Determination of Attainment, Approval and Promulgation of Implementation Plans and Designation of Areas for Air Quality Planning Purposes; Indiana; Redesignation of the Evansville Area to Attainment of the 8-Hour Ozone Standard, 53605-53615 [05-17819]
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Federal Register / Vol. 70, No. 174 / Friday, September 9, 2005 / Proposed Rules
Dated: September 2, 2005.
Stefan G. Venckus,
Chief, Office of Regulations and
Administrative Law, U.S. Coast Guard.
[FR Doc. 05–17831 Filed 9–8–05; 8:45 am]
BILLING CODE 4910–15–P
ENVIRONMENTAL PROTECTION
AGENCY
40 CFR Parts 52 and 81
[R05–OAR–2005–IN–0006; FRL–7965–7]
Determination of Attainment, Approval
and Promulgation of Implementation
Plans and Designation of Areas for Air
Quality Planning Purposes; Indiana;
Redesignation of the Evansville Area
to Attainment of the 8-Hour Ozone
Standard
Environmental Protection
Agency (EPA).
ACTION: Proposed rule.
AGENCY:
SUMMARY: On June 2, 2005, the State of
Indiana, through the Indiana
Department of Environmental
Management (IDEM), submitted: A
request for the EPA to redesignate the
area of Evansville (Vanderburgh and
Warrick Counties) from nonattainment
to attainment of the 8-hour ozone
National Ambient Air Quality Standard
(NAAQS); and a request for EPA
approval of an Indiana State
Implementation Plan (SIP) revision
containing a 10-year maintenance plan
for the Evansville area. EPA is
proposing to approve the State’s request
to redesignate the Evansville area to
attainment of the 8-hour ozone NAAQS.
EPA’s proposed approval of the
redesignation request is based on the
determination that the Evansville area
and the State of Indiana have met the
criteria for redesignation to attainment
specified in the Clean Air Act (CAA),
including the determination that the
Evansville area has attained the 8-hour
ozone standard. In conjunction with the
proposed approval of the redesignation
request for the Evansville area, EPA is
proposing to approve the State’s plan to
maintain the attainment of the 8-hour
ozone NAAQS through 2015 in this area
as a revision to the Indiana SIP. EPA is
also proposing to approve 2015 Volatile
Organic Compounds (VOC) and Oxides
of Nitrogen (NOX) Motor Vehicle
Emissions Budgets (MVEBs), which are
supported by and consistent with the
10-year maintenance plan for this area,
for purposes of transportation
conformity.
Comments must be received on
or before October 11, 2005.
DATES:
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Submit comments,
identified by Regional Material in
EDocket (RME) ID No. R05–OAR–2005–
IN–0006, by one of the following
methods:
Federal eRulemaking Portal: https://
www.regulations.gov. Follow the on-line
instructions for submitting comments.
Agency Web site: https://
docket.epa.gov/rmepub/. RME, EPA’s
electronic public docket and comments
system, is EPA’s preferred method for
receiving comments. Once in the
system, select quick search, then key in
the appropriate RME Docket
identification number. Follow the online instructions for submitting
comments.
E-mail: mooney.john@epa.gov.
Fax: (312) 886–5824.
Mail: You may send written
comments to: John M. Mooney, Chief,
Criteria Pollutant Section, (AR–18J),
U.S. Environmental Protection Agency,
Region 5, 77 West Jackson Boulevard,
Chicago, Illinois 60604.
Hand delivery: Deliver your
comments to: John M. Mooney, Chief,
Criteria Pollutant Section, (AR–18J),
U.S. Environmental Protection Agency,
Region 5, 77 West Jackson Boulevard,
18th floor, Chicago, Illinois 60604. Such
deliveries are only accepted during the
Regional Office’s normal hours of
operation. The Regional Office’s official
hours of business are Monday through
Friday, 8:30 a.m. to 4:30 p.m. excluding
Federal holidays.
Instructions: Direct your comments to
RME ID No. R05–OAR–2005–IN–0006.
EPA’s policy is that all comments
received will be included in the public
docket without change, including any
personal information provided, and may
be made available online at https://
docket.epa.gov/rmepub/, 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 RME, regulations.gov,
or e-mail. The EPA RME Web site and
the Federal regulations.gov Web site are
‘‘anonymous access’’ systems, 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 RME 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
ADDRESSES:
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53605
the body of your comment and with any
disk or CD–ROM you submit. If EPA
cannot read your comment due to
technical difficulties and cannot contact
you for clarification, EPA may not be
able to consider your comment.
Electronic files should avoid the use of
special characters, any form of
encryption, and be free of any defects or
viruses.
Docket: All documents in the
electronic docket are listed in the RME
index at https://docket.epa.gov/rmepub/.
Although listed in the index, some
information is not publicly available,
i.e., CBI or other information whose
disclosure is restricted by statute.
Certain other material, such as
copyrighted material, is not placed on
the Internet and will be publicly
available only in hard copy form.
Publicly available docket materials are
available either electronically in RME or
in hard copy at Environmental
Protection Agency, Region 5, Air and
Radiation Division, 77 West Jackson
Boulevard, Chicago, Illinois 60604. We
recommend that you telephone Edward
Doty, Environmental Scientist, at (312)
886–6057, before visiting the Region 5
office. This Facility is open from 8:30
a.m. to 4:30 p.m., Monday through
Friday, excluding legal holidays.
FOR FURTHER INFORMATION CONTACT:
Edward Doty, Environmental Scientist,
Criteria Pollutant Section, Air Programs
Branch (AR–18J), U.S. Environmental
Protection Agency, Region 5, 77 West
Jackson Boulevard, Chicago, Illinois
60604, (312) 886–6057,
doty.edward@epa.gov.
SUPPLEMENTARY INFORMATION:
Throughout this document whenever
‘‘we,’’ ‘‘us,’’ or ‘‘our’’ is used, we mean
EPA. This supplementary information
section is arranged as follows:
I. EPA’s Proposed Actions
A. What Actions Is EPA Proposing to Take?
B. Do These Actions Apply to Me?
C. What Is the Background for These
Proposed Actions?
II. What Are the Criteria for Redesignation to
Attainment?
III. What Is the Effect of EPA’s Actions?
IV. What Is EPA’s Analysis of the State’s
Request?
V. Has Indiana Adopted Acceptable Motor
Vehicle Emissions Budgets for the End of
the 10-Year Maintenance Plan (for 2015)
Which Can Be Used to Support
Conformity Determinations?
A. How Are the MVEBs Developed and
What Are the MVEBs for the Evansville
Area?
B. What Is a Safety Margin?
C. Are the MVEBs Approvable?
VI. Statutory and Executive Order Reviews
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Federal Register / Vol. 70, No. 174 / Friday, September 9, 2005 / Proposed Rules
I. EPA’s Proposed Actions
A. What Actions Is EPA Proposing to
Take?
EPA is proposing to take two related
actions. First, EPA is proposing to
determine that the Evansville, Indiana
ozone nonattainment area (Vanderburgh
and Warrick Counties) has attained the
8-hour ozone NAAQS, and that it has
met the requirements for redesignation
under section 107(d)(3)(E) of the CAA.
EPA is, therefore, proposing to approve
a request from the State of Indiana to
change the designation of the Evansville
area from nonattainment to attainment
for the 8-hour ozone NAAQS.
Second, EPA is proposing to approve
Indiana’s ozone maintenance plan, as a
requested SIP revision, for this area. The
maintenance plan is designed to keep
the Evansville area in attainment of the
8-hour ozone NAAQS for the next 10
years, through 2015. As supported by
and consistent with the ozone
maintenance plan, EPA is proposing to
approve the 2015 VOC and NOX MVEBs
for the Evansville area for conformity
purposes.
B. Do These Actions Apply to Me?
These proposed actions pertain to the
designation of the Evansville area for
the 8-hour ozone NAAQS and to the
emission controls in this area and in its
upwind environs related to attainment
and maintenance of the 8-hour ozone
NAAQS. The emissions of concern are
VOC and NOX. If you own or operate a
VOC or NOX emissions source in the
Evansville area or live in this area, this
proposed rule may impact or apply to
you. It may also impact you if you are
involved in transportation planning or
implementation of emission controls in
the Evansville area.
C. What Is the Background for These
Proposed Actions?
EPA has determined that ground-level
ozone is detrimental to human health.
On July 18, 1997, the EPA promulgated
an 8-hour ozone NAAQS (62 FR 38856)
of 0.08 parts per million parts of air
(0.08 ppm) (80 parts per billion (ppb)).1
This 8-hour ozone standard replaces a
prior 1-hour ozone NAAQS, which had
been promulgated on February 8, 1979
(44 FR 8202), and which was revoked
on June 15, 2005. Ground-level ozone is
not emitted directly by sources. Rather,
emitted NOX and VOC react in the
1 This standard is violated in an area when any
ozone monitor in the area (or in its impacted
downwind environs) records 8-hour ozone
concentrations with an average of the annual
fourth-highest daily maximum 8-hour ozone
concentrations over a three-year period equaling or
exceeding 85 ppb.
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presence of sunlight to form groundlevel ozone along with other secondary
compounds. NOX and VOC are referred
to as ‘‘ozone precursors.’’
The CAA required EPA to designate
as nonattainment any area that violated
the 8-hour ozone NAAQS based on the
three most recent years of air quality
data (2001–2003 ozone data were
considered for the initial 8-hour ozone
designations). The Federal Register
notice making these designations was
signed on April 15, 2004, and was
published on April 30, 2004 (69 FR
23857).
The CAA contains two sets of
provisions—subpart 1 and subpart 2—
that address planning and emission
control requirements for nonattainment
areas. (Both are found in title I, part D
of the CAA.) Subpart 1 contains general,
less prescriptive requirements for
nonattainment areas for any pollutant,
including ozone, governed by any
NAAQS, and applies to all
nonattainment areas. Subpart 2 contains
more specific requirements for certain
ozone nonattainment areas, and applies
to ozone nonattainment areas classified
under section 181 of the CAA. Subpart
1 nonattainment areas, those areas not
classified under section 181 of the CAA,
are subject only to the provisions of
subpart 1. Subpart 2 nonattainment
areas, however, are subject to the
provisions of subpart 2, as well as to
provisions of subpart 1 (many of the
requirements in subpart 1 are
superseded by the more stringent
requirements of subpart 2).
In the April 30, 2004 designation
rulemaking, EPA divided 8-hour ozone
nonattainment areas into the categories
of subpart 1 nonattainment and subpart
2 nonattainment based on their 8-hour
ozone design values (i.e., the three-year
average annual fourth-highest daily
maximum 8-hour ozone concentrations
at the worst-case monitoring sites in the
designated areas) and their 1-hour ozone
design values (i.e., the fourth-highest
daily maximum 1-hour ozone
concentrations over the three-year
period at the worst-case monitoring sites
in the designated areas).2 8-hour ozone
nonattainment areas with 1-hour ozone
design values equaling or exceeding 121
ppb were designated as classified
nonattainment areas (as nonattainment
areas required to meet the requirements
of subpart 2 of the CAA). All other 8hour nonattainment areas were
designated as basic nonattainment areas
2 The 8-hour ozone design value and 1-hour
ozone design value for each area were not
necessarily recorded at the same monitoring site.
The worst-case monitoring site for each
concentration averaging time was considered for
each area.
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(as ozone nonattainment areas required
to meet the requirements of subpart 1
only).
In the April 30, 2004 designation/
classification rulemaking, the Evansville
area was designated as nonattainment
for the 8-hour ozone standard, and was
identified as a subpart 1 nonattainment
area.3 This designation was based on
ozone data collected in the Evansville
area during the 2001–2003 period.
On June 2, 2005, the State of Indiana
requested redesignation of the
Evansville area to attainment for the
8-hour ozone NAAQS based on ozone
data collected during the 2002–2004
period. Today’s proposed rule addresses
this redesignation request.
II. What Are the Criteria for
Redesignation to Attainment?
The CAA provides the requirements
for redesignating a nonattainment area
to attainment. Specifically, section
107(d)(3)(E) allows for redesignation
provided that: (1) The Administrator
determines that the area has attained the
applicable NAAQS; (2) the
Administrator has fully approved an
applicable SIP for the area under section
110(k) of the CAA; (3) the Administrator
determines that the improvement in air
quality is due to permanent and
enforceable emissions reductions
resulting from implementation of the
applicable SIP, applicable Federal air
pollution control regulations, and other
permanent and enforceable emissions
reductions; (4) the Administrator has
fully approved a maintenance plan for
the area as meeting the requirements of
section 175A of the CAA; and, (5) the
state containing the area has met all
requirements applicable to the area
under section 110 and part D of the
CAA.
EPA provided guidance on
redesignation in the General Preamble
for the Implementation of Title I of the
CAA Amendments of 1990 on April 16,
1992 (57 FR 13498), and supplemented
this guidance on April 28, 1992 (57 FR
18070). EPA provided further guidance
on processing redesignation requests in
the following documents:
‘‘Ozone and Carbon Monoxide Design
Value Calculations,’’ Memorandum
from Bill Laxton, June 18, 1990;
‘‘Maintenance Plans for Redesignation
of Ozone and Carbon Monoxide
3 Because this area was not violating the 1-hour
ozone NAAQS, with a 1-hour ozone design value
below the 121 ppb cutoff, at the time of the
promulgation of the 8-hour ozone designations and
classifications, EPA determined that this area
should be addressed through the less prescriptive
requirements of subpart 1 of the Clean Air Act
rather than through the more prescriptive
requirements of subpart 2 of the Clean Air Act.
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Federal Register / Vol. 70, No. 174 / Friday, September 9, 2005 / Proposed Rules
Nonattainment Areas,’’ Memorandum
from G.T. Helms, Chief, Ozone/
Carbon Monoxide Programs Branch,
April 30, 1992;
‘‘Contingency Measures for Ozone and
Carbon Monoxide (CO)
Redesignations,’’ Memorandum from
G.T. Helms, Chief, Ozone/Carbon
Monoxide Programs Branch, June 1,
1992;
‘‘Procedures for Processing Requests to
Redesignate Areas to Attainment,’’
Memorandum from John Calcagni,
Director, Air Quality Management
Division, September 4, 1992;
‘‘State Implementation Plan (SIP)
Actions Submitted in Response to
Clean Air Act (Act) Deadlines,’’
Memorandum from John Calcagni,
Director, Air Quality Management
Division, October 28, 1992;
‘‘Technical Support Documents (TSD’s)
for Redesignation of Ozone and
Carbon Monoxide Nonattainment
Areas,’’ Memorandum from G.T.
Helms, Chief, Ozone/Carbon
Monoxide Programs Branch, August
17, 1993;
‘‘State Implementation Plan (SIP)
Requirements for Areas Submitting
Requests for Redesignation to
Attainment of the Ozone and Carbon
Monoxide (CO) National Ambient Air
Quality Standards (NAAQS) On or
After November 15, 1992,’’
Memorandum from Michael H.
Shapiro, Acting Assistant
Administrator for Air and Radiation,
September 17, 1993;
‘‘Use of Actual Emissions in
Maintenance Demonstrations for
Ozone and CO Nonattainment Areas,’’
Memorandum from D. Kent Berry,
Acting Director, Air Quality
Management Division, November 30,
1993;
‘‘Part D New Soure Review (part D NSR)
Requirements for Areas Requesting
Redesignation to Attainment,’’
Memorandum from Mary D. Nichols,
Assistant Administrator for Air and
Radiation, October 14, 1994; and,
‘‘Reasonable Further Progress,
Attainment Demonstration, and
Related Requirements for Ozone
Nonattainment Areas Meeting the
Ozone National Ambient Air Quality
Standard,’’ Memorandum from John
S. Seitz, Director, Office of Air
Quality Planning and Standards, May
10, 1995.
III. What Is the Effect of EPA’s Actions?
Approval of this redesignation request
would change the official designation of
the Evansville area for the 8-hour ozone
NAAQS found at 40 CFR part 81. It
would also incorporate into the Indiana
SIP a plan for maintaining the 8-hour
ozone NAAQS in the area through 2015.
The maintenance plan includes
contingency measures to remedy
possible future violations of the 8-hour
ozone NAAQS, and establishes MVEB’s
of 4.20 tons per day (tpd) for VOC, and
5.40 tpd for NOX.
IV. What Is EPA’s Analysis of the
State’s Request?
EPA is proposing to: (1) Determine
that the Evansville area has attained the
8-hour ozone standard and approve the
redesignation of the Evansville area to
attainment of the 8-hour ozone NAAQS;
and, (2) approve the ozone maintenance
plan for this area. The bases for our
proposed determination and approvals
are as follows:
1. The Evansville Area Has Attained the
8-Hour Ozone NAAQS
EPA is proposing to determine that
the Evansville area has attained the 8-
hour ozone NAAQS. For ozone, an area
may be considered to be attaining the 8hour ozone NAAQS if there are no
violations of the NAAQS, as determined
in accordance with 40 CFR 50.10 and
Appendix I, based on the most recent
three complete, consecutive calendar
years of quality-assured air quality
monitoring data at any monitoring site
in the area. To attain this standard, the
average of the annual fourth-high daily
maximum 8-hour average ozone
concentrations measured at each
monitor (the monitoring site’s ozone
design value) within the area (or in its
downwind environs) over the 3-year
period must not exceed the ozone
standard. Based on the rounding
convention described in 40 CFR part 50,
appendix I, the 8-hour ozone standard is
attained if the area’s ozone design value
is 0.084 ppm or lower. The data must
be collected and quality-assured in
accordance with 40 CFR part 58, and
recorded in EPA’s Aerometric
Information Retrieval System (AIRS).
The ozone monitors generally should
have remained at the same locations for
the duration of the monitoring period
required for demonstrating attainment
(for three years or more).
As part of the June 2, 2005 ozone
redesignation request, IDEM submitted
summarized ozone monitoring data
indicating the top four daily maximum
8-hour ozone concentrations for each
monitoring site for each year during the
2002–2004 period. These summarized
worst-case ozone concentrations are part
of the quality-assured ozone data
collected in the Evansville area. These
data have been entered into EPA’s AIRS.
The fourth high 8-hour daily maximum
concentrations, along with their threeyear averages are summarized in Table
1.
TABLE 1.—FOURTH-HIGH 8-HOUR OZONE CONCENTRATIONS IN PARTS PER BILLION (PPB)
County
Monitoring site
Vanderburgh ......................................
Vanderburgh ......................................
Warrick ..............................................
Warrick ..............................................
Warrick ..............................................
Evansville .........................................
Inglefield ...........................................
Yankeetown .....................................
Boonville ..........................................
Lynville .............................................
These data show that the ozone
design values (averaged fourth-high
daily maximum 8-hour concentrations)
for the monitoring sites are all below the
84 ppb ozone standard violation cut-off.
These data support the conclusion that
the Evansville area did not experience a
monitored violation of the 8-hour ozone
standard during the 2002–2004 period.
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2002
2003
95
86
94
91
90
Preliminary data through July of the
2005 ozone season show that the area
continues to attain the 8-hour ozone
standard.
As discussed below with respect to
the ozone maintenance plan, Indiana
has committed to continue ozone
monitoring in this area. IDEM commits
to consult with the EPA prior to making
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Average
fourth-high
concentration
2004
81
75
82
76
78
72
57
74
72
64
82
73
83
79
77
any changes to the existing monitoring
network.
EPA believes that the data submitted
by Indiana provide an adequate
demonstration that the Evansville area
has attained the 8-hour ozone NAAQS.
Therefore, we propose to find that the
Evansville area has attained the 8-hour
ozone standard.
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2. The Evansville Area Has Met All
Applicable Requirements Under Section
110 and Part D of the CAA and the Area
Has a Fully Approved SIP Under
Section 110(k) of the CAA
EPA has determined that Indiana has
met all currently applicable SIP
requirements for the Evansville area
under section 110 of the CAA (general
SIP requirements). EPA has also
determined that the Indiana SIP meets
currently applicable SIP requirements
under part D of title I of the CAA
(requirements specific to subpart 1
nonattainment areas). See section
107(d)(3)(E)(v) of the CAA. In addition,
EPA has determined that the SIP is fully
approved with respect to all applicable
requirements. See section
107(d)(3)(E)(ii) of the CAA. In making
these determinations, EPA ascertained
what requirements are applicable to the
area, and determined that the applicable
portions of the SIP meeting these
requirements are fully approved under
section 110(k) of the CAA. We note that
SIPs must be fully approved only with
respect to currently applicable
requirements of the CAA.
a. The Evansville area has met all
applicable requirements under section
110 and part D of the CAA. The
September 4, 1992 Calcagni
memorandum (see ‘‘Procedures for
Procedures for Processing Requests to
Redesignate Areas to Attainment,’’
Memorandum from John Calcagni,
Director, Air Quality Management
Division, September 4, 1992) describes
EPA’s interpretation of section
107(d)(3)(E) of the CAA. Under this
interpretation, to qualify for
redesignation of an area to attainment,
the state and the area must meet the
relevant CAA requirements that come
due prior to the state’s submittal of a
complete redesignation request for the
area. See also the September 17, 1993
Shapiro memorandum and 66 FR 12459,
12465–12466 (March 7, 1995)
(redesignation of Detroit-Ann Arbor,
Michigan to attainment of the 1-hour
ozone NAAQS). Applicable
requirements of the CAA that come due
subsequent to the state’s submittal of a
complete redesignation request remain
applicable until a redesignation to
attainment is approved, but are not
required as a prerequisite to
redesignation. See section 175A(c) of
the CAA. Sierra Club v. EPA, 375 F.3d
537 (7th Cir. 2004). See also 68 FR
25424, 25427 (May 12, 2003)
(redesignation of the St. Louis/East St.
Louis area to attainment of the 1-hour
ozone NAAQS).
General SIP requirements: Section
110(a) of title I of the CAA contains the
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general requirements for a SIP, which
include: enforceable emission
limitations and other control measures,
means, or techniques; provisions for the
establishment and operation of
appropriate devices necessary to collect
data on ambient air quality; and
programs to enforce the emission
limitations. General SIP elements and
requirements are delineated in section
110(a)(2) of title I, part A of the CAA.
These requirements and SIP elements
include, but are not limited to, the
following: (a) Submittal of a SIP that has
been adopted by the state after
reasonable public notice and a hearing;
(b) provisions for establishment and
operation of appropriate procedures
needed to monitor ambient air quality;
(c) implementation of a source permit
program; (d) provisions for the
implementation of part C requirements
(Prevention of Significant Deterioration
(PSD)) and part D requirements (New
Source Review (NSR)) for new sources
or major source modifications; (e)
criteria for stationary source emission
control measures, monitoring, and
reporting; (f) provisions for air quality
modeling; and (g) provisions for public
and local agency participation.
SIP requirements and SIP elements
are discussed in the following EPA
documents: ‘‘Procedures for Processing
Requests to Redesignate Areas to
Attainment,’’ Memorandum from John
Calcagni, Director, Air Quality
Management Division, September 4,
1992; ‘‘State Implementation Plan (SIP)
Actions Submitted in Response to Clean
Air Act (CAA) Deadlines,’’
Memorandum from John Calcagni,
Director, Air Quality Management
Division, October 28, 1992; and ‘‘State
Implementation Plan (SIP)
Requirements for Areas Submitting
Requests for Redesignation to
Attainment of the Ozone and Carbon
Monoxide (CO) National Ambient Air
Quality Standards (NAAQS) on or After
November 15, 1992,’’ Memorandum
from Michael H. Shapiro, Acting
Assistant Administrator, September 17,
1993. See also other guidance
documents listed above.
Section 110(a)(2)(D) of the CAA
requires that SIPs contain certain
measures to prevent sources in a state
from significantly contributing to air
quality problems in another state. To
implement this provision, EPA has
required certain states to establish
programs to address transport of air
pollutants (NOX SIP call, Clean Air
Interstate Rule (CAIR)). EPA has also
found, generally, that states have not
submitted SIPs under section 110(a)(1)
to meet the interstate transport
requirements of section 110(a)(2)(D)(i)
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(70 FR 21147, April 25, 2005). However,
the section 110(a)(2)(D) requirements for
a state are not linked with a particular
nonattainment area’s designation and
classification in that state. EPA believes
that the requirements linked with a
particular nonattainment area’s
designation and classification are the
relevant measures to evaluate in
reviewing a redesignation request. The
transport SIP submittal requirements,
where applicable, continue to apply to
a state regardless of the designation of
any one particular area in the state.
We believe that these requirements
should not be construed to be applicable
requirements for purposes of
redesignation. Further, we believe that
the other section 110 elements
described above that are not connected
with nonattainment plan submissions
and not linked with an area’s attainment
status are also not applicable
requirements for purposes of
redesignation. A state remains subject to
these requirements after an area is
redesignated to attainment. We
conclude that only the section 110 and
part D requirements which are linked
with a particular area’s designation and
classification are the relevant measures
in evaluating a redesignation request.
This approach is consistent with EPA’s
existing policy on applicability of
conformity and oxygenated fuels
requirements for redesignation
purposes, as well as with section 184
ozone transport requirements. See
Reading, Pennsylvania, proposed and
final rulemakings (61 FR 53174–53176,
October 10, 1996), (62 FR 24826, May 7,
1997); Cleveland-Akron-Loraine, Ohio,
final rulemaking (61 FR 20458, May 7,
1996); and Tampa, Florida, final
rulemaking (60 FR 62748, December 7,
1995). See also the discussion on this
issue in the Cincinnati ozone
redesignation (65 FR 37890, June 19,
2000), and the Pittsburgh ozone
redesignation (66 FR 50399, October 19,
2001). Finally, Indiana’s submission
under the CAIR rule is not due until
September 2006.
We believe that section 110 elements
not linked to the area’s nonattainment
status are not applicable for purposes of
redesignation. Nonetheless, we also note
that EPA has previously approved
provisions in the Indiana SIP addressing
section 110 elements under the 1-hour
standard. See 40 CFR part 52, subpart P.
We believe that the section 110 SIP
approved for the 1-hour standard may
likely be sufficient to meet requirements
under the 8-hour ozone standard, as
well. EPA is in the process of further
evaluating this question, and will, in the
future if necessary, announce whether
any additional section 110 SIP
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provisions are needed for the Evansville
area under the 8-hour ozone standard.
Part D SIP requirements. EPA has
determined that the Indiana SIP meets
applicable SIP requirements under part
D of the CAA since no such
requirements became due for the 8-hour
ozone standard prior to submission of
the area’s redesignation request. Subpart
1 of part D, found in sections 172–176
of the CAA, sets forth the basic
nonattainment area plan requirements
applicable to all nonattainment areas.
Because the Evansville area is a subpart
1 8-hour ozone nonattainment area and
is not classified under subpart 2 of part
D of the CAA for the 8-hour ozone
standard, subpart 2 of part D of the CAA
does not apply to this area.
Section 172(c) requirements. For
purposes of evaluating this ozone
redesignation request, the applicable
part D, subpart 1 SIP requirements for
the Evansville area are contained in
section 172 of the CAA. A thorough
discussion of the requirements of
section 172 can be found in the General
Preamble for Implementation of Title I
(57 FR 13498, April 16, 1992).
No requirements under part D became
due prior to submission of the
redesignation request, and, therefore,
none is applicable to the area for
purposes of redesignation. For example,
the requirement for an ozone attainment
demonstration to meet the requirement
of section 172(c)(1) is not yet applicable,
nor are the requirements for Reasonably
Available Control Measures (RACM)
and Reasonably Available Control
Technology (RACT) (section 172(c)(1)),
Reasonable Further Progress (RFP)
(section 172(c)(2)), and contingency
measures (section 172(c)(9)).
Since the State of Indiana has
submitted a complete ozone
redesignation request for the Evansville
area prior to the deadline for any
submissions, we are proposing to
determine that the part D requirements
do not apply to the Evansville area for
purposes of redesignation.
Section 176 conformity requirements.
Section 176(c) of the CAA requires
states to establish criteria and
procedures to ensure that Federallysupported or funded activities,
including highway projects, conform to
the air planning goals in the applicable
SIP. The requirement to determine
conformity applies to transportation
plans, programs and projects developed,
funded or approved under Title 23
U.S.C. and the Federal Transit Act
(transportation conformity) as well as to
all other Federally-supported or funded
projects (general conformity). State
conformity SIP revisions must be
consistent with Federal conformity
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regulations that the CAA required the
EPA to promulgate.
In addition to the fact that part D
requirements did not become due prior
to Indiana’s submission of the
redesignation request and, therefore, are
not applicable, EPA believes that it is
reasonable to interpret the conformity
requirements as not applying for
purposes of evaluating the ozone
redesignation request under section
107(d) of the CAA because state
conformity rules are still required after
redesignation of an area to attainment of
a NAAQS and Federal conformity rules
apply where state rules have not been
approved. See Wall v. EPA, 265 F.3d
426 (6th Cir. 2001). See also 60 FR
62748 (December 7, 1995) (Tampa,
Florida).
EPA has also determined that areas
being redesignated need not comply
with the requirement that a NSR
program be approved prior to
redesignation, provided that the area
demonstrates maintenance of the
standard without part D NSR, since PSD
requirements will apply after
redesignation. A more detailed rationale
for this view is described in a
memorandum from Mary Nichols,
Assistant Administrator for Air and
Radiation, dated October 14, 1994,
entitled, ‘‘Part D New Source Review
Requirements for Areas Requesting
Redesignation to Attainment.’’ Indiana
has demonstrated that the area will be
able to maintain the standard without
part D NSR in effect, and therefore, EPA
concludes that the State need not have
a fully approved part D NSR program
prior to approval of the redesignation
request. The State’s PSD program will
become effective in the Evansville area
upon redesignation to attainment. See
rulemakings for Detroit, Michigan (60
FR 12467–12468, March 7, 1995);
Cleveland-Akron-Lorain, Ohio (61 FR
20458, 20469–20470, May 7, 1996);
Louisville, Kentucky (66 FR 53665,
October 23, 2001); Grand Rapids,
Michigan (61 FR 31834–31837, June 21,
1996). Thus, the area has satisfied all
applicable requirements under section
110 and part D of the CAA.
b. The Evansville area has a fully
approved applicable SIP under section
110(k) of the CAA. EPA has fully
approved the Indiana SIP for the
Evansville area under section 110(k) of
the CAA for all applicable requirements.
EPA may rely on prior SIP approvals in
approving a redesignation request (See
the September 4, 1992 John Calcagni
memorandum, page 3, Southwestern
Pennsylvania Growth Alliance v.
Browner, 144 F.3d 984, 989–990 (6th
Cir. 1998), Wall v. EPA, 265 F.3d 426
(6th Cir. 2001)) plus any additional
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53609
measures it may approve in conjunction
with a redesignation action. See 68 FR
25426 (May 12, 2003). Since the passage
of the CAA of 1970, Indiana has adopted
and submitted, and EPA has fully
approved, provisions addressing the
various required SIP elements
applicable to the Evansville area for
purposes of redesignation. No
Evansville area SIP provisions are
currently disapproved, conditionally
approved, or partially approved. As
indicated above, EPA believes that the
section 110 elements not connected
with nonattainment plan submissions
and not linked to the area’s
nonattainment status are not applicable
requirements for purposes of
redesignation. EPA has also noted that
it may well conclude that the section
110 SIP submission approved under the
1-hour standard will be adequate for
purposes of the 8-hour standard. EPA
also believes that since the part D
requirements did not become due prior
to submission of the redesignation
request, they also are, therefore, not
applicable requirements for purposes of
redesignation.
3. The Air Quality Improvement in the
Evansville Area Is Due to Permanent
and Enforceable Reductions in
Emissions From Implementation of the
SIP and Applicable Federal Air
Pollution Control Regulations and Other
Permanent and Enforceable Emission
Reductions
EPA believes that the State of Indiana
has demonstrated that the observed air
quality improvement in the Evansville
area is due to permanent and
enforceable reductions in emissions
resulting from implementation of the
SIP, Federal measures, and other stateadopted measures.
In making this demonstration, the
State has documented the changes in
VOC and NOX emissions for both the
Evansville ozone nonattainment area
and for five additional counties 4
(Dubois, Gibson, Pike, Posey, and
Spencer) in the Southwestern Indiana
4 IDEM documented the VOC and NO emissions
X
in these five counties at the request of the EPA.
Although no analyses or modeling exist
demonstrating that these specific emissions
significantly contributed to the peak ozone levels in
the Evansville area, it is recognized, based on
available ozone analyses and modeling for the
Midwest, that regional emissions outside of the
Evansville area are likely to have significantly
contributed to the peak ozone concentrations in the
Evansville area. The documentation of the VOC and
NOX emissions for these neighboring counties
characterizes the relative magnitude of regional
versus local emissions, and, through emission
projections (documented in subsequent tables in
this proposed rule), the directionality of regional
emissions that may also impact future ozone
concentrations.
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area between 1996, when the Evansville
area was monitored with a violation of
the 8-hour ozone NAAQS, and 2002,
one of the years during the three-year
period when the Evansville area
monitored attainment of the 8-hour
ozone NAAQS. The VOC emissions and
NOX emissions for the Southwestern
Indiana area (with the Evansville area
emissions given as a sub-portion of the
summarized emissions) are given in
Tables 2 and 3. The VOC and NOX
emissions for the Evansville ozone
nonattainment area and for the
remainder of the Southwestern Indiana
area have shown significant downward
trends between 1996 and 2002. IDEM
notes that the emissions in this area are
decreasing substantially in response to
national emission reduction programs
affecting all Electric Generating Units
(EGUs), including the acid rain control
program and the NOX SIP Call. A
significant number of EGUs exist in the
Southwestern Indiana area. Therefore,
the national emission control
requirements for the EGUs have likely
had a significant impact on the NOX
emissions in this area and on the ozone
concentrations monitored in the
Evansville area. To some extent, these
emission controls have also resulted in
reductions in VOC emissions from these
sources.
TABLE 2.—VOC EMISSIONS IN THE EVANSVILLE AND SOUTHWESTERN INDIANA AREAS—1996–2002 IN TONS PER
SUMMER DAY 5
County
1996
Vanderburgh/Warrick .....................................................................................................................................
Dubois ............................................................................................................................................................
Gibson ............................................................................................................................................................
Pike ................................................................................................................................................................
Posey .............................................................................................................................................................
Spencer ..........................................................................................................................................................
Southwest Indiana Total .........................................................................................................................
55.54
24.84
11.49
4.36
14.87
7.38
118.48
1999
58.28
23.23
11.57
4.22
13.80
8.68
119.77
2002
41.13
18.83
13.29
4.66
10.57
7.39
95.87
TABLE 3.—NOX EMISSIONS IN THE EVANSVILLE AND SOUTHWESTERN INDIANA AREAS—1996–2002 IN TONS PER
SUMMER DAY
County
1996
1999
2002
Vanderburgh/Warrick .....................................................................................................................................
Dubois ............................................................................................................................................................
Gibson ............................................................................................................................................................
Pike ................................................................................................................................................................
Posey .............................................................................................................................................................
Spencer ..........................................................................................................................................................
119.72
19.21
143.52
81.73
36.84
102.75
130.40
17.02
163.00
66.08
48.77
116.44
95.42
8.32
140.12
64.65
38.43
99.27
Southwest Indiana Total .........................................................................................................................
503.78
541.71
446.21
Other emission controls have also
been implemented in Southwestern
Indiana. IDEM notes that statewide VOC
RACT rules were adopted for a limited
set of existing sources in the mid-1990s,
and have been implemented by new
sources located in Indiana since that
time. The following Indiana VOC RACT
rules have been adopted and
implemented on a statewide basis: 326
Indiana Administrative Code (IAC) 8–2
(Surface Coating Emission Limitations);
326 IAC 8–3 (Organic Solvent
Degreasing Operations); 326 IAC 8–4
(Petroleum Sources); 326 IAC 8–5
(Miscellaneous Operations); 326 IAC
8–6 (Organic Solvent Emission
Limitations); and, 326 IAC 8–10 (Auto
Body Refinishing). Compliance with
these rules have reduced VOC emissions
in the Southwestern Indiana area.
Since the Evansville area was
previously classified as a marginal
nonattainment area for the 1-hour ozone
standard, and was not required to
demonstrate attainment of the 1-hour
ozone standard, no ozone precursor
emission controls were specifically
required for the Evansville area.
Therefore, the statewide and national
emission control requirements have
provided the majority of the emission
reductions in this area.
Besides the statewide VOC RACT
rules and national NOX emission control
requirements, other Federal emission
reduction requirements have resulted in
decreased ozone precursor emissions in
the Southwestern Indiana area and/or
will produce future emission reductions
leading to maintenance of the ozone
standard in the Evansville area. These
emission reduction requirements
include the following:
Tier 2 Emission Standards for
Vehicles and Gasoline Sulfur Standards.
These emission control requirements
result in lower emissions from new cars
and light duty trucks, including sport
utility vehicles. The Federal rules are
being phased in between 2004 and 2009.
Mobile source NOX emissions are
expected to be decreased by 65 to 90
percent, depending on vehicle type.
Mobile source VOC emissions are
expected to be decreased by 12 to 18
percent depending on vehicle type.
Heavy-Duty Diesel Engines. The
Heavy-Duty Diesel Engine rule applies
to new heavy-duty gasoline and diesel
trucks and buses, and is expected to
reduce NOX emissions from new
vehicles by up to 40 percent. The rule
is being phased in from 2004 through
2007.
Non-Road Diesel Rule. This rule
generally applies to new stationary
diesel engines used in certain
industries, including construction,
agriculture, and mining. In addition to
affecting engine design, this rule
includes requirements for cleaner fuels.
5 See Footnote 4 above. The most relevant
emissions in this table and in subsequent emissions
tables are the VOC and NOX emissions in
Vanderburgh and Warrick Counties. The emissions
in the remaining counties serve only to demonstrate
the relative magnitude of regional versus local
emissions and the directionality over time of
regional emissions in general that, along with local
emissions, impact the Evansville area’s peak ozone
levels.
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It is expected to reduce NOX emissions
from these engines by up to 90 percent,
and to significantly reduce particulate
matter and sulfur emissions from these
engines. This rule will limit emissions
from new engines beginning in 2008.
The rule has not impacted current
emissions from these engines, but is
expected to have a significant impact
during the maintenance period for the
Evansville area.
IDEM notes that some emission
reductions have resulted from
permanent source closures in the
Evansville area, and that these emission
reductions have contributed to the
downward trend in emissions in the
Evansville area and toward attainment
of the 8-hour ozone standard. In its June
2, 2005 submittal, IDEM has listed the
source closures that have occurred
between 1996 and 2002. IDEM confirms
that the emissions reductions resulting
from the source closures are permanent
and will be maintained in the future. To
prevent these emission reductions from
being totally consumed by
unconstrained source growth, IDEM
states that any reopening of the closed
facilities will require review under
Indiana’s new source review program
after the redesignation of the Evansville
area to attainment of the 8-hour ozone
NAAQS and the implementation of
appropriate emission controls for new
sources.
Indiana commits to maintain all
existing emission control measures that
affect the Evansville area after this area
is redesignated to attainment. All
changes in existing rules affecting the
Evansville area and new rules
subsequently needed for continued
maintenance of the 8-hour ozone
NAAQS in the Evansville area will be
submitted to the EPA for approval as
SIP revisions.
4. The Evansville Area Has a Fully
Approvable Ozone Maintenance Plan
Pursuant to Section 175A of the CAA
In conjunction with its request to
redesignate the Evansville area to
attainment of the ozone NAAQS,
Indiana submitted a SIP revision to
provide for maintenance of the 8-hour
ozone NAAQS in the Evansville area for
at least 10 years after the redesignation
of this area to attainment of the NAAQS.
a. What Is Required in an Ozone
Maintenance Plan?
Section 175A of the CAA sets forth
the required elements of maintenance
plans for areas seeking redesignation
from nonattainment to attainment.
Under section 175A, a maintenance
plan must demonstrate continued
attainment of the applicable NAAQS for
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at least ten years after the Administrator
approves the redesignation to
attainment. Eight years after the
redesignation, the State must submit a
revised maintenance plan which
demonstrates that attainment will
continue to be maintained for the ten
years following the initial ten-year
maintenance period. To address the
possibility of future NAAQS violations,
the 8-hour ozone maintenance plan
must contain such contingency
measures, with a schedule for
implementation, as EPA deems
necessary, to assure prompt correction
of any future 8-hour ozone standard
violations. The September 4, 1992 John
Calcagni memorandum provides
additional guidance on the content of
maintenance plans. An ozone
maintenance plan should, at minimum,
address the following items: The
attainment VOC and NOX emissions
inventories; a maintenance
demonstration showing maintenance for
the first ten years of the maintenance
period; a commitment to maintain the
existing monitoring network; factors and
procedures to be used for verification of
continued attainment; and, a
contingency plan to prevent and/or
correct any future violation of the
NAAQS.
b. Attainment Emissions Inventories
IDEM prepared comprehensive VOC
and NOX emissions inventories for
Vanderburgh and Warrick Counties,
including point (significant stationary
sources), area (smaller stationary
sources and widely-distributed sources),
mobile on-road, and mobile non-road
sources for a base year/attainment year
of 2002. IDEM has documented the VOC
and NOX emissions by major source
categories for Vanderburgh and Warrick
Counties, along with the VOC and NOX
emissions for other counties in the
Southwestern Indiana area for 1996,
1999, and 2002, which were years EPA
required states to prepare and submit
periodic emission inventory updates.
To develop the base year emissions
inventories, IDEM used the following
approaches and sources of data:
Area Sources—Area source VOC and
NOX emissions were taken from the
Indiana 2002 periodic emissions
inventory, which was previously
submitted to the EPA. The area source
emission estimates were derived using
United States Department of Commerce
Bureau of Economic Analysis (BEA)
growth factors to project emissions
derived for 1996 and 1999. The area
source estimates also involved the use
of current local source surrogate data,
including area populations and
employment data by source type.
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53611
Mobile On-Road Sources—Mobile
source emissions were calculated using
MOBILE6 emission factors. Traffic data
(vehicle miles traveled, vehicle speeds,
and vehicle type and age distributions)
for 2002 were calculated using the travel
demand model and post-processor
provided by the Evansville Urban
Transportation Study (EUTS). IDEM has
provided detailed data summaries to
document the calculation of mobile onroad VOC and NOX emissions for 2002,
as well as for the projection years of
2010 and 2015 (further discussed
below).
Point Source Emissions—2002 point
source emissions were compiled from
IDEM’s 2002 annual emissions
statement database and the 2002 EPA
Air Markets acid rain emissions
inventory database.
Mobile Non-Road Emissions—Nonroad mobile source emissions were
generated by the EPA and documented
in the 2002 National Emissions
Inventory (NEI). In addition to the data
taken from the NEI, IDEM also
considered emissions for commercial
marine vessels and railroads, obtained
from the Lake Michigan Air Directors
Consortium (LADCO). The NEI
emissions data for recreational
motorboats and construction equipment
were significantly revised based on local
data. The NEI emissions from
recreational motorboats were revised to
account for local motorboat population
data and local spatial surrogates. The
NEI construction equipment emissions
were reviewed and updated based on
surveys completed in the Midwest.
IDEM also updated the temporal
allocation of agricultural emissions.
The 2002 attainment year VOC and
NOX emissions for Vanderburgh and
Warrick Counties are summarized along
with the 2010 and 2015 projected
emissions for these Counties in Tables
4 below, which covers the
demonstration of maintenance for this
area. It is our conclusion that the State
has adequately derived and documented
the attainment year VOC and NOX
emissions for this area.
c. Demonstration of Maintenance
As part of its June 2, 2005 ozone
redesignation request submittal, IDEM
included a requested revision of the SIP
to include a 10-year ozone maintenance
plan as required by section 175A of the
CAA. This demonstration shows
maintenance of the 8-hour ozone
NAAQS by assuring that current and
future emissions of VOC and NOX
remain at or below the attainment year
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emission levels.6 Note that a
maintenance demonstration need not be
based on modeling. See Wall v. EPA,
265 F.3d 426 (6th Cir. 2001), Sierra Club
v. EPA, 375 F.3d 537 (7th Cir. 2004). See
also 66 FR 53094, 53099–53100
(October 19, 2001) and 68 FR 25430–
25432 (May 12, 2003).
Table 4 specifies the VOC and NOX
emissions for Venderburgh and Warrick
Counties combined for 2002, 2010, and
2015. IDEM chose 2010 as an interim
year in the 10-year maintenance
demonstration period to demonstrate
that the VOC and NOX emissions are not
projected to increase above the
attainment levels in the middle of the
10-year period.
TABLE 4.—ATTAINMENT YEAR (2002) AND PROJECTED VOC AND NOX EMISSIONS IN VANDERBURGH AND WARRICK
COUNTIES (TPSD)
VOC
NOX
Source sector
2002
2010
2015
2002
2010
2015
Point .............................................................................................
Area ..............................................................................................
On-Road .......................................................................................
Non-Road .....................................................................................
5.16
18.60
11.21
6.16
6.77
21.36
6.02
4.42
8.09
23.46
4.12
3.80
70.19
2.95
16.40
5.88
30.18
3.20
9.30
4.52
31.43
3.27
5.01
3.23
Total ......................................................................................
41.13
38.56
39.47
95.42
47.19
42.94
IDEM also considered regional
emissions from other counties in the
Southwestern Indiana area. IDEM
concluded, based on analyses by
LADCO,7 that regional NOX emissions
changes may significantly impact the
ozone levels in the Evansville area,
whereas regional VOC emissions
outside of the nonattainment area were
less of a concern. IDEM determined the
attainment year and projected year NOX
emissions for Dubois, Gibson, Pike,
Posey, and Spencer Counties, which are
the other counties in the Southwestern
Indiana area as noted above. Table 5
summarizes the NOX emissions totals
for these counties by major source
sector. It can be seen that the NOX
emissions totals in these counties are
projected to decrease after 2002, which
indicates that the transport of NOX into
the Evansville area will also decrease
during the 10-year maintenance period.
TABLE 5.—ATTAINMENT YEAR AND PROJECTED NOX EMISSIONS IN COUNTIES IN THE VICINITY OF THE EVANSVILLE AREA
(TPSD)
NOX
Source sector
2002
2010
2015
Point ...............................................................................................................................................................
Area ...............................................................................................................................................................
On-Road Mobile .............................................................................................................................................
Non-Road Mobile ...........................................................................................................................................
318.03
2.37
18.63
11.76
134.22
2.53
10.68
9.72
134.71
2.61
6.70
7.73
Total ........................................................................................................................................................
350.79
157.15
151.76
The emission projections show that
the ozone precursor emissions in the
Evansville area in addition to the NOX
emissions in other counties in its
vicinity are not expected to exceed the
levels of the 2002 attainment year
during the 10-year maintenance period.
The decreases in local and regional NOX
emissions indicate that peak ozone
levels in the Evansville area may
actually be expected to further decline
during the 10-year maintenance period.
IDEM has documented the procedures
used to project emissions. On-road
mobile source emissions were projected
using the MOBILE6 emission factor
model and projected traffic data
obtained from the Evansville Urban
Transportation Study’s Travel Demand
Model, the same procedure used to
determine the attainment year on-road
mobile source emissions. Emissions for
the other major source sectors were
determined using source activity/growth
data provided by LADCO. LADCO has
developed source growth and emission
control data for sources in the upper
Midwest for use in 8-hour ozone and
fine particulate (PM2.5) modeling
analyses. Therefore, IDEM’s emission
projections for the Evansville area and
its vicinity are consistent with the
planning analyses being conducted to
attain the 8-hour ozone and PM2.5
standards in the upper Midwest urban
areas and region. It should also be noted
that the NOX emission estimates are also
consistent with the Indiana state-wide
NOX emission budget established in
Indiana’s EGU NOX rule.
Based on the comparison of the
projected emissions and the attainment
year emissions, we conclude that IDEM
has successfully demonstrated that the
8-hour ozone standard should be
maintained in the Evansville area. We
believe that this is especially likely
given the projected decrease in the
6 The attainment year can be any of the three
consecutive years where the area has clean air
quality data (2002, 2003, or 2004 for the Evansville
area). 2002 is the recommended base year for ozone
attainment and rate-of-progress demonstrations, as
discussed in a November 18, 2002 memorandum,
‘‘2002 Base Year Emission Inventory SIP Planning:
8-hr Ozone, PM2.5 and Regional Haze Programs,’’
from Lydia N. Wegman, Director, Air Quality
Strategies and Standards Division. As noted here,
Indiana chose to use 2002 as the attainment year
because the State was already preparing emissions
for this year to prepare the base year emissions
inventory.
7 Analyses conducted by LADCO to support the
development of 1-hour ozone attainment
demonstrations showed that peak ozone
concentrations in the Chicago and Milwaukee areas
were sensitive to changes in local VOC emissions
and to changes in regional NOX emissions outside
of the urban areas. Changes in regional VOC
emissions upwind of these urban areas produced
minimal changes in the peak ozone concentrations
in these urban areas. Modeling for the 8-hour ozone
standard being conducted by LADCO and its
member states suggests that the same principle also
applies in other major urban areas in the region.
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region’s NOX emissions.8 As noted by
IDEM, this conclusion is further
supported by the fact that other states in
the eastern portion of the United States
are expected to further reduce regional
NOX emissions through the
implementation of their NOX rules for
EGUs and other major NOX emission
sources. In addition, further regional
emission reductions are expected to
occur as the result of the
implementation of EPA rules for Tier 2
motor vehicle standards, gasoline sulfur
content restrictions, highway heavyduty diesel engines, and non-road diesel
engines, all of which will be
implemented during the next few years.
The implementation of CAIR should
also provide additional reductions in
regional NOX emissions.
d. Monitoring Network
As noted elsewhere in this proposed
rule, IDEM commits to continue
operating and maintaining an approved
ozone monitoring network in the
Evansville area in accordance with 40
CFR part 58 through the 10-year
maintenance period. This will allow the
confirmation of the maintenance of the
8-hour ozone standard in this area.
e. Verification of Continued Attainment
Continued attainment of the 8-hour
ozone NAAQS in the Evansville area
depends, in part, on the State’s efforts
toward tracking applicable indicators
during the maintenance period. The
State’s plan for verifying continued
attainment of the 8-hour standard in the
Evansville area consists of plans to
continue ambient ozone monitoring in
accordance with the requirements of 40
CFR part 58. In addition, IDEM will
periodically revise and review the VOC
and NOX emissions inventories for the
Evansville area to assure that emissions
growth is not threatening the continued
attainment of the 8-hour ozone standard
in the Evansville area. Emissions
inventories will be revised for 2005,
2008, and 2011, as necessary to comply
with the emissions inventory reporting
requirements of the CAA. The updated
emissions inventories will be compared
to the 2002 emissions inventories to
assess emission trends and assure
continued attainment of the 8-hour
ozone standard.
8 As noted above, the emissions from the
‘‘neighboring counties’’ (those counties outside of
the Evansville area) are indicative of the emission
changes expected in the region as a whole.
Therefore, since emissions are projected to decline
in the neighboring counties, we can assume that
emissions upwind of the Evansville area will also
decline over the subject period.
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f. Contingency Plan
The contingency plan provisions are
designed to promptly correct or prevent
a violation of the NAAQS that might
occur after redesignation of an area to
attainment of the NAAQS. Section 175A
of the CAA requires that a maintenance
plan include such contingency
measures as EPA deems necessary to
assure that the State will promptly
correct a violation of the NAAQS that
might occur after redesignation. The
maintenance plan should identify the
contingency measures to be adopted, a
schedule and procedure for adoption
and implementation of the contingency
measures, and a time limit for action by
the state. The state should also identify
specific indicators to be used to
determine when the contingency
measures need to be adopted and
implemented. The maintenance plan
must include a requirement that the
state will implement all measures with
respect to control of the pollutant(s) that
were contained in the SIP before
redesignation of an area to attainment.
See section 175A(d) of the CAA.
As required by section 175A of the
CAA, Indiana has adopted a
contingency plan to address a possible
future ozone air quality problem. The
contingency plan adopted by Indiana
has two levels of responses, depending
on whether a violation of the 8-hour
ozone standard is only threatened
(Warning Level) or is imminent (Action
Level).
A Warning Level response will occur
when an annual (1-year) fourth-high
monitored daily peak 8-hour ozone
concentration of 88 ppb or higher is
monitored in a single ozone season at
any monitor within the ozone
maintenance area. A Warning Level
response will consist of Indiana
performing a study to determine
whether the high ozone concentration
indicates a trend toward high ozone
levels or whether emissions are
increasing. If a trend toward higher
ozone concentrations exists and is likely
to continue, the emissions control
measures necessary to reverse the trend
will be determined taking into
consideration ease and timing of
implementation, as well as economic
and social considerations. The study,
including applicable recommended next
steps, will be completed within 12
months from the close of the ozone
season with the recorded high ozone
concentration. If emission controls are
needed to reverse the adverse ozone
trend, the procedures for emission
control selection under the Action Level
response will be followed.
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53613
An Action Level response will occur
when a two-year average annual fourthhigh monitored daily peak 8-hour ozone
concentration of 85 ppb occurs at any
monitor in the ozone maintenance area.
In this situation, IDEM will determine
the additional emission control
measures needed to assure future
attainment of the 8-hour ozone NAAQS.
IDEM will focus on emission control
measures that can be implemented in a
short time, and selected emission
control measures will be adopted and
implemented within 18 months from
the close of the ozone season with ozone
monitoring data that prompted the
Action Level Response. Adoption of any
additional emission control measures
will be subject to the necessary
administrative and legal procedures,
including publication of notices and the
opportunity for public comment and
response. If a new emission control
measure is adopted by the State
(independent of the ozone contingency
needs) or is adopted at a Federal level
and is scheduled for implementation in
a time frame that will mitigate an ozone
air quality problem, IDEM will
determine whether this emission control
measure is sufficient to address the
ozone air quality problem. If IDEM
determines that existing or soon-to-beimplemented emissions control
measures should be adequate to correct
the ozone standard violation problem,
IDEM may determine that additional
emission control measures at the State
level may be unnecessary. Regardless,
IDEM will submit to the EPA an
analysis to demonstrate that proposed
emission control measures are adequate
to provide for future attainment of the
8-hour ozone NAAQS in a timely
manner.
Contingency measures contained in
the maintenance plan are those
emission controls or other measures that
Indiana may choose to adopt and
implement to correct possible air quality
problems. These include, but are not
limited to, the following:
i. Lower Reid vapor pressure gasoline
requirements;
ii. Broader geographic applicability of
existing emission control measures;
iii. Tightened RACT requirements on
existing sources covered by EPA Control
Technique Guidelines (CTGs) issued in
response to the 1990 CAA amendments;
iv. Application of RACT to smaller
existing sources;
v. Vehicle Inspection and
Maintenance (I/M);
vi. One or more Transportation
Control Measure (TCM) sufficient to
achieve at least a 0.5 percent reduction
in actual area wide VOC emissions, to
be selected from the following:
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Federal Register / Vol. 70, No. 174 / Friday, September 9, 2005 / Proposed Rules
A. Trip reduction programs,
including, but not limited to, employerbased transportation management plans,
area wide rideshare programs, work
schedule changes, and telecommuting;
B. Transit improvements;
C. Traffic flow improvements; and
D. Other new or innovative
transportation measures not yet in
widespread use that affect State and
local governments as deemed
appropriate;
vii. Alternative fuel and diesel retrofit
programs for fleet vehicle operations;
viii. Controls on consumer products
consistent with those adopted elsewhere
in the United States;
ix. VOC or NOX emission offsets for
new or modified major sources;
x. VOC or NOX emission offsets for
new or modified minor sources;
xi. Increased ratio of emission offset
required for new sources; and,
xii. VOC or NOX emission controls on
new minor sources (with VOC or NOX
emissions less than 100 tons per year).
g. Provisions for Future Updates of the
Ozone Maintenance Plan
As required by section 175A(b) of the
CAA, Indiana commits to submit to the
EPA an update of the ozone
maintenance plan eight years after
redesignation of the Evansville area to
cover an additional 10-year period
beyond the initial 10-year maintenance
period.
V. Has Indiana Adopted Acceptable
Motor Vehicle Emissions Budgets for
the End of the 10-Year Maintenance
Plan (for 2015) Which Can Be Used To
Support Conformity Determinations?
A. How Are the MVEBs Developed and
What Are the MVEBs for the Evansville
Area?
Under the CAA, states are required to
submit, at various times, control strategy
SIP revisions and ozone maintenance
plans for applicable areas (for ozone
nonattainment areas and for areas
seeking redesignations to attainment of
the ozone standard). These emission
control strategy SIP revisions (e.g.,
reasonable further progress and
attainment demonstration SIP revisions)
and ozone maintenance plans must
create MVEBs based on on-road mobile
source emissions for criteria pollutants
and/or their precursors to address
pollution from cars and trucks. The
MVEBs are the portions of the total
allowable emissions that are allocated to
highway and transit vehicle use that,
together with emissions from other
sources in the area, will provide for
attainment or maintenance.
Under 40 CFR part 93, a MVEB for an
area seeking a redesignation to
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15:12 Sep 08, 2005
Jkt 205001
attainment is established for the last
year of the maintenance plan. The
MVEB serves as a ceiling on emissions
from an area’s planned transportation
system. The MVEB concept is further
explained in the preamble to the
November 24, 1993 transportation
conformity rule (58 FR 62188). The
preamble also describes how to
establish the MVEB in the SIP and how
to revise the MVEB if needed.
Under section 176(c) of the CAA, new
transportation projects, such as the
construction of new highways, must
‘‘conform’’ to (i.e., be consistent with)
the part of the SIP that addresses
emissions from cars and trucks.
Conformity to the SIP means that
transportation activities will not cause
new air quality violations, worsen
existing air quality violations, or delay
timely attainment of the NAAQS. If a
transportation plan does not conform,
most new transportation projects that
would expand the capacity of roadways
cannot go forward. Regulations at 40
CFR part 93 set forth EPA’s policy,
criteria, and procedures for
demonstrating and assuring conformity
of transportation activities to a SIP.
When reviewing SIP revisions
containing MVEBs, including
attainment strategies, rate-of-progress
plans, and maintenance plans, EPA
must affirmatively find that the MVEBs
are ‘‘adequate’’ for use in determining
transportation conformity. Once EPA
affirmatively finds the submitted
MVEBs to be adequate for transportation
conformity purposes, the MVEBs are
used by state and federal agencies in
determining whether proposed
transportation projects conform to the
SIPs as required by section 176(c) of the
CAA. EPA’s substantive criteria for
determining the adequacy of MVEBs are
set out in 40 CFR 93.118(e)(4).
EPA’s process for determining
adequacy of a MVEB consists of three
basic steps: (1) Providing public
notification of a SIP submissions; (2)
providing the public the opportunity to
comment on the MVEB during a public
comment period; and (3) EPA’s finding
of adequacy. The process of determining
the adequacy of submitted SIP MVEBs
was initially outlined in EPA’s May 14,
1999 guidance, ‘‘Conformity Guidance
on Implementation of March 2, 199,
Conformity Court Decision.’’ This
guidance was finalized in the
Transportation Conformity Rule
Amendments for the ‘‘New 8-Hour
Ozone and PM2.5 National Ambient Air
Quality Standards and Miscellaneous
Revisions for Existing Areas:
Transportation Conformity Rule
Amendments—Response to Court
Decision and Additional Rule Change’’
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Sfmt 4702
published on July 1, 2004 (69 FR
40004). EPA follows this guidance and
rulemaking in making its adequacy
determinations.
The Evansville area’s 10-year
maintenance plan contains VOC and
NOX MVEBs for 2015. The availability
of the SIP submission with these 2015
MVEBs was announced for public
comment on EPA’s adequacy Web page
on April 12, 2005, at: https://
www.epa.gov/otaq/transp/conform/
currsips.htm. The EPA public comment
period on the adequacy of the 2015
MVEBs for the Evansville area closed on
May 12, 2005. EPA did not receive any
adverse comments. On June 30, 2005 (70
FR 37856), EPA published a notice of
adequacy to notify the public that we
had found the 2015 MVEBs to be
adequate for use in transportation
conformity analyses.
EPA, through this rulemaking, is
proposing to approve the MVEBs for use
to determine transportation conformity
in the Evansville area because EPA has
determined that the budgets are
consistent with the control measures in
the SIP and that the Evansville area can
maintain attainment of the 8-hour ozone
NAAQS for the relevant 10-year period
with mobile source emissions at the
levels of the MVEBs. IDEM has
determined the 2015 MVEBs for the
Evansville area (for Vanderburgh and
Warrick Counties combined) to be 4.20
tpd for VOC and 5.40 tpd day for NOX.
It should be noted that these MVEBs
exceed the on-road mobile source VOC
and NOX emissions projected by IDEM
for 2015, as summarized in Table 4,
above (‘‘On-Road’’ source sector).
Through discussions with all
organizations involved in transportation
planning for the Evansville area, IDEM
decided to include safety margins of
0.08 tpd of VOC and 0.39 tpd of NOX
in the MVEBs to provide for mobile
source growth. Indiana has
demonstrated that the Evansville area
can maintain the 8-hour ozone NAAQS
with mobile source emissions of 4.20
tpd of VOC and 5.40 tpd of NOX in
2015, since emissions will still remain
under the attainment year levels.
B. What Is a Safety Margin?
A ‘‘safety margin’’ is the difference
between the attainment level of
emissions (from all sources) and the
projected level of emissions (from all
sources) in the maintenance plan. As
noted in Table 4, the Evansville area
VOC and NOX emissions are projected
to have safety margins of 1.66 tons per
day for VOC and 52.48 tons per day for
NOX in 2015 (the difference between the
attainment year, 2002, emissions and
the 2015 emissions for all sources in
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Vanderburgh and Warrick Counties
combined).
The MVEBs requested by IDEM
contain safety margins (selected by the
State) significantly smaller than the
safety margins reflected in the total
emissions for the Evansville area. The
State is not requesting allocation of the
entire available safety margins reflected
in the demonstration of maintenance.
Therefore, even though the State is
requesting MVEBs that exceed the onroad mobile source emissions for 2015
contained in the demonstration of
maintenance, the increase in on-road
mobile source emissions that can be
considered for transportation
conformity purposes is well within the
safety margins of the ozone maintenance
demonstration.
C. Are the MVEBs Approvable?
The VOC and NOX MVEBs for the
Evansville area are approvable because
they maintain the total emissions for
Vanderburgh and Warrick Counties at or
below the attainment year inventory
levels, as required by the transportation
conformity regulations.
VI. Statutory and Executive Order
Reviews
Executive Order 12866; Regulatory
Planning and Review
Under Executive Order 12866 (58 FR
51735, October 4, 1993), this action is
not a ‘‘significant regulatory action’’ and
therefore is not subject to review by the
Office of Management and Budget.
Executive Order 13211: Actions That
Significantly Affect Energy Supply,
Distribution, or Use
Because it is not a ‘‘significant
regulatory action’’ under Executive
Order 12866 or a ‘‘significant energy
action,’’ 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).
Regulatory Flexibility Act
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 U.S.C. 601
et seq.).
Unfunded Mandates Reform Act
Because this rule proposes to approve
pre-existing requirements under state
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15:12 Sep 08, 2005
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law and does not impose any additional
enforceable duty beyond that required
by state law, it does not contain any
unfunded mandate or significantly or
uniquely affect small governments, as
described in the Unfunded Mandates
Reform Act of 1995 (Pub. L. 104–4).
Executive Order 13175 Consultation
and Coordination With Indian Tribal
Governments
53615
Advancement Act of 1995 (15 U.S.C.
272 note) do not apply.
Paperwork Reduction Act
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.).
List of Subjects
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).
40 CFR Part 52
Executive Order 13132 Federalism
Environmental protection, Air
pollution control, National parks,
Wilderness areas.
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.
Executive Order 13045 Protection of
Children From Environmental Health
and Safety Risks
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.
National Technology Transfer
Advancement Act
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
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Fmt 4702
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Environmental protection, Air
pollution control, Intergovernmental
relations, Nitrogen oxides, Ozone,
Particulate matter, Reporting and
recordkeeping requirements,
Transportation conformity, Volatile
organic compounds.
40 CFR Part 81
Dated: August 29, 2005.
Bharat Mathur,
Acting Regional Administrator, Region 5.
[FR Doc. 05–17819 Filed 9–8–05; 8:45 am]
BILLING CODE 6560–50–P
ENVIRONMENTAL PROTECTION
AGENCY
40 CFR Part 62
[RO3–OAR–2005–MD–0008; FRL–7996–8]
Approval and Promulgation of State
Air Quality Plans for Designated
Facilities and Pollutants; Maryland;
Control of Emissions From
Commercial and Industrial Solid Waste
Incineration (CISWI) Units
Environmental Protection
Agency (EPA).
ACTION: Proposed rule.
AGENCY:
SUMMARY: EPA is proposing to approve
the May 12, 2005 negative declaration
letter submitted by the Maryland
Department of the Environment (MDE).
The negative declaration certifies that
existing CISWI units, subject to Clean
Air Act (the Act) requirements of
sections 111(d) and 129 and the related
emissions guidelines (EG), have been
permanently shut down and have been
dismantled in the State of Maryland.
In the Final Rules section of this
Federal Register, EPA is approving the
MDE certification as a direct final rule
without prior proposal because the
Agency views this as a noncontroversial
action and anticipates no adverse
comments. If no adverse comments are
received in response to this action, no
further activity is contemplated. If EPA
E:\FR\FM\09SEP1.SGM
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]]>Agencies
[Federal Register Volume 70, Number 174 (Friday, September 9, 2005)]
[Proposed Rules]
[Pages 53605-53615]
From the Federal Register Online via the Government Printing Office [www.gpo.gov]
[FR Doc No: 05-17819]
=======================================================================
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ENVIRONMENTAL PROTECTION AGENCY
40 CFR Parts 52 and 81
[R05-OAR-2005-IN-0006; FRL-7965-7]
Determination of Attainment, Approval and Promulgation of
Implementation Plans and Designation of Areas for Air Quality Planning
Purposes; Indiana; Redesignation of the Evansville Area to Attainment
of the 8-Hour Ozone Standard
AGENCY: Environmental Protection Agency (EPA).
ACTION: Proposed rule.
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SUMMARY: On June 2, 2005, the State of Indiana, through the Indiana
Department of Environmental Management (IDEM), submitted: A request for
the EPA to redesignate the area of Evansville (Vanderburgh and Warrick
Counties) from nonattainment to attainment of the 8-hour ozone National
Ambient Air Quality Standard (NAAQS); and a request for EPA approval of
an Indiana State Implementation Plan (SIP) revision containing a 10-
year maintenance plan for the Evansville area. EPA is proposing to
approve the State's request to redesignate the Evansville area to
attainment of the 8-hour ozone NAAQS. EPA's proposed approval of the
redesignation request is based on the determination that the Evansville
area and the State of Indiana have met the criteria for redesignation
to attainment specified in the Clean Air Act (CAA), including the
determination that the Evansville area has attained the 8-hour ozone
standard. In conjunction with the proposed approval of the
redesignation request for the Evansville area, EPA is proposing to
approve the State's plan to maintain the attainment of the 8-hour ozone
NAAQS through 2015 in this area as a revision to the Indiana SIP. EPA
is also proposing to approve 2015 Volatile Organic Compounds (VOC) and
Oxides of Nitrogen (NOX) Motor Vehicle Emissions Budgets
(MVEBs), which are supported by and consistent with the 10-year
maintenance plan for this area, for purposes of transportation
conformity.
DATES: Comments must be received on or before October 11, 2005.
ADDRESSES: Submit comments, identified by Regional Material in EDocket
(RME) ID No. R05-OAR-2005-IN-0006, by one of the following methods:
Federal eRulemaking Portal: https://www.regulations.gov. Follow the
on-line instructions for submitting comments.
Agency Web site: https://docket.epa.gov/rmepub/. RME, EPA's
electronic public docket and comments system, is EPA's preferred method
for receiving comments. Once in the system, select quick search, then
key in the appropriate RME Docket identification number. Follow the on-
line instructions for submitting comments.
E-mail: mooney.john@epa.gov.
Fax: (312) 886-5824.
Mail: You may send written comments to: John M. Mooney, Chief,
Criteria Pollutant Section, (AR-18J), U.S. Environmental Protection
Agency, Region 5, 77 West Jackson Boulevard, Chicago, Illinois 60604.
Hand delivery: Deliver your comments to: John M. Mooney, Chief,
Criteria Pollutant Section, (AR-18J), U.S. Environmental Protection
Agency, Region 5, 77 West Jackson Boulevard, 18th floor, Chicago,
Illinois 60604. Such deliveries are only accepted during the Regional
Office's normal hours of operation. The Regional Office's official
hours of business are Monday through Friday, 8:30 a.m. to 4:30 p.m.
excluding Federal holidays.
Instructions: Direct your comments to RME ID No. R05-OAR-2005-IN-
0006. EPA's policy is that all comments received will be included in
the public docket without change, including any personal information
provided, and may be made available online at https://docket.epa.gov/
rmepub/, 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 RME, regulations.gov, or e-mail. The EPA RME Web site
and the Federal regulations.gov Web site are ``anonymous access''
systems, 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 RME 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 electronic docket are listed in the
RME index at https://docket.epa.gov/rmepub/. Although listed in the
index, some information is not publicly available, i.e., CBI or other
information whose disclosure is restricted by statute. Certain other
material, such as copyrighted material, is not placed on the Internet
and will be publicly available only in hard copy form. Publicly
available docket materials are available either electronically in RME
or in hard copy at Environmental Protection Agency, Region 5, Air and
Radiation Division, 77 West Jackson Boulevard, Chicago, Illinois 60604.
We recommend that you telephone Edward Doty, Environmental Scientist,
at (312) 886-6057, before visiting the Region 5 office. This Facility
is open from 8:30 a.m. to 4:30 p.m., Monday through Friday, excluding
legal holidays.
FOR FURTHER INFORMATION CONTACT: Edward Doty, Environmental Scientist,
Criteria Pollutant Section, Air Programs Branch (AR-18J), U.S.
Environmental Protection Agency, Region 5, 77 West Jackson Boulevard,
Chicago, Illinois 60604, (312) 886-6057, doty.edward@epa.gov.
SUPPLEMENTARY INFORMATION: Throughout this document whenever ``we,''
``us,'' or ``our'' is used, we mean EPA. This supplementary information
section is arranged as follows:
I. EPA's Proposed Actions
A. What Actions Is EPA Proposing to Take?
B. Do These Actions Apply to Me?
C. What Is the Background for These Proposed Actions?
II. What Are the Criteria for Redesignation to Attainment?
III. What Is the Effect of EPA's Actions?
IV. What Is EPA's Analysis of the State's Request?
V. Has Indiana Adopted Acceptable Motor Vehicle Emissions Budgets
for the End of the 10-Year Maintenance Plan (for 2015) Which Can Be
Used to Support Conformity Determinations?
A. How Are the MVEBs Developed and What Are the MVEBs for the
Evansville Area?
B. What Is a Safety Margin?
C. Are the MVEBs Approvable?
VI. Statutory and Executive Order Reviews
[[Page 53606]]
I. EPA's Proposed Actions
A. What Actions Is EPA Proposing to Take?
EPA is proposing to take two related actions. First, EPA is
proposing to determine that the Evansville, Indiana ozone nonattainment
area (Vanderburgh and Warrick Counties) has attained the 8-hour ozone
NAAQS, and that it has met the requirements for redesignation under
section 107(d)(3)(E) of the CAA. EPA is, therefore, proposing to
approve a request from the State of Indiana to change the designation
of the Evansville area from nonattainment to attainment for the 8-hour
ozone NAAQS.
Second, EPA is proposing to approve Indiana's ozone maintenance
plan, as a requested SIP revision, for this area. The maintenance plan
is designed to keep the Evansville area in attainment of the 8-hour
ozone NAAQS for the next 10 years, through 2015. As supported by and
consistent with the ozone maintenance plan, EPA is proposing to approve
the 2015 VOC and NOX MVEBs for the Evansville area for
conformity purposes.
B. Do These Actions Apply to Me?
These proposed actions pertain to the designation of the Evansville
area for the 8-hour ozone NAAQS and to the emission controls in this
area and in its upwind environs related to attainment and maintenance
of the 8-hour ozone NAAQS. The emissions of concern are VOC and
NOX. If you own or operate a VOC or NOX emissions
source in the Evansville area or live in this area, this proposed rule
may impact or apply to you. It may also impact you if you are involved
in transportation planning or implementation of emission controls in
the Evansville area.
C. What Is the Background for These Proposed Actions?
EPA has determined that ground-level ozone is detrimental to human
health. On July 18, 1997, the EPA promulgated an 8-hour ozone NAAQS (62
FR 38856) of 0.08 parts per million parts of air (0.08 ppm) (80 parts
per billion (ppb)).\1\ This 8-hour ozone standard replaces a prior 1-
hour ozone NAAQS, which had been promulgated on February 8, 1979 (44 FR
8202), and which was revoked on June 15, 2005. Ground-level ozone is
not emitted directly by sources. Rather, emitted NOX and VOC
react in the presence of sunlight to form ground-level ozone along with
other secondary compounds. NOX and VOC are referred to as
``ozone precursors.''
---------------------------------------------------------------------------
\1\ This standard is violated in an area when any ozone monitor
in the area (or in its impacted downwind environs) records 8-hour
ozone concentrations with an average of the annual fourth-highest
daily maximum 8-hour ozone concentrations over a three-year period
equaling or exceeding 85 ppb.
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The CAA required EPA to designate as nonattainment any area that
violated the 8-hour ozone NAAQS based on the three most recent years of
air quality data (2001-2003 ozone data were considered for the initial
8-hour ozone designations). The Federal Register notice making these
designations was signed on April 15, 2004, and was published on April
30, 2004 (69 FR 23857).
The CAA contains two sets of provisions--subpart 1 and subpart 2--
that address planning and emission control requirements for
nonattainment areas. (Both are found in title I, part D of the CAA.)
Subpart 1 contains general, less prescriptive requirements for
nonattainment areas for any pollutant, including ozone, governed by any
NAAQS, and applies to all nonattainment areas. Subpart 2 contains more
specific requirements for certain ozone nonattainment areas, and
applies to ozone nonattainment areas classified under section 181 of
the CAA. Subpart 1 nonattainment areas, those areas not classified
under section 181 of the CAA, are subject only to the provisions of
subpart 1. Subpart 2 nonattainment areas, however, are subject to the
provisions of subpart 2, as well as to provisions of subpart 1 (many of
the requirements in subpart 1 are superseded by the more stringent
requirements of subpart 2).
In the April 30, 2004 designation rulemaking, EPA divided 8-hour
ozone nonattainment areas into the categories of subpart 1
nonattainment and subpart 2 nonattainment based on their 8-hour ozone
design values (i.e., the three-year average annual fourth-highest daily
maximum 8-hour ozone concentrations at the worst-case monitoring sites
in the designated areas) and their 1-hour ozone design values (i.e.,
the fourth-highest daily maximum 1-hour ozone concentrations over the
three-year period at the worst-case monitoring sites in the designated
areas).\2\ 8-hour ozone nonattainment areas with 1-hour ozone design
values equaling or exceeding 121 ppb were designated as classified
nonattainment areas (as nonattainment areas required to meet the
requirements of subpart 2 of the CAA). All other 8-hour nonattainment
areas were designated as basic nonattainment areas (as ozone
nonattainment areas required to meet the requirements of subpart 1
only).
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\2\ The 8-hour ozone design value and 1-hour ozone design value
for each area were not necessarily recorded at the same monitoring
site. The worst-case monitoring site for each concentration
averaging time was considered for each area.
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In the April 30, 2004 designation/classification rulemaking, the
Evansville area was designated as nonattainment for the 8-hour ozone
standard, and was identified as a subpart 1 nonattainment area.\3\ This
designation was based on ozone data collected in the Evansville area
during the 2001-2003 period.
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\3\ Because this area was not violating the 1-hour ozone NAAQS,
with a 1-hour ozone design value below the 121 ppb cutoff, at the
time of the promulgation of the 8-hour ozone designations and
classifications, EPA determined that this area should be addressed
through the less prescriptive requirements of subpart 1 of the Clean
Air Act rather than through the more prescriptive requirements of
subpart 2 of the Clean Air Act.
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On June 2, 2005, the State of Indiana requested redesignation of
the Evansville area to attainment for the 8-hour ozone NAAQS based on
ozone data collected during the 2002-2004 period. Today's proposed rule
addresses this redesignation request.
II. What Are the Criteria for Redesignation to Attainment?
The CAA provides the requirements for redesignating a nonattainment
area to attainment. Specifically, section 107(d)(3)(E) allows for
redesignation provided that: (1) The Administrator determines that the
area has attained the applicable NAAQS; (2) the Administrator has fully
approved an applicable SIP for the area under section 110(k) of the
CAA; (3) the Administrator determines that the improvement in air
quality is due to permanent and enforceable emissions reductions
resulting from implementation of the applicable SIP, applicable Federal
air pollution control regulations, and other permanent and enforceable
emissions reductions; (4) the Administrator has fully approved a
maintenance plan for the area as meeting the requirements of section
175A of the CAA; and, (5) the state containing the area has met all
requirements applicable to the area under section 110 and part D of the
CAA.
EPA provided guidance on redesignation in the General Preamble for
the Implementation of Title I of the CAA Amendments of 1990 on April
16, 1992 (57 FR 13498), and supplemented this guidance on April 28,
1992 (57 FR 18070). EPA provided further guidance on processing
redesignation requests in the following documents:
``Ozone and Carbon Monoxide Design Value Calculations,'' Memorandum
from Bill Laxton, June 18, 1990;
``Maintenance Plans for Redesignation of Ozone and Carbon Monoxide
[[Page 53607]]
Nonattainment Areas,'' Memorandum from G.T. Helms, Chief, Ozone/Carbon
Monoxide Programs Branch, April 30, 1992;
``Contingency Measures for Ozone and Carbon Monoxide (CO)
Redesignations,'' Memorandum from G.T. Helms, Chief, Ozone/Carbon
Monoxide Programs Branch, June 1, 1992;
``Procedures for Processing Requests to Redesignate Areas to
Attainment,'' Memorandum from John Calcagni, Director, Air Quality
Management Division, September 4, 1992;
``State Implementation Plan (SIP) Actions Submitted in Response to
Clean Air Act (Act) Deadlines,'' Memorandum from John Calcagni,
Director, Air Quality Management Division, October 28, 1992;
``Technical Support Documents (TSD's) for Redesignation of Ozone and
Carbon Monoxide Nonattainment Areas,'' Memorandum from G.T. Helms,
Chief, Ozone/Carbon Monoxide Programs Branch, August 17, 1993;
``State Implementation Plan (SIP) Requirements for Areas Submitting
Requests for Redesignation to Attainment of the Ozone and Carbon
Monoxide (CO) National Ambient Air Quality Standards (NAAQS) On or
After November 15, 1992,'' Memorandum from Michael H. Shapiro, Acting
Assistant Administrator for Air and Radiation, September 17, 1993;
``Use of Actual Emissions in Maintenance Demonstrations for Ozone and
CO Nonattainment Areas,'' Memorandum from D. Kent Berry, Acting
Director, Air Quality Management Division, November 30, 1993;
``Part D New Soure Review (part D NSR) Requirements for Areas
Requesting Redesignation to Attainment,'' Memorandum from Mary D.
Nichols, Assistant Administrator for Air and Radiation, October 14,
1994; and,
``Reasonable Further Progress, Attainment Demonstration, and Related
Requirements for Ozone Nonattainment Areas Meeting the Ozone National
Ambient Air Quality Standard,'' Memorandum from John S. Seitz,
Director, Office of Air Quality Planning and Standards, May 10, 1995.
III. What Is the Effect of EPA's Actions?
Approval of this redesignation request would change the official
designation of the Evansville area for the 8-hour ozone NAAQS found at
40 CFR part 81. It would also incorporate into the Indiana SIP a plan
for maintaining the 8-hour ozone NAAQS in the area through 2015. The
maintenance plan includes contingency measures to remedy possible
future violations of the 8-hour ozone NAAQS, and establishes MVEB's of
4.20 tons per day (tpd) for VOC, and 5.40 tpd for NOX.
IV. What Is EPA's Analysis of the State's Request?
EPA is proposing to: (1) Determine that the Evansville area has
attained the 8-hour ozone standard and approve the redesignation of the
Evansville area to attainment of the 8-hour ozone NAAQS; and, (2)
approve the ozone maintenance plan for this area. The bases for our
proposed determination and approvals are as follows:
1. The Evansville Area Has Attained the 8-Hour Ozone NAAQS
EPA is proposing to determine that the Evansville area has attained
the 8-hour ozone NAAQS. For ozone, an area may be considered to be
attaining the 8-hour ozone NAAQS if there are no violations of the
NAAQS, as determined in accordance with 40 CFR 50.10 and Appendix I,
based on the most recent three complete, consecutive calendar years of
quality-assured air quality monitoring data at any monitoring site in
the area. To attain this standard, the average of the annual fourth-
high daily maximum 8-hour average ozone concentrations measured at each
monitor (the monitoring site's ozone design value) within the area (or
in its downwind environs) over the 3-year period must not exceed the
ozone standard. Based on the rounding convention described in 40 CFR
part 50, appendix I, the 8-hour ozone standard is attained if the
area's ozone design value is 0.084 ppm or lower. The data must be
collected and quality-assured in accordance with 40 CFR part 58, and
recorded in EPA's Aerometric Information Retrieval System (AIRS). The
ozone monitors generally should have remained at the same locations for
the duration of the monitoring period required for demonstrating
attainment (for three years or more).
As part of the June 2, 2005 ozone redesignation request, IDEM
submitted summarized ozone monitoring data indicating the top four
daily maximum 8-hour ozone concentrations for each monitoring site for
each year during the 2002-2004 period. These summarized worst-case
ozone concentrations are part of the quality-assured ozone data
collected in the Evansville area. These data have been entered into
EPA's AIRS. The fourth high 8-hour daily maximum concentrations, along
with their three-year averages are summarized in Table 1.
Table 1.--Fourth-High 8-Hour Ozone Concentrations in Parts Per Billion (PPB)
--------------------------------------------------------------------------------------------------------------------------------------------------------
Average
County Monitoring site 2002 2003 2004 fourth-high
concentration
--------------------------------------------------------------------------------------------------------------------------------------------------------
Vanderburgh.................................... Evansville............................. 95 81 72 82
Vanderburgh.................................... Inglefield............................. 86 75 57 73
Warrick........................................ Yankeetown............................. 94 82 74 83
Warrick........................................ Boonville.............................. 91 76 72 79
Warrick........................................ Lynville............................... 90 78 64 77
--------------------------------------------------------------------------------------------------------------------------------------------------------
These data show that the ozone design values (averaged fourth-high
daily maximum 8-hour concentrations) for the monitoring sites are all
below the 84 ppb ozone standard violation cut-off. These data support
the conclusion that the Evansville area did not experience a monitored
violation of the 8-hour ozone standard during the 2002-2004 period.
Preliminary data through July of the 2005 ozone season show that the
area continues to attain the 8-hour ozone standard.
As discussed below with respect to the ozone maintenance plan,
Indiana has committed to continue ozone monitoring in this area. IDEM
commits to consult with the EPA prior to making any changes to the
existing monitoring network.
EPA believes that the data submitted by Indiana provide an adequate
demonstration that the Evansville area has attained the 8-hour ozone
NAAQS. Therefore, we propose to find that the Evansville area has
attained the 8-hour ozone standard.
[[Page 53608]]
2. The Evansville Area Has Met All Applicable Requirements Under
Section 110 and Part D of the CAA and the Area Has a Fully Approved SIP
Under Section 110(k) of the CAA
EPA has determined that Indiana has met all currently applicable
SIP requirements for the Evansville area under section 110 of the CAA
(general SIP requirements). EPA has also determined that the Indiana
SIP meets currently applicable SIP requirements under part D of title I
of the CAA (requirements specific to subpart 1 nonattainment areas).
See section 107(d)(3)(E)(v) of the CAA. In addition, EPA has determined
that the SIP is fully approved with respect to all applicable
requirements. See section 107(d)(3)(E)(ii) of the CAA. In making these
determinations, EPA ascertained what requirements are applicable to the
area, and determined that the applicable portions of the SIP meeting
these requirements are fully approved under section 110(k) of the CAA.
We note that SIPs must be fully approved only with respect to currently
applicable requirements of the CAA.
a. The Evansville area has met all applicable requirements under
section 110 and part D of the CAA. The September 4, 1992 Calcagni
memorandum (see ``Procedures for Procedures for Processing Requests to
Redesignate Areas to Attainment,'' Memorandum from John Calcagni,
Director, Air Quality Management Division, September 4, 1992) describes
EPA's interpretation of section 107(d)(3)(E) of the CAA. Under this
interpretation, to qualify for redesignation of an area to attainment,
the state and the area must meet the relevant CAA requirements that
come due prior to the state's submittal of a complete redesignation
request for the area. See also the September 17, 1993 Shapiro
memorandum and 66 FR 12459, 12465-12466 (March 7, 1995) (redesignation
of Detroit-Ann Arbor, Michigan to attainment of the 1-hour ozone
NAAQS). Applicable requirements of the CAA that come due subsequent to
the state's submittal of a complete redesignation request remain
applicable until a redesignation to attainment is approved, but are not
required as a prerequisite to redesignation. See section 175A(c) of the
CAA. Sierra Club v. EPA, 375 F.3d 537 (7th Cir. 2004). See also 68 FR
25424, 25427 (May 12, 2003) (redesignation of the St. Louis/East St.
Louis area to attainment of the 1-hour ozone NAAQS).
General SIP requirements: Section 110(a) of title I of the CAA
contains the general requirements for a SIP, which include: enforceable
emission limitations and other control measures, means, or techniques;
provisions for the establishment and operation of appropriate devices
necessary to collect data on ambient air quality; and programs to
enforce the emission limitations. General SIP elements and requirements
are delineated in section 110(a)(2) of title I, part A of the CAA.
These requirements and SIP elements include, but are not limited to,
the following: (a) Submittal of a SIP that has been adopted by the
state after reasonable public notice and a hearing; (b) provisions for
establishment and operation of appropriate procedures needed to monitor
ambient air quality; (c) implementation of a source permit program; (d)
provisions for the implementation of part C requirements (Prevention of
Significant Deterioration (PSD)) and part D requirements (New Source
Review (NSR)) for new sources or major source modifications; (e)
criteria for stationary source emission control measures, monitoring,
and reporting; (f) provisions for air quality modeling; and (g)
provisions for public and local agency participation.
SIP requirements and SIP elements are discussed in the following
EPA documents: ``Procedures for Processing Requests to Redesignate
Areas to Attainment,'' Memorandum from John Calcagni, Director, Air
Quality Management Division, September 4, 1992; ``State Implementation
Plan (SIP) Actions Submitted in Response to Clean Air Act (CAA)
Deadlines,'' Memorandum from John Calcagni, Director, Air Quality
Management Division, October 28, 1992; and ``State Implementation Plan
(SIP) Requirements for Areas Submitting Requests for Redesignation to
Attainment of the Ozone and Carbon Monoxide (CO) National Ambient Air
Quality Standards (NAAQS) on or After November 15, 1992,'' Memorandum
from Michael H. Shapiro, Acting Assistant Administrator, September 17,
1993. See also other guidance documents listed above.
Section 110(a)(2)(D) of the CAA requires that SIPs contain certain
measures to prevent sources in a state from significantly contributing
to air quality problems in another state. To implement this provision,
EPA has required certain states to establish programs to address
transport of air pollutants (NOX SIP call, Clean Air
Interstate Rule (CAIR)). EPA has also found, generally, that states
have not submitted SIPs under section 110(a)(1) to meet the interstate
transport requirements of section 110(a)(2)(D)(i) (70 FR 21147, April
25, 2005). However, the section 110(a)(2)(D) requirements for a state
are not linked with a particular nonattainment area's designation and
classification in that state. EPA believes that the requirements linked
with a particular nonattainment area's designation and classification
are the relevant measures to evaluate in reviewing a redesignation
request. The transport SIP submittal requirements, where applicable,
continue to apply to a state regardless of the designation of any one
particular area in the state.
We believe that these requirements should not be construed to be
applicable requirements for purposes of redesignation. Further, we
believe that the other section 110 elements described above that are
not connected with nonattainment plan submissions and not linked with
an area's attainment status are also not applicable requirements for
purposes of redesignation. A state remains subject to these
requirements after an area is redesignated to attainment. We conclude
that only the section 110 and part D requirements which are linked with
a particular area's designation and classification are the relevant
measures in evaluating a redesignation request. This approach is
consistent with EPA's existing policy on applicability of conformity
and oxygenated fuels requirements for redesignation purposes, as well
as with section 184 ozone transport requirements. See Reading,
Pennsylvania, proposed and final rulemakings (61 FR 53174-53176,
October 10, 1996), (62 FR 24826, May 7, 1997); Cleveland-Akron-Loraine,
Ohio, final rulemaking (61 FR 20458, May 7, 1996); and Tampa, Florida,
final rulemaking (60 FR 62748, December 7, 1995). See also the
discussion on this issue in the Cincinnati ozone redesignation (65 FR
37890, June 19, 2000), and the Pittsburgh ozone redesignation (66 FR
50399, October 19, 2001). Finally, Indiana's submission under the CAIR
rule is not due until September 2006.
We believe that section 110 elements not linked to the area's
nonattainment status are not applicable for purposes of redesignation.
Nonetheless, we also note that EPA has previously approved provisions
in the Indiana SIP addressing section 110 elements under the 1-hour
standard. See 40 CFR part 52, subpart P. We believe that the section
110 SIP approved for the 1-hour standard may likely be sufficient to
meet requirements under the 8-hour ozone standard, as well. EPA is in
the process of further evaluating this question, and will, in the
future if necessary, announce whether any additional section 110 SIP
[[Page 53609]]
provisions are needed for the Evansville area under the 8-hour ozone
standard.
Part D SIP requirements. EPA has determined that the Indiana SIP
meets applicable SIP requirements under part D of the CAA since no such
requirements became due for the 8-hour ozone standard prior to
submission of the area's redesignation request. Subpart 1 of part D,
found in sections 172-176 of the CAA, sets forth the basic
nonattainment area plan requirements applicable to all nonattainment
areas. Because the Evansville area is a subpart 1 8-hour ozone
nonattainment area and is not classified under subpart 2 of part D of
the CAA for the 8-hour ozone standard, subpart 2 of part D of the CAA
does not apply to this area.
Section 172(c) requirements. For purposes of evaluating this ozone
redesignation request, the applicable part D, subpart 1 SIP
requirements for the Evansville area are contained in section 172 of
the CAA. A thorough discussion of the requirements of section 172 can
be found in the General Preamble for Implementation of Title I (57 FR
13498, April 16, 1992).
No requirements under part D became due prior to submission of the
redesignation request, and, therefore, none is applicable to the area
for purposes of redesignation. For example, the requirement for an
ozone attainment demonstration to meet the requirement of section
172(c)(1) is not yet applicable, nor are the requirements for
Reasonably Available Control Measures (RACM) and Reasonably Available
Control Technology (RACT) (section 172(c)(1)), Reasonable Further
Progress (RFP) (section 172(c)(2)), and contingency measures (section
172(c)(9)).
Since the State of Indiana has submitted a complete ozone
redesignation request for the Evansville area prior to the deadline for
any submissions, we are proposing to determine that the part D
requirements do not apply to the Evansville area for purposes of
redesignation.
Section 176 conformity requirements. Section 176(c) of the CAA
requires states to establish criteria and procedures to ensure that
Federally-supported or funded activities, including highway projects,
conform to the air planning goals in the applicable SIP. The
requirement to determine conformity applies to transportation plans,
programs and projects developed, funded or approved under Title 23
U.S.C. and the Federal Transit Act (transportation conformity) as well
as to all other Federally-supported or funded projects (general
conformity). State conformity SIP revisions must be consistent with
Federal conformity regulations that the CAA required the EPA to
promulgate.
In addition to the fact that part D requirements did not become due
prior to Indiana's submission of the redesignation request and,
therefore, are not applicable, EPA believes that it is reasonable to
interpret the conformity requirements as not applying for purposes of
evaluating the ozone redesignation request under section 107(d) of the
CAA because state conformity rules are still required after
redesignation of an area to attainment of a NAAQS and Federal
conformity rules apply where state rules have not been approved. See
Wall v. EPA, 265 F.3d 426 (6th Cir. 2001). See also 60 FR 62748
(December 7, 1995) (Tampa, Florida).
EPA has also determined that areas being redesignated need not
comply with the requirement that a NSR program be approved prior to
redesignation, provided that the area demonstrates maintenance of the
standard without part D NSR, since PSD requirements will apply after
redesignation. A more detailed rationale for this view is described in
a memorandum from Mary Nichols, Assistant Administrator for Air and
Radiation, dated October 14, 1994, entitled, ``Part D New Source Review
Requirements for Areas Requesting Redesignation to Attainment.''
Indiana has demonstrated that the area will be able to maintain the
standard without part D NSR in effect, and therefore, EPA concludes
that the State need not have a fully approved part D NSR program prior
to approval of the redesignation request. The State's PSD program will
become effective in the Evansville area upon redesignation to
attainment. See rulemakings for Detroit, Michigan (60 FR 12467-12468,
March 7, 1995); Cleveland-Akron-Lorain, Ohio (61 FR 20458, 20469-20470,
May 7, 1996); Louisville, Kentucky (66 FR 53665, October 23, 2001);
Grand Rapids, Michigan (61 FR 31834-31837, June 21, 1996). Thus, the
area has satisfied all applicable requirements under section 110 and
part D of the CAA.
b. The Evansville area has a fully approved applicable SIP under
section 110(k) of the CAA. EPA has fully approved the Indiana SIP for
the Evansville area under section 110(k) of the CAA for all applicable
requirements. EPA may rely on prior SIP approvals in approving a
redesignation request (See the September 4, 1992 John Calcagni
memorandum, page 3, Southwestern Pennsylvania Growth Alliance v.
Browner, 144 F.3d 984, 989-990 (6th Cir. 1998), Wall v. EPA, 265 F.3d
426 (6th Cir. 2001)) plus any additional measures it may approve in
conjunction with a redesignation action. See 68 FR 25426 (May 12,
2003). Since the passage of the CAA of 1970, Indiana has adopted and
submitted, and EPA has fully approved, provisions addressing the
various required SIP elements applicable to the Evansville area for
purposes of redesignation. No Evansville area SIP provisions are
currently disapproved, conditionally approved, or partially approved.
As indicated above, EPA believes that the section 110 elements not
connected with nonattainment plan submissions and not linked to the
area's nonattainment status are not applicable requirements for
purposes of redesignation. EPA has also noted that it may well conclude
that the section 110 SIP submission approved under the 1-hour standard
will be adequate for purposes of the 8-hour standard. EPA also believes
that since the part D requirements did not become due prior to
submission of the redesignation request, they also are, therefore, not
applicable requirements for purposes of redesignation.
3. The Air Quality Improvement in the Evansville Area Is Due to
Permanent and Enforceable Reductions in Emissions From Implementation
of the SIP and Applicable Federal Air Pollution Control Regulations and
Other Permanent and Enforceable Emission Reductions
EPA believes that the State of Indiana has demonstrated that the
observed air quality improvement in the Evansville area is due to
permanent and enforceable reductions in emissions resulting from
implementation of the SIP, Federal measures, and other state-adopted
measures.
In making this demonstration, the State has documented the changes
in VOC and NOX emissions for both the Evansville ozone
nonattainment area and for five additional counties \4\ (Dubois,
Gibson, Pike, Posey, and Spencer) in the Southwestern Indiana
[[Page 53610]]
area between 1996, when the Evansville area was monitored with a
violation of the 8-hour ozone NAAQS, and 2002, one of the years during
the three-year period when the Evansville area monitored attainment of
the 8-hour ozone NAAQS. The VOC emissions and NOX emissions
for the Southwestern Indiana area (with the Evansville area emissions
given as a sub-portion of the summarized emissions) are given in Tables
2 and 3. The VOC and NOX emissions for the Evansville ozone
nonattainment area and for the remainder of the Southwestern Indiana
area have shown significant downward trends between 1996 and 2002. IDEM
notes that the emissions in this area are decreasing substantially in
response to national emission reduction programs affecting all Electric
Generating Units (EGUs), including the acid rain control program and
the NOX SIP Call. A significant number of EGUs exist in the
Southwestern Indiana area. Therefore, the national emission control
requirements for the EGUs have likely had a significant impact on the
NOX emissions in this area and on the ozone concentrations
monitored in the Evansville area. To some extent, these emission
controls have also resulted in reductions in VOC emissions from these
sources.
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\4\ IDEM documented the VOC and NOX emissions in
these five counties at the request of the EPA. Although no analyses
or modeling exist demonstrating that these specific emissions
significantly contributed to the peak ozone levels in the Evansville
area, it is recognized, based on available ozone analyses and
modeling for the Midwest, that regional emissions outside of the
Evansville area are likely to have significantly contributed to the
peak ozone concentrations in the Evansville area. The documentation
of the VOC and NOX emissions for these neighboring
counties characterizes the relative magnitude of regional versus
local emissions, and, through emission projections (documented in
subsequent tables in this proposed rule), the directionality of
regional emissions that may also impact future ozone concentrations.
\5\ See Footnote 4 above. The most relevant emissions in this
table and in subsequent emissions tables are the VOC and
NOX emissions in Vanderburgh and Warrick Counties. The
emissions in the remaining counties serve only to demonstrate the
relative magnitude of regional versus local emissions and the
directionality over time of regional emissions in general that,
along with local emissions, impact the Evansville area's peak ozone
levels.
Table 2.--VOC Emissions in the Evansville and Southwestern Indiana
Areas--1996-2002 in Tons Per Summer Day \5\
------------------------------------------------------------------------
County 1996 1999 2002
------------------------------------------------------------------------
Vanderburgh/Warrick................. 55.54 58.28 41.13
Dubois.............................. 24.84 23.23 18.83
Gibson.............................. 11.49 11.57 13.29
Pike................................ 4.36 4.22 4.66
Posey............................... 14.87 13.80 10.57
Spencer............................. 7.38 8.68 7.39
Southwest Indiana Total......... 118.48 119.77 95.87
------------------------------------------------------------------------
Table 3.--NOX Emissions in the Evansville and Southwestern Indiana
Areas--1996-2002 in Tons Per Summer Day
------------------------------------------------------------------------
County 1996 1999 2002
------------------------------------------------------------------------
Vanderburgh/Warrick................. 119.72 130.40 95.42
Dubois.............................. 19.21 17.02 8.32
Gibson.............................. 143.52 163.00 140.12
Pike................................ 81.73 66.08 64.65
Posey............................... 36.84 48.77 38.43
Spencer............................. 102.75 116.44 99.27
-------------
Southwest Indiana Total......... 503.78 541.71 446.21
------------------------------------------------------------------------
Other emission controls have also been implemented in Southwestern
Indiana. IDEM notes that statewide VOC RACT rules were adopted for a
limited set of existing sources in the mid-1990s, and have been
implemented by new sources located in Indiana since that time. The
following Indiana VOC RACT rules have been adopted and implemented on a
statewide basis: 326 Indiana Administrative Code (IAC) 8-2 (Surface
Coating Emission Limitations); 326 IAC 8-3 (Organic Solvent Degreasing
Operations); 326 IAC 8-4 (Petroleum Sources); 326 IAC 8-5
(Miscellaneous Operations); 326 IAC 8-6 (Organic Solvent Emission
Limitations); and, 326 IAC 8-10 (Auto Body Refinishing). Compliance
with these rules have reduced VOC emissions in the Southwestern Indiana
area.
Since the Evansville area was previously classified as a marginal
nonattainment area for the 1-hour ozone standard, and was not required
to demonstrate attainment of the 1-hour ozone standard, no ozone
precursor emission controls were specifically required for the
Evansville area. Therefore, the statewide and national emission control
requirements have provided the majority of the emission reductions in
this area.
Besides the statewide VOC RACT rules and national NOX
emission control requirements, other Federal emission reduction
requirements have resulted in decreased ozone precursor emissions in
the Southwestern Indiana area and/or will produce future emission
reductions leading to maintenance of the ozone standard in the
Evansville area. These emission reduction requirements include the
following:
Tier 2 Emission Standards for Vehicles and Gasoline Sulfur
Standards. These emission control requirements result in lower
emissions from new cars and light duty trucks, including sport utility
vehicles. The Federal rules are being phased in between 2004 and 2009.
Mobile source NOX emissions are expected to be decreased by
65 to 90 percent, depending on vehicle type. Mobile source VOC
emissions are expected to be decreased by 12 to 18 percent depending on
vehicle type.
Heavy-Duty Diesel Engines. The Heavy-Duty Diesel Engine rule
applies to new heavy-duty gasoline and diesel trucks and buses, and is
expected to reduce NOX emissions from new vehicles by up to
40 percent. The rule is being phased in from 2004 through 2007.
Non-Road Diesel Rule. This rule generally applies to new stationary
diesel engines used in certain industries, including construction,
agriculture, and mining. In addition to affecting engine design, this
rule includes requirements for cleaner fuels.
[[Page 53611]]
It is expected to reduce NOX emissions from these engines by
up to 90 percent, and to significantly reduce particulate matter and
sulfur emissions from these engines. This rule will limit emissions
from new engines beginning in 2008. The rule has not impacted current
emissions from these engines, but is expected to have a significant
impact during the maintenance period for the Evansville area.
IDEM notes that some emission reductions have resulted from
permanent source closures in the Evansville area, and that these
emission reductions have contributed to the downward trend in emissions
in the Evansville area and toward attainment of the 8-hour ozone
standard. In its June 2, 2005 submittal, IDEM has listed the source
closures that have occurred between 1996 and 2002. IDEM confirms that
the emissions reductions resulting from the source closures are
permanent and will be maintained in the future. To prevent these
emission reductions from being totally consumed by unconstrained source
growth, IDEM states that any reopening of the closed facilities will
require review under Indiana's new source review program after the
redesignation of the Evansville area to attainment of the 8-hour ozone
NAAQS and the implementation of appropriate emission controls for new
sources.
Indiana commits to maintain all existing emission control measures
that affect the Evansville area after this area is redesignated to
attainment. All changes in existing rules affecting the Evansville area
and new rules subsequently needed for continued maintenance of the 8-
hour ozone NAAQS in the Evansville area will be submitted to the EPA
for approval as SIP revisions.
4. The Evansville Area Has a Fully Approvable Ozone Maintenance Plan
Pursuant to Section 175A of the CAA
In conjunction with its request to redesignate the Evansville area
to attainment of the ozone NAAQS, Indiana submitted a SIP revision to
provide for maintenance of the 8-hour ozone NAAQS in the Evansville
area for at least 10 years after the redesignation of this area to
attainment of the NAAQS.
a. What Is Required in an Ozone Maintenance Plan?
Section 175A of the CAA sets forth the required elements of
maintenance plans for areas seeking redesignation from nonattainment to
attainment. Under section 175A, a maintenance plan must demonstrate
continued attainment of the applicable NAAQS for at least ten years
after the Administrator approves the redesignation to attainment. Eight
years after the redesignation, the State must submit a revised
maintenance plan which demonstrates that attainment will continue to be
maintained for the ten years following the initial ten-year maintenance
period. To address the possibility of future NAAQS violations, the 8-
hour ozone maintenance plan must contain such contingency measures,
with a schedule for implementation, as EPA deems necessary, to assure
prompt correction of any future 8-hour ozone standard violations. The
September 4, 1992 John Calcagni memorandum provides additional guidance
on the content of maintenance plans. An ozone maintenance plan should,
at minimum, address the following items: The attainment VOC and
NOX emissions inventories; a maintenance demonstration
showing maintenance for the first ten years of the maintenance period;
a commitment to maintain the existing monitoring network; factors and
procedures to be used for verification of continued attainment; and, a
contingency plan to prevent and/or correct any future violation of the
NAAQS.
b. Attainment Emissions Inventories
IDEM prepared comprehensive VOC and NOX emissions
inventories for Vanderburgh and Warrick Counties, including point
(significant stationary sources), area (smaller stationary sources and
widely-distributed sources), mobile on-road, and mobile non-road
sources for a base year/attainment year of 2002. IDEM has documented
the VOC and NOX emissions by major source categories for
Vanderburgh and Warrick Counties, along with the VOC and NOX
emissions for other counties in the Southwestern Indiana area for 1996,
1999, and 2002, which were years EPA required states to prepare and
submit periodic emission inventory updates.
To develop the base year emissions inventories, IDEM used the
following approaches and sources of data:
Area Sources--Area source VOC and NOX emissions were
taken from the Indiana 2002 periodic emissions inventory, which was
previously submitted to the EPA. The area source emission estimates
were derived using United States Department of Commerce Bureau of
Economic Analysis (BEA) growth factors to project emissions derived for
1996 and 1999. The area source estimates also involved the use of
current local source surrogate data, including area populations and
employment data by source type.
Mobile On-Road Sources--Mobile source emissions were calculated
using MOBILE6 emission factors. Traffic data (vehicle miles traveled,
vehicle speeds, and vehicle type and age distributions) for 2002 were
calculated using the travel demand model and post-processor provided by
the Evansville Urban Transportation Study (EUTS). IDEM has provided
detailed data summaries to document the calculation of mobile on-road
VOC and NOX emissions for 2002, as well as for the
projection years of 2010 and 2015 (further discussed below).
Point Source Emissions--2002 point source emissions were compiled
from IDEM's 2002 annual emissions statement database and the 2002 EPA
Air Markets acid rain emissions inventory database.
Mobile Non-Road Emissions--Non-road mobile source emissions were
generated by the EPA and documented in the 2002 National Emissions
Inventory (NEI). In addition to the data taken from the NEI, IDEM also
considered emissions for commercial marine vessels and railroads,
obtained from the Lake Michigan Air Directors Consortium (LADCO). The
NEI emissions data for recreational motorboats and construction
equipment were significantly revised based on local data. The NEI
emissions from recreational motorboats were revised to account for
local motorboat population data and local spatial surrogates. The NEI
construction equipment emissions were reviewed and updated based on
surveys completed in the Midwest. IDEM also updated the temporal
allocation of agricultural emissions.
The 2002 attainment year VOC and NOX emissions for
Vanderburgh and Warrick Counties are summarized along with the 2010 and
2015 projected emissions for these Counties in Tables 4 below, which
covers the demonstration of maintenance for this area. It is our
conclusion that the State has adequately derived and documented the
attainment year VOC and NOX emissions for this area.
c. Demonstration of Maintenance
As part of its June 2, 2005 ozone redesignation request submittal,
IDEM included a requested revision of the SIP to include a 10-year
ozone maintenance plan as required by section 175A of the CAA. This
demonstration shows maintenance of the 8-hour ozone NAAQS by assuring
that current and future emissions of VOC and NOX remain at
or below the attainment year
[[Page 53612]]
emission levels.\6\ Note that a maintenance demonstration need not be
based on modeling. See Wall v. EPA, 265 F.3d 426 (6th Cir. 2001),
Sierra Club v. EPA, 375 F.3d 537 (7th Cir. 2004). See also 66 FR 53094,
53099-53100 (October 19, 2001) and 68 FR 25430-25432 (May 12, 2003).
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\6\ The attainment year can be any of the three consecutive
years where the area has clean air quality data (2002, 2003, or 2004
for the Evansville area). 2002 is the recommended base year for
ozone attainment and rate-of-progress demonstrations, as discussed
in a November 18, 2002 memorandum, ``2002 Base Year Emission
Inventory SIP Planning: 8-hr Ozone, PM2.5 and Regional
Haze Programs,'' from Lydia N. Wegman, Director, Air Quality
Strategies and Standards Division. As noted here, Indiana chose to
use 2002 as the attainment year because the State was already
preparing emissions for this year to prepare the base year emissions
inventory.
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Table 4 specifies the VOC and NOX emissions for
Venderburgh and Warrick Counties combined for 2002, 2010, and 2015.
IDEM chose 2010 as an interim year in the 10-year maintenance
demonstration period to demonstrate that the VOC and NOX
emissions are not projected to increase above the attainment levels in
the middle of the 10-year period.
Table 4.--Attainment Year (2002) and Projected VOC and NOX Emissions in Vanderburgh and Warrick Counties (TPSD)
----------------------------------------------------------------------------------------------------------------
VOC NOX
Source sector -----------------------------------------------------------------------
2002 2010 2015 2002 2010 2015
----------------------------------------------------------------------------------------------------------------
Point................................... 5.16 6.77 8.09 70.19 30.18 31.43
Area.................................... 18.60 21.36 23.46 2.95 3.20 3.27
On-Road................................. 11.21 6.02 4.12 16.40 9.30 5.01
Non-Road................................ 6.16 4.42 3.80 5.88 4.52 3.23
-------------
Total............................... 41.13 38.56 39.47 95.42 47.19 42.94
----------------------------------------------------------------------------------------------------------------
IDEM also considered regional emissions from other counties in the
Southwestern Indiana area. IDEM concluded, based on analyses by
LADCO,\7\ that regional NOX emissions changes may
significantly impact the ozone levels in the Evansville area, whereas
regional VOC emissions outside of the nonattainment area were less of a
concern. IDEM determined the attainment year and projected year
NOX emissions for Dubois, Gibson, Pike, Posey, and Spencer
Counties, which are the other counties in the Southwestern Indiana area
as noted above. Table 5 summarizes the NOX emissions totals
for these counties by major source sector. It can be seen that the
NOX emissions totals in these counties are projected to
decrease after 2002, which indicates that the transport of
NOX into the Evansville area will also decrease during the
10-year maintenance period.
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\7\ Analyses conducted by LADCO to support the development of 1-
hour ozone attainment demonstrations showed that peak ozone
concentrations in the Chicago and Milwaukee areas were sensitive to
changes in local VOC emissions and to changes in regional
NOX emissions outside of the urban areas. Changes in
regional VOC emissions upwind of these urban areas produced minimal
changes in the peak ozone concentrations in these urban areas.
Modeling for the 8-hour ozone standard being conducted by LADCO and
its member states suggests that the same principle also applies in
other major urban areas in the region.
Table 5.--Attainment Year and Projected NOX Emissions in Counties in the
Vicinity of the Evansville Area (TPSD)
------------------------------------------------------------------------
NOX
Source sector -----------------------------------
2002 2010 2015
------------------------------------------------------------------------
Point............................... 318.03 134.22 134.71
Area................................ 2.37 2.53 2.61
On-Road Mobile...................... 18.63 10.68 6.70
Non-Road Mobile..................... 11.76 9.72 7.73
-------------
Total........................... 350.79 157.15 151.76
------------------------------------------------------------------------
The emission projections show that the ozone precursor emissions in
the Evansville area in addition to the NOX emissions in
other counties in its vicinity are not expected to exceed the levels of
the 2002 attainment year during the 10-year maintenance period. The
decreases in local and regional NOX emissions indicate that
peak ozone levels in the Evansville area may actually be expected to
further decline during the 10-year maintenance period.
IDEM has documented the procedures used to project emissions. On-
road mobile source emissions were projected using the MOBILE6 emission
factor model and projected traffic data obtained from the Evansville
Urban Transportation Study's Travel Demand Model, the same procedure
used to determine the attainment year on-road mobile source emissions.
Emissions for the other major source sectors were determined using
source activity/growth data provided by LADCO. LADCO has developed
source growth and emission control data for sources in the upper
Midwest for use in 8-hour ozone and fine particulate (PM2.5)
modeling analyses. Therefore, IDEM's emission projections for the
Evansville area and its vicinity are consistent with the planning
analyses being conducted to attain the 8-hour ozone and
PM2.5 standards in the upper Midwest urban areas and region.
It should also be noted that the NOX emission estimates are
also consistent with the Indiana state-wide NOX emission
budget established in Indiana's EGU NOX rule.
Based on the comparison of the projected emissions and the
attainment year emissions, we conclude that IDEM has successfully
demonstrated that the 8-hour ozone standard should be maintained in the
Evansville area. We believe that this is especially likely given the
projected decrease in the
[[Page 53613]]
region's NOX emissions.\8\ As noted by IDEM, this conclusion
is further supported by the fact that other states in the eastern
portion of the United States are expected to further reduce regional
NOX emissions through the implementation of their
NOX rules for EGUs and other major NOX emission
sources. In addition, further regional emission reductions are expected
to occur as the result of the implementation of EPA rules for Tier 2
motor vehicle standards, gasoline sulfur content restrictions, highway
heavy-duty diesel engines, and non-road diesel engines, all of which
will be implemented during the next few years. The implementation of
CAIR should also provide additional reductions in regional
NOX emissions.
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\8\ As noted above, the emissions from the ``neighboring
counties'' (those counties outside of the Evansville area) are
indicative of the emission changes expected in the region as a
whole. Therefore, since emissions are projected to decline in the
neighboring counties, we can assume that emissions upwind of the
Evansville area will also decline over the subject period.
---------------------------------------------------------------------------
d. Monitoring Network
As noted elsewhere in this proposed rule, IDEM commits to continue
operating and maintaining an approved ozone monitoring network in the
Evansville area in accordance with 40 CFR part 58 through the 10-year
maintenance period. This will allow the confirmation of the maintenance
of the 8-hour ozone standard in this area.
e. Verification of Continued Attainment
Continued attainment of the 8-hour ozone NAAQS in the Evansville
area depends, in part, on the State's efforts toward tracking
applicable indicators during the maintenance period. The State's plan
for verifying continued attainment of the 8-hour standard in the
Evansville area consists of plans to continue ambient ozone monitoring
in accordance with the requirements of 40 CFR part 58. In addition,
IDEM will periodically revise and review the VOC and NOX
emissions inventories for the Evansville area to assure that emissions
growth is not threatening the continued attainment of the 8-hour ozone
standard in the Evansville area. Emissions inventories will be revised
for 2005, 2008, and 2011, as necessary to comply with the emissions
inventory reporting requirements of the CAA. The updated emissions
inventories will be compared to the 2002 emissions inventories to
assess emission trends and assure continued attainment of the 8-hour
ozone standard.
f. Contingency Plan
The contingency plan provisions are designed to promptly correct or
prevent a violation of the NAAQS that might occur after redesignation
of an area to attainment of the NAAQS. Section 175A of the CAA requires
that a maintenance plan include such contingency measures as EPA deems
necessary to assure that the State will promptly correct a violation of
the NAAQS that might occur after redesignation. The maintenance plan
should identify the contingency measures to be adopted, a schedule and
procedure for adoption and implementation of the contingency measures,
and a time limit for action by the state. The state should also
identify specific indicators to be used to determine when the
contingency measures need to be adopted and implemented. The
maintenance plan must include a requirement that the state will
implement all measures with respect to control of the pollutant(s) that
were contained in the SIP before redesignation of an area to
attainment. See section 175A(d) of the CAA.
As required by section 175A of the CAA, Indiana has adopted a
contingency plan to address a possible future ozone air quality
problem. The contingency plan adopted by Indiana has two levels of
responses, depending on whether a violation of the 8-hour ozone
standard is only threatened (Warning Level) or is imminent (Action
Level).
A Warning Level response will occur when an annual (1-year) fourth-
high monitored daily peak 8-hour ozone concentration of 88 ppb or
higher is monitored in a single ozone season at any monitor within the
ozone maintenance area. A Warning Level response will consist of
Indiana performing a study to determine whether the high ozone
concentration indicates a trend toward high ozone levels or whether
emissions are increasing. If a trend toward higher ozone concentrations
exists and is likely to continue, the emissions control measures
necessary to reverse the trend will be determined taking into
consideration ease and timing of implementation, as well as economic
and social considerations. The study, including applicable recommended
next steps, will be completed within 12 months from the close of the
ozone season with the recorded high ozone concentration. If emission
controls are needed to reverse the adverse ozone trend, the procedures
for emission control selection under the Action Level response will be
followed.
An Action Level response will occur when a two-year average annual
fourth-high monitored daily peak 8-hour ozone concentration of 85 ppb
occurs at any monitor in the ozone maintenance area. In this situation,
IDEM will determine the additional emission control measures needed to
assure future attainment of the 8-hour ozone NAAQS. IDEM will focus on
emission control measures that can be implemented in a short time, and
selected emission control measures will be adopted and implemented
within 18 months from the close of the ozone season with ozone
monitoring data that prompted the Action Level Response. Adoption of
any additional emission control measures will be subject to the
necessary administrative and legal procedures, including publication of
notices and the opportunity for public comment and response. If a new
emission control measure is adopted by the State (independent of the
ozone contingency n
