 precursors,
we conclude that the requirements of
Section 189(e) are met.
5. Emissions Inventory Requirements
Section 172(c)(3) requires each plan to
include a comprehensive, accurate,
current inventory of actual emissions
from all sources of the relevant
pollutants in such area. From this
inventory, emissions can be compared
to measured air quality to estimate
emissions reductions needed to attain
the standard if violations of the standard
are reported. Where measured air
quality is below the standard, the
comparison can be used to estimate how
much emissions may be allowed to
increase and still protect the ambient air
quality standard. Emissions estimates
are also a key component to predicting
future air quality through use of
dispersion modeling. The inventory
should be consistent with EPA’s most
recent guidance on emissions
inventories for nonattainment areas
available at the time and should include
the emissions during the time period
associated with the monitoring data
showing attainment.
Idaho selected calendar year 2000 for
the emissions inventory because it
represents the most recent year for
which valid ambient air quality data
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was available. The emissions inventory
covers all sources within the boundaries
of the nonattainment area, and also
includes sources outside the boundaries
of the nonattainment area for purposes
of dispersion modeling. The inventory
includes direct sources of PM–10 as
well as sources of the following
precursors to PM–10: ammonia,
nitrogen oxides, sulfur oxides, and
volatile organic compounds. The
sources covered by the inventory fall
into four major source categories: Point
sources, area sources, on-road mobile
sources, and non-road mobile sources.
The largest contributors of primary
PM–10 and precursor emissions within
the nonattainment area for 2000 are as
follows:
PM–10: J.R. Simplot, re-entrained dust
from paved roads, agricultural
activity, residential/commercial
construction, non-agricultural
windblown dust
NOX: J.R. Simplot, On-road and nonroad mobile sources (including
locomotives)
SOx: J.R. Simplot
NH3: J.R. Simplot
VOC: J.R. Simplot, solvent usage,
gasoline marketing, biogenic,
residential/commercial construction,
on-road and non-road mobile
We have reviewed the emissions
inventory and have found the methods
used to develop it are consistent with
EPA guidelines. In addition, the
assumptions and calculations were
checked and found to be thorough and
comprehensive.
In summary, the State has adequately
developed an emissions inventory for
2000 that identifies the levels of
emissions of PM–10 in the
nonattainment area as sufficient to
attain the NAAQS. Thus, we conclude
the inventory meets the inventory
requirements for a nonattainment area
plan.
6. Enforceable Emission Limitations and
Other Control Measures
Section 110(a)(2)(A) requires the plan
to include enforceable emission
limitations and other control measures
as may be necessary or appropriate to
meet the applicable requirements of this
Act. As discussed above, the area is
using agricultural best management
practices, motor vehicle fuel emissions
standards, residential wood combustion
ordinances, road sanding agreements,
and an operating permit for J.R. Simplot
to meet RACT/RACM requirements.
Agricultural best management practices
and motor vehicle fuel emissions
standards are called for through Federal
legislation or regulations. The wood
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stove curtailment programs is
implemented through enforceable city
ordinances in coordination with IDEQ.
The stationary source emission limits
are included in permits issued under a
Federally-approved and enforceable
operating permit program. Although the
winter road sanding and de-icing
agreements with county and municipal
governments are not enforceable, they
have been consistently followed in the
10 years since the agreements were first
made in 1993 because of economic
advantages. In light of the regulations,
ordinances, and agreements and other
things in place to ensure these control
measures are implemented, we
conclude that the requirements of
section 110(a)(2)(A) have been met.
7. Additional Requirements for
Nonattainment Area Plans
In addition to the core requirements
of section 189(a)(1) discussed above,
other provisions of the Act in section
172(c) and 110(a) need to be met in
order to approve the nonattainment area
plan. The additional requirements and
how the Portneuf Valley nonattainment
area plan meets these requirements is
discussed in the TSD accompanying this
document.
B. What Do We Conclude About the
Nonattainment Area Plan?
Based on our review of the Portneuf
Valley nonattainment area plan
submitted by the State on June 30, 2004,
we conclude that the requirements for
an approvable nonattainment area plan
under the Act have been met. Therefore,
we are proposing approval of the
nonattainment area plan submitted for
the Portneuf Valley PM–10
nonattainment area.
III. Review of Maintenance Plan
A. What Criteria Did EPA Use To
Review the Maintenance Plan?
Section 107(d)(3)(E) of the Act
stipulates that for an area to be
redesignated to attainment, EPA must
fully approve a maintenance plan which
meets the requirements of section 175A.
Section 175A defines the general
framework of a maintenance plan,
which must provide for maintenance,
i.e., continued attainment, of the
relevant NAAQS in the area for at least
ten years after redesignation. The
following is a list of core provisions
required in an approvable maintenance
plan.
1. The State must develop an
attainment emissions inventory to
identify the level of emissions in the
area which is sufficient to attain the
NAAQS.
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2. The State must demonstrate
maintenance of the NAAQS.
3. The State must verify continued
attainment through operation of an
appropriate air quality monitoring
network.
4. The maintenance plan must
include contingency provisions to
promptly correct any violation of the
NAAQS that occurs after redesignation
of the area.
As explained below, Idaho has
complied with each of these
requirements in the PM–10 maintenance
plan for the Portneuf Valley
nonattainment area.
1. Attainment Emissions Inventory
The State should develop an
attainment emissions inventory to
identify the level of emissions in the
area which is sufficient to attain the
NAAQS. Where the State has made an
adequate demonstration that air quality
has improved as a result of the control
measures in the SIP, the attainment
inventory will generally be an inventory
of actual emissions at the time the area
attained the standards. This inventory
should be consistent with EPA’s most
recent guidance on emissions
inventories for nonattainment areas
available at the time and should include
the emissions during the time period
associated with the monitoring data
showing attainment.
The emissions inventory submitted
for the Portneuf Valley nonattainment
area plan also meets the attainment
inventory requirements for a
maintenance plan. See our evaluation of
the emissions inventory for the
nonattainment area plan in section II.
The emissions inventory is for the year
2000, a time period associated with the
monitoring data showing attainment.
(Attainment is associated with all three
periods: 1998–2000, 1999–2001, and
2000–2002). We have reviewed this
inventory and found the methodology
used to develop it is consistent with
EPA guidelines. In addition, the
assumptions and calculations were
checked and found to be thorough and
comprehensive.
In summary, the State has adequately
developed an attainment emissions
inventory for 2000 that identifies the
levels of emissions of PM–10 in the
nonattainment area as sufficient to
attain the NAAQS. Thus, we conclude
the State has met the attainment
emissions inventory requirements for
the Portneuf Valley PM–10 maintenance
plan.
2. Maintenance Demonstration
A State may generally demonstrate
maintenance of the NAAQS by either
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showing that future emissions of a
pollutant or its precursors will not
exceed the level of the attainment
inventory, or by modeling to show that
the future mix of sources or its
precursors will not exceed the level of
the attainment inventory, or by
modeling to show that the future mix of
sources and emission rates will not
cause a violation of the NAAQS. Under
the Act, many areas were required to
submit modeled attainment
demonstrations to show that the
proposed reduction in emissions will be
sufficient to attain the applicable
NAAQS. For these areas, the
maintenance demonstration should be
based upon the same level of modeling.
In areas where no such modeling was
required, the state should be able to rely
on the attainment inventory approach.
In both instances, the demonstration
should be for a period of 10 years
following the redesignation.
Idaho uses several analytical tools to
demonstrate maintenance for the
Portneuf Valley PM–10 nonattainment
area. These tools include dispersion
modeling, trend analysis, chemical mass
balance source apportionment and
linear speciated roll forward modeling.
Several tools are used because no single
analytical approach was determined to
be appropriate for this area. As
discussed earlier, the air quality
problem and atmospheric processes in
the Portneuf Valley area are complex.
The highest PM–10 levels in the area
occur in the winter, when cold
temperatures, high relative humidity,
and fog are conducive to the formation
of secondary aerosols. The sources
contributing to the PM–10 levels are
primary PM–10 and precursor
emissions. Sources of primary PM–10
are J.R. Simplot, re-entrained dust from
paved roads, agricultural activity,
residential/commercial construction,
non-agricultural windblown dust, and
to a lesser extent, residential
combustion and motor vehicles.
Precursor emissions are from primarily
stationary sources and to a limited
extent, motor vehicles (cars, trucks, and
locomotives). The topography of the
Portneuf Valley area greatly influences
migratory weather disturbances, making
prediction of wind flow patterns
difficult. Periodically, stagnate air
conditions are established for a period
of several days, which lead to build-up
in PM–10 emissions and elevated PM–
10 concentrations. Pollutant dispersion
during stagnation conditions are
difficult to model.
In light of the complexity of the area,
the State’s reliance on multiple
analytical techniques—dispersion
modeling, trend analysis, chemical mass
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balance source apportionment and
linear speciated roll forward modeling—
is appropriate. When viewed together,
the combined results provide an
adequate showing that the area will
maintain the NAAQS in the future. Our
evaluation of each analytical tool and
overall conclusion is summarized
below.
Dispersion Modeling
Dispersion modeling in the Portneuf
Valley area is a challenge due to the
complex terrain, meteorology, and the
large number and variety of sources
emitting primary particulate and
precursor emissions. In selecting a
model, the State appropriately
considered, among other things,
whether the model could simulate
ambient levels of PM–10 from emissions
of primary particulate, atmospheric
chemical reactions that form secondary
aerosols, complex wind regimes and
local scale dispersion and transport.
Because of its known capabilities in
addressing these and other relevant
factors, CALPUFF, an EPA-preferred
model listed in appendix W of 40 CFR
part 51, was selected.
To assess performance of the model,
the State ran CALPUFF to estimate PM–
10 levels during worst case
meteorological episodes in 1995 and
1999 and compared the predictions to
actual measurements. Model
performance was mixed. On one hand,
estimated PM–10 levels were reasonable
given the uncertainties in the
meteorological data, the emissions
estimates, source characterization and
the model’s characterization of
atmospheric phenomena. On the other
hand, certain estimates raised questions
and indicated a need for alternative
analytical techniques to determine
whether maintenance for the area was
demonstrated. PM–10 levels were
overestimated in the early morning and
at night when the inversion was
established. In addition, the highest
predicted values occurred on days
different from the days they were
observed. Lastly, questionable levels
above the NAAQS in two small areas
could not be verified by monitoring
data. There was extensive refinement of
model inputs to reduce discrepancies
but discrepancies still remained.
Because the dispersion model overall
provided invaluable information in
assessing air quality in the area (i.e., by
providing better understanding of
sources, transport and fate of PM–10
and hot spot locations), the State still
used the model to predict PM–10
concentrations for future years. In these
runs, the model showed maintenance of
the NAAQS in all areas except the same
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two questionable areas identified during
the performance evaluation. Therefore,
alternative analytic tools were used to
more fully understand the modeling
results and to demonstrate maintenance
for the entire nonattainment area.
Ambient Air Quality Data
PM–10 levels have been monitored at
several sites across the Portneuf Valley
nonattainment area since the mid-1980s.
Data from these sites show that the last
violation of the 24 hour PM–10 standard
was reported in 1995.
Annual PM–10 trends at all sites in
the nonattainment area show a
continuous improvement in PM–10 air
quality since monitoring was initiated.
There has been a dramatic decrease in
PM–10 levels near the industrial
complex of Astaris (FMC) and J.R.
Simplot with the addition of controls
and the shutdown of the Astaris (FMC)
manufacturing operations. Annual
average PM–10 concentrations at a site
near the industrial complex have
dropped from 54 µg/m3 in the late
1980’s to 27 µg/m3 in 2001. Air quality
has shown continued improvement at
the other monitoring sites decreasing
from approximately 30 µg/m3 in the late
1980’s to 20 µg/m3 in the last few years.
Average 24 hour PM–10
concentrations have shown similar
dramatic reductions. Peak PM–10 levels
reached 259 µg/m3 at the sewage
treatment plant (STP) site and 232 µg/
m3 at the Idaho State University (ISU)
site in the early 1990’s. Peak
concentrations are 74 µg/m3 in 2001 at
the STP site and 74 µg/m3 in 1999 at the
ISU site. The G&G site reported a peak
concentration of 204 µg/m3 in 1993 and
79 µg/m3 in 2002.
Ambient data confirms that the
control strategies that have been
implemented in the Portneuf Valley
nonattainment area are effective in
reducing PM–10 levels. It is anticipated
that additional emissions reductions
from State and Federal motor vehicle
control programs will continue to result
in declining PM–10 levels in the valley.
In light of ambient air quality
improvement, we conclude that the
ambient air quality data supports a
demonstration of maintenance.
Meteorological Data
Meteorology analysis shows that
improvement in ambient air quality is
not due to favorable meteorology. The
state analyzed days with meteorology
characterized as having poor dispersion
conditions. These conditions are
characterized by a cold high pressure
system with low pressure gradients, low
wind speeds, shallow inversions, and
little or no precipitation. Although
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meteorological data show no discernible
annual trend since 1984, the greatest
number of days that met poor dispersion
conditions criteria occurred in 2001 and
2002. Since there were no exceedances
of the NAAQS in 2001 and 2002, this
indicates that meteorology has not been
a factor in air quality improvement. In
light of no discernible trend in
meteorology while air quality has
improved, we conclude meteorology
data provides further support of a
demonstration of maintenance for the
area.
Emissions Data
An inventory of actual annual
emissions was prepared for the base
year of 2000 and projected for future
years 2010, 2015, and 2020. Calendar
year 2000 represents the base year, 2010
represents an intermediary year, 2015
represents the required ten year
maintenance year, and 2020 represents
the last year of the area’s 20 year
transportation plan for use in long-term
planning.
Historically the highest levels of PM–
10 in the Portneuf Valley nonattainment
area occur in winter, and are dominated
by secondary ammonium sulfate and
ammonium nitrate. Therefore, an
episodic inventory was prepared for
winter conditions. Idaho DEQ selected
December 20 through December 26,
1999, which corresponds to an actual air
stagnation episode during which three
exceedences of the standard were
recorded. The 1999 episodic emissions
inventory was projected out to future
year week-long episodic inventories for
2010, 2015, and 2020. In addition, for
each episodic inventory, weekday and
weekend day inventories were prepared
to account for different levels of activity
depending on the day of the week.
When compared to the 2000 base and
1999 episodic inventories, the State
predicts the emissions of primary
particulate and precursor pollutants will
drop in future years 2010, 2015, and
2020. This decrease in emissions is due
in large part to the permanent closure of
the Astaris (FMC) manufacturing
operations that occurred in 2001. In
light of this projected decline in overall
emissions and our expectation that the
Federal non-road motor vehicle rule and
requirements limiting the sulfur content
in diesel fuel not accounted for by the
State will result in further reductions,
we conclude that the expected decrease
in emissions supports a demonstration
of maintenance out to 2015.
Chemical Mass Balance (CMB) Source
Apportionment
CMB analysis is a method used to
apportion the contribution of different
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sources to measured PM–10 levels. CMB
analysis of PM–10 filters shows that in
the base year, over 50% of the PM–10
mass during high episode days in
Portneuf Valley was ammonium sulfate.
The SO2 emissions, precursors to
ammonium sulfate, have since been
reduced by more than half with the
closure of the FMC manufacturing
operations. In addition, Federal rules
regulating sulfur content in diesel fuel
will dramatically reduce future SO2
emissions from mobile sources.
Future PM–10 concentrations can be
estimated using the highest measured
PM–10 concentration since 1989 of 177
µg/m3, applying the fraction
apportioned to industry and nonindustry, and adjusting for emissions
reduction or growth. By 2015, industry
emissions will decrease by an estimated
60% (compared with base year levels).
Emissions from all other sources are
anticipated to increase 18%. Predictions
using CMB show the projected
maximum PM–10 level will be 133 µg/
m3 in the year 2020. This level is below
the 24-hour PM–10 NAAQS,
demonstrating maintenance for the area.
CMB analysis was also used to better
understand the discrepancies identified
during evaluation of the dispersion
model. The source contributions
predicted by CMB analysis were
compared to the source contributions
predicted by the dispersion model. The
results suggest that the levels predicted
above the NAAQS are due to overestimation of the contribution of vehicle
suspended dust. This over-estimation of
motor vehicle emissions may be due to
under-prediction of wind speeds in
meteorological simulations, thus
artificially enhancing the influence of
the urban (mobile) sources. It is also
plausible that over-predicted
concentrations are due to inadequate
characterization of coarse particulate
matter removal mechanisms which may
over-estimate the impact of re-entrained
road dust.
Linear Speciated Rollback Modeling
Linear speciated rollback modeling is
a simple, spatially averaged
mathematical model that assumes a
linear relationship between ambient
constituents of PM–10 and the area
wide emissions of the corresponding
constituents. The model dis-aggregates
the major airborne particulate
components into chemically distinct
groups that are emitted by different
source types. The model assumes that
ambient PM–10 levels are directly
proportional to emissions.
Anticipated emissions reductions of
primary PM–10, SO2 and NOX result in
predicted PM–10 levels below the level
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of both the annual and 24 hour
standards for all future years out to
2020. The maximum 24 hour PM–10
level of 146 µg/m3 occurs in the base
year, drops to 106 µg/m3 in 2005 and
gradually increases to 111 µg/m3 in
2020. Annual PM–10 levels remain
essentially constant at approximately 26
µg/m3 in the base year and 27 µg/m3 in
2020. Because these projected levels are
below the PM–10 NAAQS, these results
demonstrate maintenance of the area.
In conclusion, dispersion modeling
shows that overall the area will meet the
PM–10 NAAQS at least 10 years into the
future, but that further evaluation is
warranted in light of questionable levels
predicted in two areas. This further
evaluation using trend analysis,
chemical mass balance, and linear
speciated rollback modeling
demonstrates maintenance throughout
the nonattainment area. In light of the
dispersion modeling results and
plausible reasons for the higher levels in
two areas, the difficulty of modeling due
to the complex conditions of the area,
the results from other analytic tools
demonstrating maintenance, the
anticipated reductions from Federal
rules not relied on by the plan, and
contingency measures, as discussed
below, to be implemented in the event
PM–10 levels increase, EPA concludes
that the demonstration by the State
shows that the Portneuf Valley
nonattainment area will maintain the
PM–10 NAAQS at least through the
maintenance year of 2015.
3. State Monitoring of Air Quality To
Verify Continued Attainment
Once an area has been redesignated,
the State must continue to operate an
appropriate air quality monitoring
network in accordance with 40 CFR part
58 to verify the attainment status of the
area. The maintenance plan should
contain provisions for continued
operation of air quality monitors that
will provide such verification. In its
submittal, the State commits to continue
to operate and maintain the network of
PM–10 monitoring stations necessary to
verify ongoing compliance with the
PM–10 NAAQS in the Portneuf Valley
nonattainment area.
4. Contingency Measures
Section 175A(d) of the Act requires
that a maintenance plan include
contingency provisions, as necessary, to
correct promptly any violation of the
NAAQS that occurs after redesignation.
These contingency provisions are
distinguished from those generally
required for nonattainment areas under
section 172(c)(9), which are discussed
above. At a minimum, the contingency
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provisions must include a commitment
that the State will implement all
measures contained in the
nonattainment area plan prior to
redesignation.
The maintenance plan contains three
contingency provisions. The first would
revise the permit to operate a boiler at
the Idaho State University to require a
switch of fuel from coal to natural gas
during a burn ban. This measure will
reduce SO2 emissions and thus reduce
ammonium sulfate levels during periods
of high PM–10.
The second provision addresses wood
smoke emissions. Wood smoke from
residential wood stoves has historically
been a significant contributor to
wintertime PM–10 levels in the Portneuf
Valley non-attainment area. The State
commits to work with the Cities of
Pocatello and Chubbuck to lower the
trigger point for implementing a
residential wood combustion
curtailment program. The current level
is 100 µg/m3 PM–10.
Lastly, the State commits to
conducting additional analyses of the
causes of future reported violations of
the standard. Based on the results of
that analysis the State will consider the
following control measures to resolve
the problem:
• Cover all truck loads that have
potential to emit PM–10.
• Prevent track-out onto paved roads.
• More restrictions on outdoor
burning.
• Institute a vehicle inspection and
maintenance program.
• Expand the residential wood
combustion curtailment programs to
include ‘‘clean burn’’ wood stoves.
• Prohibit construction of unpaved
private roads, driveways, or parking
lots.
• Implement transportation control
measures.
• Implement dust control and
prevention programs including paving
dirt roads and alley ways.
Since the maintenance plan is to
cover the 10 year period after Federal
approval, it is difficult to completely
predict how emissions characteristics
will change. This change in the
character of the potential PM–10
problem is especially significant toward
the ‘‘out-years’’ when the ability to
predict the future is difficult. The
approach used in the maintenance plan
is appropriate since the contingency
measures address sources expected to
cause problems in the near term and
include a commitment to evaluate
conditions in the long term.
In light of the control measures relied
on by the nonattainment area plan, the
identification of additional contingency
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measures above, and the permanent
reductions resulting from the closure of
the Astaris (FMC) manufacturing
operations, we believe the contingency
measure requirements in the Portneuf
Valley maintenance plan meet the
requirements of Section 175A(d) of the
Act.
provisions of the Act need to be met in
order to approve the maintenance plan.
The additional requirements and how
the Portneuf Valley maintenance plan
meets these requirements is discussed
in the TSD accompanying this notice.
5. Transportation Conformity
Under section 176(c) of the Act,
transportation plans, programs, and
projects in nonattainment or
maintenance areas, that are developed,
funded or approved under title 23
U.S.C. or the Federal Transit Laws, must
conform to the applicable SIPs. In short,
a transportation plan is deemed to
conform to the applicable SIP if the
emissions resulting from
implementation of that transportation
plan are less than, or equal to the motor
vehicle emission budget established in
the SIP.
In this maintenance plan, procedures
for estimating motor vehicle emissions
are well documented. Furthermore, the
maintenance demonstration modeling
results indicated that the estimated
motor vehicle emissions for base and
future years will not cause or contribute
to an exceedance of the NAAQS.
Accordingly, we propose to approve the
following motor vehicle emissions
budgets (MVEB) for PM–10 and its
precursors for use in conformity
determinations for PM–10 on future
Transportation Improvement Programs
and Regional Transportation Plans.
These mobile source emissions
represent a combination of vehicle
exhaust, tire wear, brake wear, and road
dust.
Based on our review of the Portneuf
Valley PM–10 maintenance plan
submitted by the State on June 30, 2004,
we conclude that the requirements for
an approvable maintenance plan under
the Act have been met. Therefore, we
are proposing approval of the
maintenance plan submitted for the
Portneuf Valley PM–10 nonattainment
area.
B. What Do We Conclude About the
Maintenance Plan?
IV. Review of Redesignation Request
A. What Criteria Did EPA Use To
Review the Request for Redesignation?
The criteria used to review the
maintenance plan and redesignation
request are derived from the Act, the
General Preamble, and a policy and
guidance memorandum from John
Calcagni, September 4, 1992, Procedures
for Processing Requests to Redesignate
Areas to Attainment. Section
107(d)(3)(E) of the Act states that the
EPA can be redesignate an area to
attainment if the following conditions
are met:
1. The Administrator has determined
the area has attained the NAAQS.
2. The Administrator has fully
approved the applicable
implementation plan under section
110(k).
3. The Administrator has determined
that the improvement in air quality is
due to permanent and enforceable
PORTNEUF VALLEY, IDAHO PM–10
MOTOR VEHICLE EMISSIONS BUDGET reductions in emissions.
4. The State has met all applicable
VOC
PM–10
NOX
requirements for the area under section
Year
(t/yr)
(t/yr)
(t/yr)
110 and Part D.
5. The Administrator has fully
2005 ......
897
1,575
983
2010 ......
1,120
1,085
716 approved a maintenance plan, including
2020 ......
1,364
514
585 a contingency plan, for the area under
section 175A.
The MVEB was found to be adequate
1. Attainment Determination
for conformity purposes on August 31,
As discussed earlier, an area has
2004. (69 FR 56052, September 17,
2004.) The Plan provides for reductions attained the 24-hour PM–10 NAAQS
when the average number of expected
in residential wood combustion, road
exceedances per year is less than or
sanding, and industrial emissions.
equal to one, when averaged over a
Control measures required by the
three year period. To make this
maintenance plan do not directly
include transportation measures as they determination, three consecutive years
of complete ambient air quality data
are not required for the maintenance
must be collected in accordance with
demonstration.
Federal requirements (40 CFR part 58,
6. Additional Requirements for
including appendices). On July 5, 2002,
Maintenance Plans
EPA published a finding that the
In addition to the core requirements
Portneuf Valley PM–10 nonattainment
of section 175(A) discussed above, other area attained the PM–10 NAAQS by the
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applicable attainment date. Subsequent
air monitoring data shows that the area
has continued to meet both NAAQS for
every three year period since the
attainment date.
2. Fully Approved Nonattainment Area
Plan
States containing initial moderate
PM–10 nonattainment areas were
required to submit a SIP revision which
implements reasonably available control
measures (RACM) and demonstrates
attainment of the PM–10 NAAQS by the
attainment date. The SIP for the area
must be fully approved under section
110(k) of the Act, and must satisfy all
requirements that apply to the area. In
this notice we are proposing to fully
approve the nonattainment area plan
submitted by the State for the Portneuf
Valley PM–10 nonattainment area.
3. Permanent and Enforceable
Improvements in Air Quality
The State must be able to reasonably
attribute the improvement in air quality
to permanent and enforceable reduction
in emissions. The State provides a
historical analysis of meteorology in the
Pocatello area to show that trends in
improving air quality are not the result
of meteorological conditions. As
discussed above, there has been no
discernible trend in meteorology while
air quality has continued to improve.
Therefore we conclude that the
improvements in air quality are the
result of emissions reductions from the
shut down of the Astaris (FMC)
manufacturing operations, controls
related to road sanding, and the area’s
wood stove program and not from a
change in meteorological conditions.
Based on the State’s analysis, and our
earlier conclusion that the control
measures in place in the nonattainment
area are permanent and enforceable, we
believe that Idaho has demonstrated air
quality improvements are the result of
permanent enforceable emissions
reductions.
4. Other Planning Requirements
The September 1992 Calcagni
memorandum directs states to meet all
of the applicable section 110 and Part D
planning requirements for redesignation
purposes. Thus, EPA interprets the Act
to require state adoption and EPA
approval of the applicable programs
under section 110 and Part D that were
due prior to the submission of a
redesignation request, before EPA may
approve a redesignation request. How
the State has met these requirements is
discussed below.
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5. Section 110 Requirements
Section 110(a)(2) of the Act contains
general requirements for
implementation plans. These
requirements include, but are not
limited to, submission of a SIP that has
been adopted by the State after
reasonable notice and public hearing;
provisions for establishment and
operation of appropriate apparatus,
methods, systems and procedures
necessary to monitor ambient air
quality; implementation of a permit
program; provisions for Part C—
Prevention of Significant Deterioration
(PSD) and Part D—New Source Review
(NSR) permit programs; criteria for
stationary source emissions control
measures, monitoring and reporting,
provisions for modeling; and provisions
for public and local agency
participation. See the General Preamble
for further explanation of these
requirements. 57 FR 13498 (April 16,
1992).
For purposes of redesignation, review
of the Idaho SIP shows that the State has
satisfied all requirements under the Act.
Further, in 40 CFR 52.673, EPA has
approved Idaho’s SIP for the attainment
and maintenance of the national
standards under Section 110.
6. Part D Requirements
Part D consists of general
requirements applicable to all areas
which are designated nonattainment
based on a violation of the NAAQS. The
general requirements are followed by a
series of subparts specific to each
pollutant. All PM–10 nonattainment
areas must meet the applicable general
provisions of subpart 1 and the specific
PM–10 provisions in subpart 4,
‘‘Additional Provisions for Particulate
Matter Nonattainment Areas.’’ The
following paragraphs discuss these
requirements as they apply to the
Portneuf Valley nonattainment area.
7. Section 172(c) Plan Provisions
Requirements
Subpart 1, section 172(c) contains
general requirements for nonattainment
area plans. A thorough discussion of
these requirements may be found in the
General Preamble. 57 FR 13538 (April
16, 1992). The requirements for
reasonable further progress,
identification of certain emissions
increases, and other measures needed
for attainment are satisfied in our
proposed approval in this notice of the
nonattainment area plan for the
Portneuf Valley PM–10 nonattainment
area. The requirement for an emissions
inventory is satisfied by the completion
of inventories for the nonattainment
PO 00000
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29251
area plan and maintenance plan. The
requirements of the Part D New Source
Review (NSR) program will be replaced
by the Part C Prevention of Significant
Deterioration (PSD) program for PM–10
upon the effective date of this
redesignation action. The Federallyapproved PSD regulations for Idaho can
be found at IDAPA 16.01.012,07, as
incorporated by reference by EPA on
July 28, 1982 (47 FR 32531), and most
recently amended on January 16, 2003
(68 FR 2217).
8. Subpart 4 Requirements
Part D, subpart 4, section 189(a), (c)
and (e) requirements apply to any
moderate nonattainment area before the
area can be redesignated to attainment.
The requirements which were
applicable prior to the submission of the
request to redesignate the area must be
fully approved into the SIP before
redesignating the area to attainment.
These requirements are discussed
below:
(a) Provisions to assure that RACM
was implemented by December 10,
1993;
(b) Either a demonstration that the
plan provided for attainment as
expeditiously as practicable but not
later than December 31, 1994, or a
demonstration that attainment by that
date was impracticable;
(c) Quantitative milestones which
were achieved every 3 years and which
demonstrate reasonable further progress
(RFP) toward attainment by December
31, 1994; and
(d) Provisions to assure that the
control requirements applicable to
major stationary sources of PM–10 also
apply to major stationary sources of
PM–10 precursors, except where the
Administrator determined that such
sources do not contribute significantly
to PM–10 levels which exceed the
NAAQS in the area.
In this document EPA is proposing to
approve the nonattainment area plan for
the Portneuf Valley PM–10
nonattainment area containing the
elements meeting requirements (a)
through (d) above.
States with PM–10 nonattainment
areas were required to submit a permit
program for the construction and
operation of new and modified major
stationary sources of PM–10 by June 30,
1992. States also were to submit
contingency measures by November 15,
1993, which become effective without
further action by the State or EPA, upon
a determination by EPA that the area
has failed to achieve RFP or to attain the
PM–10 NAAQS by the applicable
statutory deadline. See sections
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29252
Federal Register / Vol. 70, No. 97 / Friday, May 20, 2005 / Proposed Rules
172(c)(9) and 189(a) and 57 FR 13543–
13544.
Idaho has presented an adequate
demonstration that it has met the
requirements applicable to the area
under section 110 and Part D. The Part
D NSR rules for PM–10 nonattainment
areas in Idaho were approved by EPA on
July 23, 1993 (58 FR 39445) and
amended provisions were approved by
EPA on January 16, 2003 (68 FR 2217).
The Clean Air Act requires that
contingency measures take effect if the
area fails to meet reasonable further
progress requirements or fails to attain
the NAAQS by the applicable
attainment date. The Portneuf Valley
PM–10 nonattainment area attained the
NAAQS for PM–10 by the applicable
attainment date of December 31, 1996.
Therefore, contingency measures no
longer are required under section
172(c)(9) of the Act. Contingency
measures are also required for
maintenance plans under section
175A(d). Idaho has provided
contingency measures in the
maintenance plan for the Portneuf
Valley PM–10 nonattainment area. The
contingency measures in the
maintenance plan are discussed in
section III above.
B. What Do We Conclude About the
Request for Redesignation?
Based on our review of the
nonattainment area plan, the
maintenance plan, and the request for
redesignation request submitted for the
Portneuf Valley PM–10 nonattainment
area on June 30, 2004, we conclude that
all the requirements for redesignation in
section 107(d)(3)(E) have been met.
Therefore, we are proposing to
redesignate the Portneuf Valley PM–10
nonattainment area to attainment.
V. 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
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 proposed action merely
proposes to approve state law as
meeting Federal requirements and
imposes no additional requirements
beyond those imposed by state law.
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
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15:24 May 19, 2005
Jkt 205001
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 (Public Law 104–4).
This proposed rule also does not have
tribal implications because it will 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
(65 FR 67249, November 9, 2000). This
action also does not have federalism
implications because it does not 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). This action merely
proposes to approve a state rule
implementing a Federal standard, and
does not alter the relationship or the
distribution of power and
responsibilities established in the Clean
Air Act. This proposed rule also is not
subject to Executive Order 13045
‘‘Protection of Children from
Environmental Health Risks and Safety
Risks’’ (62 FR 19885, April 23, 1997),
because it is not economically
significant.
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. 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. This proposed
rule does not impose an information
collection burden under the provisions
of the Paperwork Reduction Act of 1995
(44 U.S.C. 3501 et seq.).
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List of Subjects
40 CFR Part 52
Environmental protection, Air
pollution control, Incorporation by
reference, Intergovernmental relations,
Particulate matter, Reporting and
recordkeeping requirements.
40 CFR Part 81
Environmental protection, Air
pollution control, National parks,
Wilderness areas.
Dated: May 10, 2005.
Julie M. Hagensen,
Acting Regional Administrator, Region 10.
[FR Doc. 05–10149 Filed 5–19–05; 8:45 am]
BILLING CODE 6560–50–P
FEDERAL COMMUNICATIONS
COMMISSION
47 CFR Part 76
[MB Docket No. 05–181; FCC 05–92]
Implementation of Section 210 of the
Satellite Home Viewer Extension and
Reauthorization Act of 2004 To Amend
Section 338 of the Communications
Act
Federal Communications
Commission.
ACTION: Proposed rule; correction.
AGENCY:
SUMMARY: This document corrects a
Notice of proposed rulemaking
summary that was published in the
Federal Register at 70 FR 24350, May 9,
2005. In this document, the Commission
corrects the DATES section of the
preamble to reflect correct comment due
dates.
DATES: Comments for this proceeding
are due on or before June 6, 2005; reply
comments are due on or before June 20,
2005. Written comments on the
proposed information collection
requirements contained in this
document must be submitted by the
public, the Office of Management and
Budget (OMB), and other interested
parties on or before July 8, 2005.
ADDRESSES: You may submit comments,
identified by MB Docket No. 05–181, by
any of the following methods:
• Federal eRulemaking Portal: https://
www.regulations.gov. Follow the
instructions for submitting comments.
• Federal Communications
Commission’s Web Site: https://
www.fcc.gov/cgb/ecfs/. Follow the
instructions for submitting comments.
• People with Disabilities: Contact
the FCC to request reasonable
accommodations (accessible format
documents, sign language interpreters,
E:\FR\FM\20MYP1.SGM
20MYP1
]]>Agencies
[Federal Register Volume 70, Number 97 (Friday, May 20, 2005)]
[Proposed Rules]
[Pages 29243-29252]
From the Federal Register Online via the Government Printing Office [www.gpo.gov]
[FR Doc No: 05-10149]
-----------------------------------------------------------------------
ENVIRONMENTAL PROTECTION AGENCY
40 CFR Parts 52 and 81
[R10-OAR-2005-ID-0001; FRL-7915-7]
Approval and Promulgation of Implementation Plans and Designation
of Areas for Air Quality Planning Purposes: Portneuf Valley, Idaho,
Area
AGENCY: Environmental Protection Agency.
ACTION: Proposed rule.
-----------------------------------------------------------------------
SUMMARY: The Environmental Protection Agency (EPA, Agency, or we)
proposes to approve revisions to the Idaho State Implementation Plan
(SIP) for particulate matter with an aerodynamic diameter less than or
equal to a nominal ten micrometers (PM-10) for the Portneuf Valley
nonattainment area. The revisions include a nonattainment area plan
that brought the area into attainment by the applicable attainment date
of December 31, 1996, a maintenance plan that will provide for
maintaining the PM-10 national ambient air quality standards (NAAQS)
ten years into the future, and a request to redesignate the Portneuf
Valley nonattainment area to attainment for PM-10. We are proposing to
approve these revisions because we believe the State adequately
demonstrates that the control measures being implemented in the
Portneuf Valley result in attainment and maintenance of the PM-10
National Ambient Air Quality Standards and that all other requirements
of the Clean Air Act for redesignation to attainment are met.
DATES: Comments must be received on or before June 20, 2005.
ADDRESSES: Submit your comments, identified by Docket ID No. R10-OAR-
2005-ID-0001, by one of the following methods:
1. Federal eRulemaking Portal: https://www.regulations.gov. Follow
the on-line instructions for submitting comments.
2. Agency Web site: https://www.epa.gov/edocket. EDOCKET, EPA's
electronic public docket and comment system, is EPA's preferred method
for receiving comments. Follow the on-line instructions for submitting
comments.
3. E-mail: r10.aircom@epa.gov.
4. Mail: Office of Air, Waste and Toxics, Environmental Protection
Agency, Attn: Steve Body, Mailcode: AWT-107, 1200 Sixth Avenue,
Seattle, WA 98101.
5. Hand Delivery: Environmental Protection Agency Region 10, Attn:
Steve Body (AWT-107), 1200 Sixth Ave., Seattle, WA 98101, 9th floor
mail room. Such deliveries are only accepted during EPA's normal hours
of operation, and special arrangements should be made for deliveries of
boxed information.
Instructions: Direct your comments to Docket ID No. R10-OAR-2005-
ID-0001. EPA's policy is that all comments received will be included in
the public docket without change, 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 regulations.gov or e-
mail. The EPA EDOCKET and the Federal regulations.gov website are 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 EDOCKET or 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 docket are listed in the EDOCKET index
at https://www.epa.gov/edocket. Although listed in the index, some
information may not be publicly available, such as 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
EDOCKET or in hard copy at EPA Region 10, Office of Air Quality, 1200
Sixth Avenue, Seattle, Washington, from 8 a.m. to 4:30 p.m. Monday
through Friday, excluding legal holidays. Please contact the individual
listed in the FOR FURTHER INFORMATION CONTACT section to schedule your
review of these records.
FOR FURTHER INFORMATION CONTACT: Steve Body, Office of Air, Waste and
Toxics, Region 10, AWT-107, Environmental Protection Agency, 1200 Sixth
Ave., Seattle, WA 98101; phone: (206) 553-0782; fax number: (206) 553-
0110; e-mail address: body.steve@epa.gov.
SUPPLEMENTARY INFORMATION:
Table of Contents
I. General Overview
A. What action are we taking?
B. What is the background for this action?
1. Description of Area
2. Description of Air Quality Problem
3. Designation History of the Nonattainment Area
4. SIP Submittal History of the Nonattainment Area
C. What impact does this action have on the Portneuf Valley
community?
II. Review of Nonattainment Area Plan
A. What criteria did EPA use to review the nonattainment area
plan?
1. New Source Review Permit Program
2. Demonstration of Attainment
3. Reasonably Available Control Measures (RACM) including
Reasonably Available Control Technology (RACT)
4. Major Stationary Sources of PM-10 Precursors
5. Emissions Inventory Requirements
6. Enforceable Emission Limitations and Other Control Measures
7. Additional Requirements for Nonattainment Area Plans
B. What do we conclude about the nonattainment area plan?
III. Review of Maintenance Plan
A. What criteria did EPA use to review the maintenance plan?
1. Attainment Emissions Inventory
2. Maintenance Demonstration
3. State Monitoring of Air Quality to Verify Continued
Attainment
4. Contingency Measures
5. Transportation Conformity
[[Page 29244]]
6. Additional Requirements for Maintenance Plans
B. What do we conclude about the maintenance plan?
IV. Review of Redesignation Request
A. What criteria did EPA use to review the request for
redesignation?
1. Attainment Determination
2. Fully Approved Nonattainment Area Plan
3. Permanent and Enforceable Improvements in Air Quality
4. Other Planning Requirements
5. Section 110 Requirements
6. Part D Requirements
7. Section 172(c) Plan Provisions Requirements
8. Subpart 4 requirements
B. What do we conclude about the request for redesignation?
V. Statutory and Executive Order Reviews
I. General Overview
A. What Action Are We Taking?
We are proposing to approve the State Implementation Plan (SIP)
revision for PM-10 submitted on June 30, 2004, by the State of Idaho
Division of Environmental Quality (IDEQ) for the Portneuf Valley PM-10
nonattainment area. The revision includes a nonattainment area plan,
maintenance plan, and a request to redesignate the Portneuf Valley
nonattainment area to attainment for PM-10. We are proposing to approve
these two plans and the request for redesignation because we believe
the State adequately demonstrates that the control measures being
implemented in the Portneuf Valley result in attainment and maintenance
of the PM-10 National Ambient Air Quality Standards (NAAQS) and that
all other requirements of the Clean Air Act (the Act) for redesignation
to attainment are met.
B. What Is the Background for This Action?
1. Description of Area
The Portneuf Valley, Idaho PM-10 nonattainment area is located in
southeastern Idaho and includes the Cities of Pocatello and Chubbuck.
For a legal description of the boundaries, see 40 CFR 81.313. The
nonattainment area covers 96.6 square miles and the combined population
of the two cities is approximately 76,000.
The topography of the Portneuf Valley area is complex. The City of
Pocatello lies in the Portneuf Valley at an elevation of approximately
4500 feet. The Pocatello Mountain Range, with elevations reaching 9000
feet above mean sea level (MSL), forms the east side of the Valley and
the Bannock Mountain Range, reaching 7500 feet above MSL, lies to the
west. The Portneuf Valley empties into the Snake River plain.
The Portneuf Valley is arid with significant variation in
temperature between winter and summer seasons. Winter average
temperature is 24.4 degrees Fahrenheit. Winter and spring are
characterized by brisk southwest winds of 20 to 30 miles per hour (mph)
which often persist for days. Migratory weather disturbances are
greatly influenced by the complex terrain, making prediction of wind
flow patterns difficult. Periodically, stagnate air conditions are
established for a period of several days that can lead to elevated PM-
10 levels. July is the warmest month with an average temperature of
69.2 degrees Fahrenheit. Annual rainfall of 12.5 inches is distributed
throughout the year with a maximum in the spring. Average snow fall is
41.7 inches.
2. Description of Air Quality Problem
The highest PM-10 levels in the Portneuf Valley nonattainment area
occur in the winter. Cold temperature, high relative humidity, and fog
are conducive to sulfur dioxide (SO2) rapidly reacting with ammonia in
the atmosphere to create ammonium sulfate. Also during these
conditions, oxides of nitrogen (NOX) react with ammonia to
create ammonium nitrate. These winter conditions are also often
associated with stagnation episodes. Very little ventilation occurs
through vertical mixing or by horizontal transport out of the valley.
Without a means of ventilation, PM-10 levels increase day-to-day from
both primary and secondary formation, and tend to peak by the third day
of a stagnation episode. Sources of primary PM-10 are J.R. Simplot, re-
entrained dust from paved roads, agricultural activity, residential/
commercial construction, non-agricultural windblown dust, and to a
lesser extent, residential combustion and motor vehicles. Sources of
precursor emissions resulting in secondary PM-10 formation are from one
stationary source and to a limited extent, motor vehicles (cars,
trucks, and locomotives).
Secondary PM-10 in the Portneuf Valley has been measured during
these winter stagnation events at more than 50 percent of the total PM-
10 mass. In extreme events, snow cover is present for an extended
period which increases radiative cooling and maintains temperature near
or below the freezing point, heightens the strength and depth of the
deep stable layer, and promotes the formation of valley fog. The
breakup of the stagnation episode is usually accompanied by
precipitation.
3. Designation History of the Nonattainment Area
On July 1, 1987, (52 FR 24634), the Environmental Protection Agency
revised the NAAQS for particulate matter with a new indicator that
includes only those particles with an aerodynamic diameter less than or
equal to a nominal 10 micrometers (PM-10). See 40 CFR 50.6. The 24-hour
primary PM-10 standard is 150 micrograms per cubic meter ([mu]g/
m3), with no more than one expected exceedance per year over
a three year period. The annual primary PM-10 standard is 50 [mu]g/
m3 expected annual arithmetic mean over a three year period.
The secondary PM-10 standards are identical to the primary standards.
On August 7, 1987, (52 FR 29383), EPA identified a number of areas
across the country as PM-10 ``Group I'' areas of concern, i.e., areas
with a 95% or greater likelihood of violating the PM-10 NAAQS and
requiring substantial SIP revisions. What is now known as the Portneuf
Valley nonattainment area was originally part of a Group I area called
``Power-Bannock Counties (Pocatello),'' an area subsequently designated
as a moderate PM-10 nonattainment area by the Act. See also 56 FR
11101. This original nonattainment area has gone through two boundary
changes. First, on June 12, 1995, EPA corrected the ``Power-Bannock
Counties (Pocatello)'' boundaries to more closely represent the air
shed in which the City of Pocatello is located. 61 FR 29667. Second, on
November 5, 1998, EPA granted a request from the State to divide the
nonattainment area (as corrected) into two areas separated by the Fort
Hall Indian Reservation boundary. 63 FR 59722. The area consisting of
land under State jurisdiction is now identified as the Portneuf Valley
nonattainment area, and the area consisting of land within the exterior
boundary of the Fort Hall Indian Reservation is now identified as the
Fort Hall nonattainment area. See 40 CFR 81.313. Today's proposed
approval of the nonattainment area plan, maintenance plan, and
redesignation request applies only to the Portneuf Valley nonattainment
area.
4. SIP Submittal History of the Nonattainment Area
Under the Act, the State of Idaho was required to submit a PM-10
SIP (or ``nonattainment area plan'') for the Power-Bannock Counties
(Pocatello) nonattainment area for meeting the PM-10 NAAQS. In March
1993, Idaho submitted a PM-10 SIP (1993 SIP) to
[[Page 29245]]
meet this requirement. Among other things the 1993 SIP submittal
addressed primary particulate and made a finding that PM-10 precursors
were an insignificant contributor to violations of the PM-10 standard.
Under the Act, control requirements for major stationary sources of PM-
10 also apply to major stationary sources of PM-10 precursors, except
where such sources do not contribute significantly to PM-10 levels
which exceed the standards in the area. However, because PM-10
precursors were not insignificant in the area and the 1993 SIP
submittal did not address them, the State was required to submit a
revised plan.
On February 26, 1999, the State submitted the ``Portneuf Valley
Particulate Matter (PM-10) Air Quality Improvement Plan, 1998-1999''
(1999 SIP). In June 2000, EPA informed the State that although the 1999
SIP submittal addressed PM-10 precursors, the 1999 SIP submittal was
inadequate, specifically with respect to transportation conformity and
the motor vehicle emissions budget. The State was required to submit a
revised plan.
On June 30, 2004, the State submitted the ``Portneuf Valley PM-10
Nonattainment Area State Implementation Plan, Maintenance Plan, and
Redesignation Request'' (June 30, 2004 SIP submittal). This submittal
contains a nonattainment area plan (replacing the State's 1993 and 1999
SIP submittals), a maintenance plan, and a request for redesignation to
attainment. We are proposing to approve both plans and the request for
designation to attainment based on our evaluation below. See the
Technical Support Document (TSD) accompanying this notice for further
supporting documentation.
C. What Impact Does This Action Have on the Portneuf Valley Community?
EPA's approval of the State's June 30, 2004, SIP submittal (that
is, approval of the nonattainment area plan, maintenance plan, and
redesignation request) would result in redesignation of Portneuf Valley
to a PM-10 attainment area. A redesignation to attainment would relieve
the Portneuf Valley area of certain obligations currently in place
because of its nonattainment status. In the event of new sources in the
area, minor New Source Review (NSR) and Prevention of Significant
Deterioration (PSD) requirements would apply.
Although the SIP revision contains emissions reduction control
measures that impact residential wood combustion, roadways, and
industrial facilities, these control measures are already in place and
are enforceable by the State. Therefore, our approval of these measures
now has little or no additional regulatory impact on the Portneuf
Valley community.
II. Review of Nonattainment Area Plan
A. What Criteria Did EPA Use To Review the Nonattainment Area Plan?
The air quality planning requirements for moderate PM-10
nonattainment areas are set out in subparts 1 and 4 of Part D, Title I
of the Act. The EPA has issued a ``General Preamble'' describing EPA's
preliminary views on the how EPA intends to review SIP's and SIP
revisions submitted under Title I of the Act, including those State
submittals containing provisions to implement the moderate PM-10
nonattainment area SIP requirements. See generally 57 FR 13498 (April
16, 1992) and 57 FR 18070 (April 28, 1992).
Under section 189(a) of the Act, States containing initial moderate
PM-10 nonattainment areas are required to submit an implementation plan
that includes the following elements:
1. An approved permit program for construction of new or modified
major stationary sources of PM-10.
2. A demonstration that the plan provides for attainment by the
applicable attainment date or that attainment by such date is
impracticable.
3. Provisions to assure that reasonably available control
technology (RACT) is implemented.
Below is a discussion of how the Portneuf Valley nonattainment area
plan meets the requirements of section 189(a) and associated
requirements in section 172(c)(1) and (5). We also discuss how the
nonattainment area plan meets certain other provisions of section 189
and Part D (specifically the PM-10 precursor control provision in
section 189(e), the emissions inventory requirement in section
172(c)(3) and the requirement for enforceable control measures in
section 110(a)(2)(A)). For discussion of how other requirements in
section 189, Part D, and section 110(a)(2) are met, see the TSD
accompanying this document.
1. New Source Review Permit Program
Section 189(a)(1)(A) of the Act requires, ``For the purpose of
meeting the requirements of section 172(c)(5), a permit program
providing that permits meeting the requirements of section 173 are
required for construction and operation of new and modified major
sources of PM-10.''
Section 189(a) and section 172(c)(5) require each nonattainment
area plan to provide for permits for the construction and operation of
new or modified major stationary sources anywhere in the nonattainment
area. The Act requires a permit program for the construction and
operation of new and modified major stationary sources of PM-10 located
in moderate nonattainment areas (known as ``nonattainment area NSR'').
EPA approved nonattainment NSR rules for PM-10 nonattainment areas in
Idaho on July 23, 1993 (58 FR 39445), and amended provisions were
approved by EPA on January 16, 2003 (68 FR 2217). See 60 FR 28726 (June
2, 1995). Therefore, the State has met this permit program requirement.
2. Demonstration of Attainment
Section 189(a)(1)(B) of the Act requires either a demonstration
(including air quality modeling) that the plan will provide for
attainment by the applicable attainment date or a demonstration that
attainment by such date is impracticable.
The initial attainment date for the Power-Bannock Counties
(Pocatello) nonattainment area (and therefore the Portneuf Valley
nonattainment area) was established by operation of law as no later
than December 31, 1994. See section 189(c)(1) of the Act. Section
189(d) of the Act provides criteria by which the Administrator may
grant two, 1-year extensions to the attainment date. The State met the
requirements for extending the attainment date and EPA granted two 1-
year extensions. 61 FR 20730 and 61 FR 66602. Consequently, the
attainment date for the Portneuf Valley nonattainment area is December
31, 1996.
To demonstrate attainment, the State relies on a combination of
supporting evidence. First it points to ambient air quality monitoring
data showing the area attained both the 24-hour and annual PM-10 NAAQS
as of December 31, 1996. We published an official finding of attainment
by this date in a Federal Register notice on July 5, 2002, 67 FR 48552.
Subsequent air monitoring data shows that the area has continued to
meet both NAAQS for every three year period since the attainment date.
Thus, monitoring data as of and since the attainment date demonstrates
attainment of the NAAQS.
Second, the State relies on emissions reduction measures from
sources impacting the nonattainment area to bring the area into
attainment. These measures include stationary source controls,
residential wood burning controls, outdoor burning controls, and road
sanding emissions reduction measures. With these measures in place,
there have been no further violations of the 24-hour or annual PM-10
NAAQS
[[Page 29246]]
in the nonattainment area, thus, providing further support of a
demonstration of attainment. Each specific control measure is discussed
in more detail in the TSD.
Finally, the State relies on speciated linear rollback modeling.
The rollback model uses filter analyses, emissions inventories, and
chemical source profiles to assess the impacts of sources and source
groups on PM-10 concentrations. For the Portneuf Valley nonattainment
area, the model predicts a 24-hour PM-10 level of 146 [mu]g/
m3 in 2000, then a decrease to 103 [mu]g/m3 by
2005 followed by a gradual increase up to 111 [mu]g/m3 in
2020. These predicted levels also demonstrate attainment of the NAAQS.
Based on air quality data for the area since the attainment date,
control measures that have been implemented without further violation
of the NAAQS and speciated linear rollback modeling showing attainment
in the year 2000, we conclude that the state has adequately
demonstrated attainment of the PM-10 NAAQS.
3. Reasonably Available Control Measures (RACM) Including Reasonably
Available Control Technology (RACT)
Section 189(a)(1)(C) of the Act requires that moderate area SIPs
contain ``reasonably available control measures'' (RACM) for the
control of PM-10 emissions. Section 172(c)(1) of the Act, in turn,
provides that RACM for nonattainment areas shall include ``such
reductions in emissions from existing sources in the area as may be
obtained through the adoption, at a minimum, of reasonably available
control technology* * *''. Read together, these provisions require that
moderate area PM-10 SIPs include RACM and RACT for existing sources of
PM-10 emissions.
The General Preamble provides further guidance on interpretation of
the requirement for RACM and RACT. Congress, in enacting the amended
Act, did not use the word ``all'' in conjunction with RACT. Thus, it is
possible that a State could demonstrate that an existing source in an
area should not be subject to a control technology especially where
such a control is unreasonable in light of the specific area's
individual attainment needs or is infeasible. EPA recommends that
available control technology be applied to those existing sources in
the nonattainment area that are reasonable to control in light of the
feasibility of such controls and the individual attainment needs of the
specific area.
The nonattainment area plan contains a description of available
control measures that the State determined to be reasonable. For
agricultural area sources, control measures qualifying as RACM include
best management practices and land conservation practices for
agricultural activities under the Federal Food Security Act of 1985
(FSA), as amended in 1996 and 2002, (see 16 U.S.C. 3801-3862). Control
measures for other area sources include a certified wood stove
ordinance, a mandatory residential wood combustion curtailment program,
tax and other incentives for non-certified wood stove replacements, an
air pollution emergency rule (open burning ban) and city, county and
state written agreements to reduce road sanding emissions. These
measures are consistent with measures identified as RACM in Appendix C
to the General Preamble. 57 FR 18070 (April 28, 1992). Federal area
source requirements that were relied on by the State and qualify as
RACM include Tier 2 Federal Motor Vehicle Emissions requirements. (65
FR 6698, February 10, 2000, as amended on April 13, 2001, June 3, 2002,
and December 6, 2002). The State did not rely on emissions reductions
from the Federal non-road motor vehicle rule (69 FR 38958, June 29,
2004) or requirements limiting the sulfur content in diesel fuel (66 FR
5002, January 18, 2001). These measures provide additional reductions.
For industrial sources, the nonattainment area plan contains an
analysis of RACT for the J.R. Simplot, Don Plant (J.R. Simplot), the
single largest industrial source of both primary particulate and
precursor emissions in the area. This is the only industrial source for
which Idaho assessed RACT because it is the only major stationary
source in the nonattainment area. Based on its evaluation, the State
determined that construction and installation of additional control
technology is not required to implement RACT. However, for some
emission units at J.R. Simplot, the State established more restrictive
emission limits. These new emission limits are reasonable because the
source has already demonstrated that it is meeting these limits and
require no additional cost to the source. The State included the new
limits in a Tier II operating permit 077-00006 and has
submitted the permit as part of the June 30, 2004 SIP revision. See the
TSD accompanying this notice for additional discussion of the permit
limits.
The State also relies on emissions reductions from Astaris (FMC),
an elemental phosphorus facility located in the adjacent Fort Hall
nonattainment area. Astaris (FMC) was a major source of PM-10 and PM-10
precursors until it permanently ceased manufacturing operations in
2001.
Based on Appendix C in the General Preamble, the State's evaluation
of RACT and RACM for sources contributing to PM-10 concentrations in
the nonattainment area, and the individual attainment needs of this
specific area, we conclude that the State has met the requirements for
implementing RACM and RACT on sources of PM-10 and precursor emissions
in the non-attainment area.
4. Major Stationary Sources of PM-10 Precursors
Section 189(e) of the Clean Air Act provides that control
requirements for major stationary sources of PM-10 shall also apply to
major stationary sources of PM-10 precursors, except where the
Administrator determines that such sources do not contribute
significantly to PM-10 levels which exceed the standards in the area.
Secondary ammonium sulfate and ammonium nitrate are a significant
fraction of the highest PM-10 concentrations reported for the Portneuf
Valley nonattainment area. J.R. Simplot is the only major stationary
source of these precursor emissions in the area. Therefore, RACT
(discussed above) has been established for J.R. Simplot. In light of
the control requirements established for this major stationary source
of PM-10 precursors, we conclude that the requirements of Section
189(e) are met.
5. Emissions Inventory Requirements
Section 172(c)(3) requires each plan to include a comprehensive,
accurate, current inventory of actual emissions from all sources of the
relevant pollutants in such area. From this inventory, emissions can be
compared to measured air quality to estimate emissions reductions
needed to attain the standard if violations of the standard are
reported. Where measured air quality is below the standard, the
comparison can be used to estimate how much emissions may be allowed to
increase and still protect the ambient air quality standard. Emissions
estimates are also a key component to predicting future air quality
through use of dispersion modeling. The inventory should be consistent
with EPA's most recent guidance on emissions inventories for
nonattainment areas available at the time and should include the
emissions during the time period associated with the monitoring data
showing attainment.
Idaho selected calendar year 2000 for the emissions inventory
because it represents the most recent year for which valid ambient air
quality data
[[Page 29247]]
was available. The emissions inventory covers all sources within the
boundaries of the nonattainment area, and also includes sources outside
the boundaries of the nonattainment area for purposes of dispersion
modeling. The inventory includes direct sources of PM-10 as well as
sources of the following precursors to PM-10: ammonia, nitrogen oxides,
sulfur oxides, and volatile organic compounds. The sources covered by
the inventory fall into four major source categories: Point sources,
area sources, on-road mobile sources, and non-road mobile sources.
The largest contributors of primary PM-10 and precursor emissions
within the nonattainment area for 2000 are as follows:
PM-10: J.R. Simplot, re-entrained dust from paved roads, agricultural
activity, residential/commercial construction, non-agricultural
windblown dust
NOX: J.R. Simplot, On-road and non-road mobile sources
(including locomotives)
SOx: J.R. Simplot
NH3: J.R. Simplot
VOC: J.R. Simplot, solvent usage, gasoline marketing, biogenic,
residential/commercial construction, on-road and non-road mobile
We have reviewed the emissions inventory and have found the methods
used to develop it are consistent with EPA guidelines. In addition, the
assumptions and calculations were checked and found to be thorough and
comprehensive.
In summary, the State has adequately developed an emissions
inventory for 2000 that identifies the levels of emissions of PM-10 in
the nonattainment area as sufficient to attain the NAAQS. Thus, we
conclude the inventory meets the inventory requirements for a
nonattainment area plan.
6. Enforceable Emission Limitations and Other Control Measures
Section 110(a)(2)(A) requires the plan to include enforceable
emission limitations and other control measures as may be necessary or
appropriate to meet the applicable requirements of this Act. As
discussed above, the area is using agricultural best management
practices, motor vehicle fuel emissions standards, residential wood
combustion ordinances, road sanding agreements, and an operating permit
for J.R. Simplot to meet RACT/RACM requirements. Agricultural best
management practices and motor vehicle fuel emissions standards are
called for through Federal legislation or regulations. The wood stove
curtailment programs is implemented through enforceable city ordinances
in coordination with IDEQ. The stationary source emission limits are
included in permits issued under a Federally-approved and enforceable
operating permit program. Although the winter road sanding and de-icing
agreements with county and municipal governments are not enforceable,
they have been consistently followed in the 10 years since the
agreements were first made in 1993 because of economic advantages. In
light of the regulations, ordinances, and agreements and other things
in place to ensure these control measures are implemented, we conclude
that the requirements of section 110(a)(2)(A) have been met.
7. Additional Requirements for Nonattainment Area Plans
In addition to the core requirements of section 189(a)(1) discussed
above, other provisions of the Act in section 172(c) and 110(a) need to
be met in order to approve the nonattainment area plan. The additional
requirements and how the Portneuf Valley nonattainment area plan meets
these requirements is discussed in the TSD accompanying this document.
B. What Do We Conclude About the Nonattainment Area Plan?
Based on our review of the Portneuf Valley nonattainment area plan
submitted by the State on June 30, 2004, we conclude that the
requirements for an approvable nonattainment area plan under the Act
have been met. Therefore, we are proposing approval of the
nonattainment area plan submitted for the Portneuf Valley PM-10
nonattainment area.
III. Review of Maintenance Plan
A. What Criteria Did EPA Use To Review the Maintenance Plan?
Section 107(d)(3)(E) of the Act stipulates that for an area to be
redesignated to attainment, EPA must fully approve a maintenance plan
which meets the requirements of section 175A. Section 175A defines the
general framework of a maintenance plan, which must provide for
maintenance, i.e., continued attainment, of the relevant NAAQS in the
area for at least ten years after redesignation. The following is a
list of core provisions required in an approvable maintenance plan.
1. The State must develop an attainment emissions inventory to
identify the level of emissions in the area which is sufficient to
attain the NAAQS.
2. The State must demonstrate maintenance of the NAAQS.
3. The State must verify continued attainment through operation of
an appropriate air quality monitoring network.
4. The maintenance plan must include contingency provisions to
promptly correct any violation of the NAAQS that occurs after
redesignation of the area.
As explained below, Idaho has complied with each of these
requirements in the PM-10 maintenance plan for the Portneuf Valley
nonattainment area.
1. Attainment Emissions Inventory
The State should develop an attainment emissions inventory to
identify the level of emissions in the area which is sufficient to
attain the NAAQS. Where the State has made an adequate demonstration
that air quality has improved as a result of the control measures in
the SIP, the attainment inventory will generally be an inventory of
actual emissions at the time the area attained the standards. This
inventory should be consistent with EPA's most recent guidance on
emissions inventories for nonattainment areas available at the time and
should include the emissions during the time period associated with the
monitoring data showing attainment.
The emissions inventory submitted for the Portneuf Valley
nonattainment area plan also meets the attainment inventory
requirements for a maintenance plan. See our evaluation of the
emissions inventory for the nonattainment area plan in section II. The
emissions inventory is for the year 2000, a time period associated with
the monitoring data showing attainment. (Attainment is associated with
all three periods: 1998-2000, 1999-2001, and 2000-2002). We have
reviewed this inventory and found the methodology used to develop it is
consistent with EPA guidelines. In addition, the assumptions and
calculations were checked and found to be thorough and comprehensive.
In summary, the State has adequately developed an attainment
emissions inventory for 2000 that identifies the levels of emissions of
PM-10 in the nonattainment area as sufficient to attain the NAAQS.
Thus, we conclude the State has met the attainment emissions inventory
requirements for the Portneuf Valley PM-10 maintenance plan.
2. Maintenance Demonstration
A State may generally demonstrate maintenance of the NAAQS by
either
[[Page 29248]]
showing that future emissions of a pollutant or its precursors will not
exceed the level of the attainment inventory, or by modeling to show
that the future mix of sources or its precursors will not exceed the
level of the attainment inventory, or by modeling to show that the
future mix of sources and emission rates will not cause a violation of
the NAAQS. Under the Act, many areas were required to submit modeled
attainment demonstrations to show that the proposed reduction in
emissions will be sufficient to attain the applicable NAAQS. For these
areas, the maintenance demonstration should be based upon the same
level of modeling. In areas where no such modeling was required, the
state should be able to rely on the attainment inventory approach. In
both instances, the demonstration should be for a period of 10 years
following the redesignation.
Idaho uses several analytical tools to demonstrate maintenance for
the Portneuf Valley PM-10 nonattainment area. These tools include
dispersion modeling, trend analysis, chemical mass balance source
apportionment and linear speciated roll forward modeling. Several tools
are used because no single analytical approach was determined to be
appropriate for this area. As discussed earlier, the air quality
problem and atmospheric processes in the Portneuf Valley area are
complex. The highest PM-10 levels in the area occur in the winter, when
cold temperatures, high relative humidity, and fog are conducive to the
formation of secondary aerosols. The sources contributing to the PM-10
levels are primary PM-10 and precursor emissions. Sources of primary
PM-10 are J.R. Simplot, re-entrained dust from paved roads,
agricultural activity, residential/commercial construction, non-
agricultural windblown dust, and to a lesser extent, residential
combustion and motor vehicles. Precursor emissions are from primarily
stationary sources and to a limited extent, motor vehicles (cars,
trucks, and locomotives). The topography of the Portneuf Valley area
greatly influences migratory weather disturbances, making prediction of
wind flow patterns difficult. Periodically, stagnate air conditions are
established for a period of several days, which lead to build-up in PM-
10 emissions and elevated PM-10 concentrations. Pollutant dispersion
during stagnation conditions are difficult to model.
In light of the complexity of the area, the State's reliance on
multiple analytical techniques--dispersion modeling, trend analysis,
chemical mass balance source apportionment and linear speciated roll
forward modeling--is appropriate. When viewed together, the combined
results provide an adequate showing that the area will maintain the
NAAQS in the future. Our evaluation of each analytical tool and overall
conclusion is summarized below.
Dispersion Modeling
Dispersion modeling in the Portneuf Valley area is a challenge due
to the complex terrain, meteorology, and the large number and variety
of sources emitting primary particulate and precursor emissions. In
selecting a model, the State appropriately considered, among other
things, whether the model could simulate ambient levels of PM-10 from
emissions of primary particulate, atmospheric chemical reactions that
form secondary aerosols, complex wind regimes and local scale
dispersion and transport. Because of its known capabilities in
addressing these and other relevant factors, CALPUFF, an EPA-preferred
model listed in appendix W of 40 CFR part 51, was selected.
To assess performance of the model, the State ran CALPUFF to
estimate PM-10 levels during worst case meteorological episodes in 1995
and 1999 and compared the predictions to actual measurements. Model
performance was mixed. On one hand, estimated PM-10 levels were
reasonable given the uncertainties in the meteorological data, the
emissions estimates, source characterization and the model's
characterization of atmospheric phenomena. On the other hand, certain
estimates raised questions and indicated a need for alternative
analytical techniques to determine whether maintenance for the area was
demonstrated. PM-10 levels were overestimated in the early morning and
at night when the inversion was established. In addition, the highest
predicted values occurred on days different from the days they were
observed. Lastly, questionable levels above the NAAQS in two small
areas could not be verified by monitoring data. There was extensive
refinement of model inputs to reduce discrepancies but discrepancies
still remained.
Because the dispersion model overall provided invaluable
information in assessing air quality in the area (i.e., by providing
better understanding of sources, transport and fate of PM-10 and hot
spot locations), the State still used the model to predict PM-10
concentrations for future years. In these runs, the model showed
maintenance of the NAAQS in all areas except the same two questionable
areas identified during the performance evaluation. Therefore,
alternative analytic tools were used to more fully understand the
modeling results and to demonstrate maintenance for the entire
nonattainment area.
Ambient Air Quality Data
PM-10 levels have been monitored at several sites across the
Portneuf Valley nonattainment area since the mid-1980s. Data from these
sites show that the last violation of the 24 hour PM-10 standard was
reported in 1995.
Annual PM-10 trends at all sites in the nonattainment area show a
continuous improvement in PM-10 air quality since monitoring was
initiated. There has been a dramatic decrease in PM-10 levels near the
industrial complex of Astaris (FMC) and J.R. Simplot with the addition
of controls and the shutdown of the Astaris (FMC) manufacturing
operations. Annual average PM-10 concentrations at a site near the
industrial complex have dropped from 54 [mu]g/m\3\ in the late 1980's
to 27 [mu]g/m\3\ in 2001. Air quality has shown continued improvement
at the other monitoring sites decreasing from approximately 30 [mu]g/
m\3\ in the late 1980's to 20 [mu]g/m\3\ in the last few years.
Average 24 hour PM-10 concentrations have shown similar dramatic
reductions. Peak PM-10 levels reached 259 [mu]g/m\3\ at the sewage
treatment plant (STP) site and 232 [mu]g/m\3\ at the Idaho State
University (ISU) site in the early 1990's. Peak concentrations are 74
[mu]g/m\3\ in 2001 at the STP site and 74 [mu]g/m\3\ in 1999 at the ISU
site. The G&G site reported a peak concentration of 204 [mu]g/m\3\ in
1993 and 79 [mu]g/m\3\ in 2002.
Ambient data confirms that the control strategies that have been
implemented in the Portneuf Valley nonattainment area are effective in
reducing PM-10 levels. It is anticipated that additional emissions
reductions from State and Federal motor vehicle control programs will
continue to result in declining PM-10 levels in the valley. In light of
ambient air quality improvement, we conclude that the ambient air
quality data supports a demonstration of maintenance.
Meteorological Data
Meteorology analysis shows that improvement in ambient air quality
is not due to favorable meteorology. The state analyzed days with
meteorology characterized as having poor dispersion conditions. These
conditions are characterized by a cold high pressure system with low
pressure gradients, low wind speeds, shallow inversions, and little or
no precipitation. Although
[[Page 29249]]
meteorological data show no discernible annual trend since 1984, the
greatest number of days that met poor dispersion conditions criteria
occurred in 2001 and 2002. Since there were no exceedances of the NAAQS
in 2001 and 2002, this indicates that meteorology has not been a factor
in air quality improvement. In light of no discernible trend in
meteorology while air quality has improved, we conclude meteorology
data provides further support of a demonstration of maintenance for the
area.
Emissions Data
An inventory of actual annual emissions was prepared for the base
year of 2000 and projected for future years 2010, 2015, and 2020.
Calendar year 2000 represents the base year, 2010 represents an
intermediary year, 2015 represents the required ten year maintenance
year, and 2020 represents the last year of the area's 20 year
transportation plan for use in long-term planning.
Historically the highest levels of PM-10 in the Portneuf Valley
nonattainment area occur in winter, and are dominated by secondary
ammonium sulfate and ammonium nitrate. Therefore, an episodic inventory
was prepared for winter conditions. Idaho DEQ selected December 20
through December 26, 1999, which corresponds to an actual air
stagnation episode during which three exceedences of the standard were
recorded. The 1999 episodic emissions inventory was projected out to
future year week-long episodic inventories for 2010, 2015, and 2020. In
addition, for each episodic inventory, weekday and weekend day
inventories were prepared to account for different levels of activity
depending on the day of the week.
When compared to the 2000 base and 1999 episodic inventories, the
State predicts the emissions of primary particulate and precursor
pollutants will drop in future years 2010, 2015, and 2020. This
decrease in emissions is due in large part to the permanent closure of
the Astaris (FMC) manufacturing operations that occurred in 2001. In
light of this projected decline in overall emissions and our
expectation that the Federal non-road motor vehicle rule and
requirements limiting the sulfur content in diesel fuel not accounted
for by the State will result in further reductions, we conclude that
the expected decrease in emissions supports a demonstration of
maintenance out to 2015.
Chemical Mass Balance (CMB) Source Apportionment
CMB analysis is a method used to apportion the contribution of
different sources to measured PM-10 levels. CMB analysis of PM-10
filters shows that in the base year, over 50% of the PM-10 mass during
high episode days in Portneuf Valley was ammonium sulfate. The
SO2 emissions, precursors to ammonium sulfate, have since
been reduced by more than half with the closure of the FMC
manufacturing operations. In addition, Federal rules regulating sulfur
content in diesel fuel will dramatically reduce future SO2
emissions from mobile sources.
Future PM-10 concentrations can be estimated using the highest
measured PM-10 concentration since 1989 of 177 [mu]g/m\3\, applying the
fraction apportioned to industry and non-industry, and adjusting for
emissions reduction or growth. By 2015, industry emissions will
decrease by an estimated 60% (compared with base year levels).
Emissions from all other sources are anticipated to increase 18%.
Predictions using CMB show the projected maximum PM-10 level will be
133 [mu]g/m\3\ in the year 2020. This level is below the 24-hour PM-10
NAAQS, demonstrating maintenance for the area.
CMB analysis was also used to better understand the discrepancies
identified during evaluation of the dispersion model. The source
contributions predicted by CMB analysis were compared to the source
contributions predicted by the dispersion model. The results suggest
that the levels predicted above the NAAQS are due to over-estimation of
the contribution of vehicle suspended dust. This over-estimation of
motor vehicle emissions may be due to under-prediction of wind speeds
in meteorological simulations, thus artificially enhancing the
influence of the urban (mobile) sources. It is also plausible that
over-predicted concentrations are due to inadequate characterization of
coarse particulate matter removal mechanisms which may over-estimate
the impact of re-entrained road dust.
Linear Speciated Rollback Modeling
Linear speciated rollback modeling is a simple, spatially averaged
mathematical model that assumes a linear relationship between ambient
constituents of PM-10 and the area wide emissions of the corresponding
constituents. The model dis-aggregates the major airborne particulate
components into chemically distinct groups that are emitted by
different source types. The model assumes that ambient PM-10 levels are
directly proportional to emissions.
Anticipated emissions reductions of primary PM-10, SO2
and NOX result in predicted PM-10 levels below the level of
both the annual and 24 hour standards for all future years out to 2020.
The maximum 24 hour PM-10 level of 146 [mu]g/m\3\ occurs in the base
year, drops to 106 [mu]g/m\3\ in 2005 and gradually increases to 111
[mu]g/m\3\ in 2020. Annual PM-10 levels remain essentially constant at
approximately 26 [mu]g/m\3\ in the base year and 27 [mu]g/m\3\ in 2020.
Because these projected levels are below the PM-10 NAAQS, these results
demonstrate maintenance of the area.
In conclusion, dispersion modeling shows that overall the area will
meet the PM-10 NAAQS at least 10 years into the future, but that
further evaluation is warranted in light of questionable levels
predicted in two areas. This further evaluation using trend analysis,
chemical mass balance, and linear speciated rollback modeling
demonstrates maintenance throughout the nonattainment area. In light of
the dispersion modeling results and plausible reasons for the higher
levels in two areas, the difficulty of modeling due to the complex
conditions of the area, the results from other analytic tools
demonstrating maintenance, the anticipated reductions from Federal
rules not relied on by the plan, and contingency measures, as discussed
below, to be implemented in the event PM-10 levels increase, EPA
concludes that the demonstration by the State shows that the Portneuf
Valley nonattainment area will maintain the PM-10 NAAQS at least
through the maintenance year of 2015.
3. State Monitoring of Air Quality To Verify Continued Attainment
Once an area has been redesignated, the State must continue to
operate an appropriate air quality monitoring network in accordance
with 40 CFR part 58 to verify the attainment status of the area. The
maintenance plan should contain provisions for continued operation of
air quality monitors that will provide such verification. In its
submittal, the State commits to continue to operate and maintain the
network of PM-10 monitoring stations necessary to verify ongoing
compliance with the PM-10 NAAQS in the Portneuf Valley nonattainment
area.
4. Contingency Measures
Section 175A(d) of the Act requires that a maintenance plan include
contingency provisions, as necessary, to correct promptly any violation
of the NAAQS that occurs after redesignation. These contingency
provisions are distinguished from those generally required for
nonattainment areas under section 172(c)(9), which are discussed above.
At a minimum, the contingency
[[Page 29250]]
provisions must include a commitment that the State will implement all
measures contained in the nonattainment area plan prior to
redesignation.
The maintenance plan contains three contingency provisions. The
first would revise the permit to operate a boiler at the Idaho State
University to require a switch of fuel from coal to natural gas during
a burn ban. This measure will reduce SO2 emissions and thus
reduce ammonium sulfate levels during periods of high PM-10.
The second provision addresses wood smoke emissions. Wood smoke
from residential wood stoves has historically been a significant
contributor to wintertime PM-10 levels in the Portneuf Valley non-
attainment area. The State commits to work with the Cities of Pocatello
and Chubbuck to lower the trigger point for implementing a residential
wood combustion curtailment program. The current level is 100 [mu]g/
m\3\ PM-10.
Lastly, the State commits to conducting additional analyses of the
causes of future reported violations of the standard. Based on the
results of that analysis the State will consider the following control
measures to resolve the problem:
Cover all truck loads that have potential to emit PM-10.
Prevent track-out onto paved roads.
More restrictions on outdoor burning.
Institute a vehicle inspection and maintenance program.
Expand the residential wood combustion curtailment
programs to include ``clean burn'' wood stoves.
Prohibit construction of unpaved private roads, driveways,
or parking lots.
Implement transportation control measures.
Implement dust control and prevention programs including
paving dirt roads and alley ways.
Since the maintenance plan is to cover the 10 year period after
Federal approval, it is difficult to completely predict how emissions
characteristics will change. This change in the character of the
potential PM-10 problem is especially significant toward the ``out-
years'' when the ability to predict the future is difficult. The
approach used in the maintenance plan is appropriate since the
contingency measures address sources expected to cause problems in the
near term and include a commitment to evaluate conditions in the long
term.
In light of the control measures relied on by the nonattainment
area plan, the identification of additional contingency measures above,
and the permanent reductions resulting from the closure of the Astaris
(FMC) manufacturing operations, we believe the contingency measure
requirements in the Portneuf Valley maintenance plan meet the
requirements of Section 175A(d) of the Act.
5. Transportation Conformity
Under section 176(c) of the Act, transportation plans, programs,
and projects in nonattainment or maintenance areas, that are developed,
funded or approved under title 23 U.S.C. or the Federal Transit Laws,
must conform to the applicable SIPs. In short, a transportation plan is
deemed to conform to the applicable SIP if the emissions resulting from
implementation of that transportation plan are less than, or equal to
the motor vehicle emission budget established in the SIP.
In this maintenance plan, procedures for estimating motor vehicle
emissions are well documented. Furthermore, the maintenance
demonstration modeling results indicated that the estimated motor
vehicle emissions for base and future years will not cause or
contribute to an exceedance of the NAAQS. Accordingly, we propose to
approve the following motor vehicle emissions budgets (MVEB) for PM-10
and its precursors for use in conformity determinations for PM-10 on
future Transportation Improvement Programs and Regional Transportation
Plans. These mobile source emissions represent a combination of vehicle
exhaust, tire wear, brake wear, and road dust.
Portneuf Valley, Idaho PM-10 Motor Vehicle Emissions Budget
------------------------------------------------------------------------
PM-10 (t/ NOX (t/ VOC (t/
Year yr) yr) yr)
------------------------------------------------------------------------
2005................................... 897 1,575 983
2010................................... 1,120 1,085 716
2020................................... 1,364 514 585
------------------------------------------------------------------------
The MVEB was found to be adequate for conformity purposes on August
31, 2004. (69 FR 56052, September 17, 2004.) The Plan provides for
reductions in residential wood combustion, road sanding, and industrial
emissions. Control measures required by the maintenance plan do not
directly include transportation measures as they are not required for
the maintenance demonstration.
6. Additional Requirements for Maintenance Plans
In addition to the core requirements of section 175(A) discussed
above, other provisions of the Act need to be met in order to approve
the maintenance plan. The additional requirements and how the Portneuf
Valley maintenance plan meets these requirements is discussed in the
TSD accompanying this notice.
B. What Do We Conclude About the Maintenance Plan?
Based on our review of the Portneuf Valley PM-10 maintenance plan
submitted by the State on June 30, 2004, we conclude that the
requirements for an approvable maintenance plan under the Act have been
met. Therefore, we are proposing approval of the maintenance plan
submitted for the Portneuf Valley PM-10 nonattainment area.
IV. Review of Redesignation Request
A. What Criteria Did EPA Use To Review the Request for Redesignation?
The criteria used to review the maintenance plan and redesignation
request are derived from the Act, the General Preamble, and a policy
and guidance memorandum from John Calcagni, September 4, 1992,
Procedures for Processing Requests to Redesignate Areas to Attainment.
Section 107(d)(3)(E) of the Act states that the EPA can be redesignate
an area to attainment if the following conditions are met:
1. The Administrator has determined the area has attained the
NAAQS.
2. The Administrator has fully approved the applicable
implementation plan under section 110(k).
3. The Administrator has determined that the improvement in air
quality is due to permanent and enforceable reductions in emissions.
4. The State has met all applicable requirements for the area under
section 110 and Part D.
5. The Administrator has fully approved a maintenance plan,
including a contingency plan, for the area under section 175A.
1. Attainment Determination
As discussed earlier, an area has attained the 24-hour PM-10 NAAQS
when the average number of expected exceedances per year is less than
or equal to one, when averaged over a three year period. To make this
determination, three consecutive years of complete ambient air quality
data must be collected in accordance with Federal requirements (40 CFR
part 58, including appendices). On July 5, 2002, EPA published a
finding that the Portneuf Valley PM-10 nonattainment area attained the
PM-10 NAAQS by the
[[Page 29251]]
applicable attainment date. Subsequent air monitoring data shows that
the area has continued to meet both NAAQS for every three year period
since the attainment date.
2. Fully Approved Nonattainment Area Plan
States containing initial moderate PM-10 nonattainment areas were
required to submit a SIP revision which implements reasonably available
control measures (RACM) and demonstrates attainment of the PM-10 NAAQS
by the attainment date. The SIP for the area must be fully approved
under section 110(k) of the Act, and must satisfy all requirements that
apply to the area. In this notice we are proposing to fully approve the
nonattainment area plan submitted by the State for the Portneuf Valley
PM-10 nonattainment area.
3. Permanent and Enforceable Improvements in Air Quality
The State must be able to reasonably attribute the improvement in
air quality to permanent and enforceable reduction in emissions. The
State provides a historical analysis of meteorology in the Pocatello
area to show that trends in improving air quality are not the result of
meteorological conditions. As discussed above, there has been no
discernible trend in meteorology while air quality has continued to
improve. Therefore we conclude that the improvements in air quality are
the result of emissions reductions from the shut down of the Astaris
(FMC) manufacturing operations, controls related to road sanding, and
the area's wood stove program and not from a change in meteorological
conditions.
Based on the State's analysis, and our earlier conclusion that the
control measures in place in the nonattainment area are permanent and
enforceable, we believe that Idaho has demonstrated air quality
improvements are the result of permanent enforceable emissions
reductions.
4. Other Planning Requirements
The September 1992 Calcagni memorandum directs states to meet all
of the applicable section 110 and Part D planning requirements for
redesignation purposes. Thus, EPA interprets the Act to require state
adoption and EPA approval of the applicable programs under section 110
and Part D that were due prior to the submission of a redesignation
request, before EPA may approve a redesignation request. How the State
has met these requirements is discussed below.
5. Section 110 Requirements
Section 110(a)(2) of the Act contains general requirements for
implementation plans. These requirements include, but are not limited
to, submission of a SIP that has been adopted by the State after
reasonable notice and public hearing; provisions for establishment and
operation of appropriate apparatus, methods, systems and procedures
necessary to monitor ambient air quality; implementation of a permit
program; provisions for Part C--Prevention of Significant Deterioration
(PSD) and Part D--New Source Review (NSR) permit programs; criteria for
stationary source emissions control measures, monitoring and reporting,
provisions for modeling; and provisions for public and local agency
participation. See the General Preamble for further explanation of
these requirements. 57 FR 13498 (April 16, 1992).
For purposes of redesignation, review of the Idaho SIP shows that
the State has satisfied all requirements under the Act. Further, in 40
CFR 52.673, EPA has approved Idaho's SIP for the attainment and
maintenance of the national standards under Section 110.
6. Part D Requirements
Part D consists of general requirements applicable to all areas
which are designated nonattainment based on a violation of the NAAQS.
The general requirements are followed by a series of subparts specific
to each pollutant. All PM-10 nonattainment areas must meet the
applicable general provisions of subpart 1 and the specific PM-10
provisions in subpart 4, ``Additional Provisions for Particulate Matter
Nonattainment Areas.'' The following paragraphs discuss these
requirements as they apply to the Portneuf Valley nonattainment area.
7. Section 172(c) Plan Provisions Requirements
Subpart 1, section 172(c) contains general requirements for
nonattainment area plans. A thorough discussion of these requirements
may be found in the General Preamble. 57 FR 13538 (April 16, 1992). The
requirements for reasonable further progress, identification of certain
emissions increases, and other measures needed for attainment are
satisfied in our proposed approval in this notice of the nonattainment
area plan for the Portneuf Valley PM-10 nonattainment area. The
requirement for an emissions inventory is satisfied by the completion
of inventories for the nonattainment area plan and maintenance plan.
The requirements of the Part D New Source Review (NSR) program will be
replaced by the Part C Prevention of Significant Deterioration (PSD)
program for PM-10 upon the effective date of this redesignation action.
The Federally-approved PSD regulations for Idaho can be found at IDAPA
16.01.012,07, as incorporated by reference by EPA on July 28, 1982 (47
FR 32531), and most recently amended on January 16, 2003 (68 FR 2217).
8. Subpart 4 Requirements
Part D, subpart 4, section 189(a), (c) and (e) requirements apply
to any moderate nonattainment area before the area can be redesignated
to attainment. The requirements which were applicable prior to the
submission of the request to redesignate the area must be fully
approved into the SIP before redesignating the area to attainment.
These requirements are discussed below:
(a) Provisions to assure that RACM was implemented by December 10,
1993;
(b) Either a demonstration that the plan provided for attainment as
expeditiously as practicable but not later than December 31, 1994, or a
demonstration that attainment by that date was impracticable;
(c) Quantitative milestones which were achieved every 3 years and
which demonstrate reasonable further progress (RFP) toward attainment
by December 31, 1994; and
(d) Provisions to assure that the control requirements applicable
to major stationary sources of PM-10 also apply to major stationary
sources of PM-10 precursors, except where the Administrator determined
that such sources do not contribute significantly to PM-10 levels which
exceed the NAAQS in the area.
In this document EPA is proposing to approve the nonattainment area
plan for the Portneuf Valley PM-10 nonattainment area containing the
elements meeting requirements (a) through (d) above.
States with PM-10 nonattainment areas were required to submit a
permit program for the construction and operation of new and modified
major stationary sources of PM-10 by June 30, 1992. States also were to
submit contingency measures by November 15, 1993, which become
effective without further action by the State or EPA, upon a
determination by EPA that the area has failed to achieve RFP or to
attain the PM-10 NAAQS by the applicable statutory deadline. See
sections
[[Page 29252]]
172(c)(9) and 189(a) and 57 FR 13543-13544.
Idaho has presented an adequate demonstration that it has met the
requirements applicable to the area under section 110 and Part D. The
Part D NSR rules for PM-10 nonattainment areas in Idaho were approved
by EPA on July 23, 1993 (58 FR 39445) and amended provisions were
approved by EPA on January 16, 2003 (68 FR 2217). The Clean Air Act
requires that contingency measures take effect if the area fails to
meet reasonable further p
