Air Plan Approval; Illinois; Infrastructure SIP Requirements for the 2012 PM2.5, 4025-4029 [2019-02214]
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Federal Register / Vol. 84, No. 31 / Thursday, February 14, 2019 / Proposed Rules
area designated extreme nonattainment
for any of the ozone NAAQS. The
Massachusetts SIP is not required to
have this provision for VOCs in extreme
nonattainment areas until such time as
Massachusetts has an extreme ozone
nonattainment area.
III. Proposed Action
The EPA’s review of MassDEP’s
February 9, 2018 SIP submittal indicates
that the submittal satisfies the
requirements of the CAA and is
appropriate for inclusion into the SIP.
The EPA therefore is proposing to
approve the SIP revisions discussed in
this action. Also, as a result of our
proposed approval of the NNSR
permitting revisions discussed in
Section I, the EPA is proposing to
convert the December 21, 2016
conditional approval to a full approval
for prong 3 of CAA section
110(a)(2)(D)(i)(II). Other aspects of
EPA’s December 21, 2016 conditional
approval will be addressed in other
actions.
The EPA is also proposing to approve
MassDEP’s February 9, 2018 SIP
revision addressing the NNSR
requirements for the 2008 ozone
NAAQS for the Dukes County
Nonattainment Area. The EPA has
concluded that MassDEP’s submission
fulfills the 40 CFR 51.1114 revision
requirement, meets the requirements of
CAA sections 110 and 172 and the
minimum SIP requirements of 40 CFR
51.165, as well as its obligations under
the EPA’s February 3, 2017 Findings of
Failure to Submit relating to submission
of a NNSR certification. The EPA is
soliciting public comments on the
issues discussed in this action or on
other relevant matters. These comments
will be considered before taking final
action. Interested parties may
participate in the Federal rulemaking
procedure by submitting written
comments to this proposed rulemaking
by following the instructions listed in
the ADDRESSES section of this Federal
Register.
IV. Incorporation by Reference
In this rule, the EPA is proposing to
include in a final EPA rule regulatory
text that includes incorporation by
reference. In accordance with
requirements of 1 CFR 51.5, the EPA is
proposing to incorporate by reference of
Massachusetts’s 310 CMR 7.00:
Appendix A. The EPA has made, and
will continue to make, these documents
generally available through https://
www.regulations.gov and at the EPA
Region 1 Office (please contact the
person identified in the FOR FURTHER
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section of this
preamble for more information).
INFORMATION CONTACT
V. Statutory and Executive Order
Reviews
Under the Clean Air Act, the
Administrator is required to approve a
SIP submission that complies with the
provisions of the Act and applicable
Federal regulations. 42 U.S.C. 7410(k);
40 CFR 52.02(a). Thus, in reviewing SIP
submissions, the EPA’s role is to
approve state choices, provided that
they meet the criteria of the Clean Air
Act. Accordingly, this proposed action
merely approves state law as meeting
Federal requirements and does not
impose additional requirements beyond
those imposed by state law. For that
reason, this proposed action:
• Is not a significant regulatory action
subject to review by the Office of
Management and Budget under
Executive Orders12866 (58 FR 51735,
October 4, 1993) and 13563 (76 FR 3821,
January 21, 2011);
• This action is not expected to be an
Executive Order 13771 regulatory action
because this action is not significant
under Executive Order 12866;
• Does not impose an information
collection burden under the provisions
of the Paperwork Reduction Act (44
U.S.C. 3501 et seq.);
• Is certified as not having a
significant economic impact on a
substantial number of small entities
under the Regulatory Flexibility Act (5
U.S.C. 601 et seq.);
• 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);
• Does not have Federalism
implications as specified in Executive
Order 13132 (64 FR 43255, August 10,
1999);
• Is not an economically significant
regulatory action based on health or
safety risks subject to Executive Order
13045 (62 FR 19885, April 23, 1997);
• Is not a significant regulatory action
subject to Executive Order 13211 (66 FR
28355, May 22, 2001);
• Is not subject to requirements of
Section 12(d) of the National
Technology Transfer and Advancement
Act of 1995 (15 U.S.C. 272 note) because
application of those requirements would
be inconsistent with the Clean Air Act;
and
• Does not provide EPA with the
discretionary authority to address, as
appropriate, disproportionate human
health or environmental effects, using
practicable and legally permissible
methods, under Executive Order 12898
(59 FR 7629, February 16, 1994).
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In addition, the SIP is not approved
to apply on any Indian reservation land
or in any other area where EPA or an
Indian tribe has demonstrated that a
tribe has jurisdiction. In those areas of
Indian country, the rule does not have
tribal implications and will not impose
substantial direct costs on tribal
governments or preempt tribal law as
specified by Executive Order 13175 (65
FR 67249, November 9, 2000).
List of Subjects in 40 CFR Part 52
Environmental protection, Air
pollution control, Incorporation by
reference, Intergovernmental relations,
Lead, Nitrogen dioxide, Ozone,
Particulate matter, Sulfur oxides,
Volatile organic compounds.
Dated: February 7, 2019.
Deborah Szaro,
Acting Regional Administrator, EPA Region
1.
[FR Doc. 2019–02203 Filed 2–13–19; 8:45 am]
BILLING CODE 6560–50–P
ENVIRONMENTAL PROTECTION
AGENCY
40 CFR Part 52
[EPA–R05–OAR–2017–0583; FRL–9989–34–
Region 5]
Air Plan Approval; Illinois;
Infrastructure SIP Requirements for
the 2012 PM2.5 NAAQS; Interstate
Transport
Environmental Protection
Agency (EPA).
ACTION: Proposed rule.
AGENCY:
The Environmental Protection
Agency (EPA) is proposing to approve
elements of the State Implementation
Plan (SIP) submission from the Illinois
Environmental Protection Agency
(IEPA) regarding the infrastructure
requirements of section 110 of the Clean
Air Act (CAA) for the 2012 annual fine
particulate matter (PM2.5) National
Ambient Air Quality Standard (NAAQS
or standard). The infrastructure
requirements are designed to ensure that
the structural components of each
state’s air quality management program
are adequate to meet the state’s
responsibilities under the CAA. This
action pertains specifically to
infrastructure requirements in the
Illinois SIP concerning interstate
transport provisions.
DATES: Comments must be received on
or before March 18, 2019.
ADDRESSES: Submit your comments,
identified by Docket ID No. EPA–R05–
OAR–2017–0583 at https://
SUMMARY:
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www.regulations.gov, or via email to
aburano.douglas@epa.gov. For
comments submitted at Regulations.gov,
follow the online instructions for
submitting comments. Once submitted,
comments cannot be edited or removed
from Regulations.gov. For either manner
of submission, EPA may publish any
comment received to its public docket.
Do not submit electronically any
information you consider to be
Confidential Business Information (CBI)
or other information whose disclosure is
restricted by statute. Multimedia
submissions (audio, video, etc.) must be
accompanied by a written comment.
The written comment is considered the
official comment and should include
discussion of all points you wish to
make. EPA will generally not consider
comments or comment contents located
outside of the primary submission (i.e.
on the web, cloud, or other file sharing
system). For additional submission
methods, please contact the person
identified in the FOR FURTHER
INFORMATION CONTACT section. For the
full EPA public comment policy,
information about CBI or multimedia
submissions, and general guidance on
making effective comments, please visit
https://www2.epa.gov/dockets/
commenting-epa-dockets.
FOR FURTHER INFORMATION CONTACT:
Samantha Panock, Environmental
Scientist, Attainment Planning and
Maintenance Section, Air Programs
Branch (AR–18J), Environmental
Protection Agency, Region 5, 77 West
Jackson Boulevard, Chicago, Illinois
60604, (312) 353–8973,
panock.samantha@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. What is the background of this SIP
submission?
II. What guidance and memoranda is EPA
using to evaluate this SIP submission?
III. IEPA’s Analysis and Conclusion
IV. EPA’s Additional Analysis, Review, and
Conclusion
V. What action is EPA taking?
VI. Statutory and Executive Order Reviews
I. What is the background of this SIP
submission?
This rulemaking addresses a
submission from the IEPA dated
September 29, 2017, which describes its
infrastructure SIP for the 2012 annual
PM2.5 NAAQS (78 FR 3086).
Specifically, this rulemaking addresses
the portion of the submission dealing
with interstate pollution transport under
CAA Section 110(a)(2)(D)(i), otherwise
known as the ‘‘good neighbor’’
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provision. The requirement for states to
make a SIP submission of this type
arises from Section 110(a)(1) of the
CAA, pursuant to which states must
submit ‘‘within 3 years (or such shorter
period as the Administrator may
prescribe) after the promulgation of a
national primary ambient air quality
standard (or any revision thereof),’’ a
plan that provides for the
‘‘implementation, maintenance, and
enforcement’’ of such NAAQS. Section
110(a)(2) of the CAA includes a list of
specific elements that ‘‘each such plan’’
submission must address. EPA
commonly refers to such state plans as
‘‘infrastructure SIPs.’’ State plans must
address four requirements of the good
neighbor provisions (commonly referred
to as ‘‘prongs’’), including:
—Prong 1: Prohibiting any source or
other type of emissions activity in one
state from contributing significantly to
nonattainment of the NAAQS in
another state;
—Prong 2: Prohibiting any source or
other type of emissions activity in one
state from interfering with
maintenance of the NAAQS in
another state;
—Prong 3: Prohibiting any source or
other type of emissions activity in one
state from interfering with measures
required to prevent significant
deterioration (PSD) of air quality in
another state; and
—Prong 4: Protecting visibility in
another state.
This rulemaking is evaluating
whether Illinois’ interstate transport
provisions in its PM2.5 infrastructure SIP
meet prongs one and two of the good
neighbor requirements of the CAA.
Prongs three and four will be evaluated
in a separate rulemaking.
EPA has developed a consistent
framework for addressing the prong one
and two interstate transport
requirements with respect to the PM2.5
NAAQS in several previous Federal
rulemakings. The four basic steps of that
framework include: (1) Identifying
downwind receptors that are expected
to have problems attaining or
maintaining the NAAQS; (2) identifying
which upwind states contribute to these
identified problems in amounts
sufficient to warrant further review and
analysis; (3) for states identified as
contributing to downwind air quality
problems, identifying upwind emissions
reductions necessary to prevent an
upwind state from significantly
contributing to nonattainment or
interfering with maintenance of the
NAAQS downwind; and (4) for states
that are found to have emissions that
significantly contribute to
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nonattainment or interfere with
maintenance of the NAAQS downwind,
reducing the identified upwind
emissions through adoption of
permanent and enforceable measures.
This framework was most recently
applied with respect to PM2.5 in the
August 8, 2011 Cross-State Air Pollution
Rule (CSAPR) (76 FR 48208), designed
to address both the 1997 and 2006 PM2.5
standards, as well as the 1997 and 2008
ozone standards.
II. What guidance and memoranda is
EPA using to evaluate this SIP
submission?
EPA highlighted the statutory
requirement to submit infrastructure
SIPs within three years of promulgation
of a new NAAQS in an October 2, 2007
guidance document entitled ‘‘Guidance
on SIP Elements Required Under
Sections 110(a)(1) and (2) for the 1997
8-hour Ozone and PM2.5 National
Ambient Air Quality Standards.’’ EPA
has issued additional guidance
documents and memoranda, including a
September 13, 2013, guidance document
titled ‘‘Guidance on Infrastructure State
Implementation Plan (SIP) Elements
under Clean Air Act Sections 110(a)(1)
and 110(a)(2).’’
The most recent relevant document is
a memorandum published on March 17,
2016, titled ‘‘Information on the
Interstate Transport ‘Good Neighbor’
Provision for the 2012 Fine Particulate
Matter National Ambient Air Quality
Standards under Clean Air Act Section
110(a)(2)(D)(i)(I)’’ (2016 memorandum).
The 2016 memorandum describes EPA’s
consistent approach over the years to
address interstate transport and
provides EPA’s general review of
relevant modeling data and air quality
projections as they relate to the 2012
annual PM2.5 NAAQS. The 2016
memorandum provides information
relevant to EPA Regional office review
of CAA Section 110 (a)(2)(D)(i)(I) ‘‘good
neighbor’’ provision in infrastructure
SIPs with respect to the 2012 annual
PM2.5 NAAQS. IEPA’s submittal and
this rulemaking consider information
provided in that memorandum.
The 2016 memorandum provides
states and EPA Regional offices with
future year annual PM2.5 design values
for monitors in the United States based
on quality assured and certified ambient
monitoring data and air quality
modeling. The 2016 memorandum
further describes how these projected
potential design values can be used to
help determine which monitors should
be further evaluated to potentially
address whether emissions from other
states significantly contribute to
nonattainment or interfere with
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maintenance of the 2012 annual PM2.5
NAAQS at those sites. The 2016
memorandum explains that, for
purposes of addressing interstate
transport for the 2012 PM2.5 NAAQS, it
may be appropriate to evaluate
projected air quality in 2021, which is
the attainment deadline for 2012 PM2.5
NAAQS nonattainment areas classified
as Moderate. Accordingly, because the
available data includes 2017 and 2025
projected average and maximum PM2.5
design values calculated through the
CAMx photochemical model, the 2016
memorandum suggests approaches
states might use to interpolate PM2.5
values at sites in 2021. The 2016
memorandum indicates that it may be
reasonable to assume receptors
projected to have average and/or
maximum design values above the
NAAQS in both 2017 and 2025 are also
likely to be either nonattainment or
maintenance receptors in 2021.
Similarly, the 2016 memorandum
indicates that it may be reasonable to
assume that receptors that are projected
to attain the NAAQS in both 2017 and
2025 are also likely to be attainment
receptors in 2021. However, where a
potential receptor is projected to be
nonattainment or maintenance in 2017,
but projected to be attainment in 2025,
the 2016 memorandum suggests that
further analysis of the emissions and
modeling may be needed to make a
further judgement regarding the receptor
status in 2021.
The 2016 memorandum indicates that
for all but one monitoring site in the
eastern United States, with complete
and valid PM2.5 design values from 2009
to 2013, the modeling data shows that
monitors were expected to both attain
and maintain the 2012 annual PM2.5
NAAQS in both 2017 and 2025. The
modeling results provided in the 2016
memorandum show that out of seven
PM2.5 monitors located in Allegheny
County, Pennsylvania (PA), one monitor
is expected to be above the 2012 annual
PM2.5 NAAQS in 2017. Further, that
monitor, the Liberty monitor (ID number
420030064), is projected to be above the
NAAQS only under the model’s
maximum projected conditions (used in
EPA’s interstate transport framework to
identify maintenance receptors) and is
projected to both attain and maintain
the NAAQS (along with all Allegheny
County monitors) in 2025. The 2016
memorandum therefore indicates that
under such a condition (where EPA’s
photochemical modeling indicates an
area will maintain the 2012 annual
PM2.5 NAAQS in 2025 but not attain in
2017) further analysis of the site should
be performed to determine if the site
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may be a nonattainment or maintenance
receptor in 2021 (the attainment
deadline for moderate PM2.5 areas).
The 2016 memorandum also indicates
that based on modeling projections,
there are 17 potential nonattainment or
maintenance receptors in California,
located in the San Joaquin Valley and
South Coast nonattainment areas, and
one potential receptor in Shoshone
County, Idaho.
The 2016 memorandum also indicates
that for certain states with incomplete
ambient monitoring data, additional
information including the latest
available data should be analyzed to
determine whether there are potential
downwind air quality problems that
may be impacted by transported
emissions. These states include all or
portions of Florida, Illinois, Idaho
(outside of Shoshone County),
Tennessee, and Kentucky. With the
exception of four counties in Florida,
the data quality problems have
subsequently been resolved for these
areas, and these areas now have current
design values below the 2012 annual
PM2.5 NAAQS and are expected to
maintain the NAAQS due to downward
emission trends for nitrogen oxides
(NOX) and sulfur dioxide (SO2).
IEPA’s submittal indicates that the
state used data from the 2016
memorandum and supplied its own
additional information in its analysis.
EPA considered the analysis from IEPA,
as well as additional analysis conducted
by EPA, in its review of the IEPA
submittal.
III. IEPA’s Analysis and Conclusion
IEPA’s submittal contains a technical
analysis of its interstate transport of
pollution relative to the 2012 annual
PM2.5 NAAQS. As reflected in the EPA’s
2016 memorandum, the only receptor
identified as nonattainment or
maintenance on which Illinois was
deemed to have significant impact is the
Liberty monitor (42–003–0064) in
Allegheny County, PA located in
southwest PA. In this technical analysis
IEPA examined geographical,
meteorological, and emissions factors to
evaluate impacts on the Allegheny
monitor. As stated previously, IEPA’s
technical analysis considers CSAPR rule
implementation and EPA guidance and
memoranda. IEPA did not focus on
potential contribution to other areas
EPA identified as not attaining the 2012
annual PM2.5 NAAQS based on monitor
data in Alaska, California, Idaho,
Nevada, or Hawaii. The distance
between Illinois and these areas,
coupled with the prevailing wind
directions, leads IEPA to conclude that
Illinois will not contribute significantly
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4027
to any of the potential receptors in those
states. Since the Allegheny County, PA,
receptor is the only location considered
downwind of Illinois, this submission
focuses on that single receptor. IEPA
concluded that Illinois contributes no
significant impacts to the maintenance
and attainment of NAAQS for PM2.5 in
Allegheny County, PA, and therefore
existing measures satisfy Illinois’
responsibilities under CAA Section
110(a)(2)(D)(i)(I).
IEPA’s submission discussed
geographical factors that show Illinois
does not contribute to the
nonattainment issues at the Allegheny
monitor. As stated in IEPA’s submittal,
Illinois’ nearest point to the Allegheny
monitor is about 400 miles away. At this
large distance, PM2.5 precursor
emissions from Illinois are thoroughly
dispersed in the atmosphere long before
reaching PA. Furthermore, Illinois is
required to control electric generation
units (EGU) year-round to meet annual
budgets of NOX and SO2 associated with
CSAPR, so the Illinois contribution to
long-range transport is already being
minimized.
IEPA’s submission included a wind
rose from the Pittsburgh/Allegheny
airport to demonstrate that the
dominant wind directions in the
monitor area are south through west,
with the highest frequency from the
south. Local emitting sources located
south and west of the monitor were
identified by IEPA in this submittal.
Some sources include Clairton Coke
Works (1.3 miles south) and U.S. Steel
Corporation (2.0 miles west). The 2011
emissions totals for all the identified
sources were 702 tons/year (TPY) of
primary PM2.5, 3,075 TPY of NOX, and
1,468 TPY of SO2. These large sources
of PM2.5 and precursors of PM2.5 near
the monitor line up with prevailing
wind directions in that area, leading
IEPA to conclude that these sources
largely contribute to the nonattainment
issues at the Allegheny monitor.
IEPA’s submission evaluated the
Illinois emissions data from federal
inventories of NOX and SO2. Emissions
of NOX and SO2 have been steadily
decreasing since the early 2000s due to
state and federal control requirements.
The emissions of NOX and SO2 in
Illinois from all identified source
categories have decreased by 48.5% and
64%, respectively, since 2002. Illinois’
implementation of Tier 3 vehicle
emission fuel standards will further
reduce the on-road emissions going
forward.
IEPA concludes that that no further
measures are necessary to satisfy
Illinois’ responsibilities under CAA
Section 110(a)(2)(D)(i)(I), because
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Illinois does not contribute to projected
nonattainment or maintenance issues at
the Liberty monitor site. Instead, IEPA
found that ambient air traveling from
westerly and southernly winds and
large sources of primary PM2.5, NOX,
and SO2 in PA near the Allegheny
monitor are more likely contributing to
projected nonattainment or maintenance
issues at the site.
IV. EPA’s Additional Analysis, Review,
and Conclusion
The modeling information contained
in EPA’s 2016 memorandum shows that
one monitor in Allegheny County, PA
(the Liberty monitor, 420030064) may
have a maintenance issue in 2017, but
is projected to both attain and maintain
the NAAQS by 2025. A linear
interpolation of the modeled design
values to 2021 shows that the monitor
is likely to both attain and maintain the
standard by 2021. Emissions and air
quality data trends help to corroborate
this interpolation.
Over the last decade, local and
regional emissions reductions of
primary PM2.5, SO2, and NOX, have led
to large reductions in annual PM2.5
design values in Allegheny County, PA.
In 2007, all of Allegheny County’s PM2.5
monitors exceeded the level of the 2012
annual PM2.5 NAAQS (the 2005–2007
annual average design values ranged
from 12.9–19.8 micrograms per cubic
meter (mg/m3), as shown in Table 1).
The 2015–2017 annual average PM2.5
design values now show that only one
monitor (Liberty, at 13.0 mg/m3) exceeds
the health-based annual PM2.5 NAAQS
of 12.0 mg/m3.
TABLE 1—PM2.5 ANNUAL DESIGN VALUES IN μg/m3
Monitor
2005–
2007
2006–
2008
2007–
2009
2008–
2010
2009–
2011
2010–
2012
2011–
2013
2012–
2014
2013–
2015
Avalon ..............................................
Lawrenceville ....................................
Liberty ...............................................
South Fayette ...................................
North Park ........................................
Harrison ............................................
North Braddock ................................
Parkway East Near-Road ................
Clairton .............................................
............
15.0
19.8
12.9
* 13.0
15.0
16.2
............
15.3
............
14.0
18.3
* 11.8
* 12.3
14.2
15.2
............
14.3
............
13.1
17.0
11.7
* 11.3
13.7
14.3
............
13.2
* 16.3
12.2
16.0
11.1
* 10.1
13.0
13.3
............
12.4
* 14.7
11.6
15.0
11.0
9.7
12.4
12.7
............
* 11.5
13.4
11.1
14.8
10.5
9.4
* 11.7
12.5
............
* 10.9
11.4
10.3
13.4
9.6
8.8
10.6
*11.7
............
* 9.8
10.6
10.0
13.0
9.0
8.5
10.0
11.4
............
9.5
10.6
9.7
12.6
8.8
8.5
9.8
11.2
............
9.8
2014–
2016
* 10.4
9.5
12.8
* 8.5
* 8.2
9.8
11.0
* 10.6
* 9.8
2015–
2017
* 10.2
9.2
13.0
* 8.4
* 8.2
9.8
10.8
* 10.6
* 9.8
* Value does not contain a complete year worth of data.
The Liberty monitor is already close
to attaining the NAAQS and expected
emissions reductions in the next three
years will lead to additional reductions
in measured PM2.5 concentrations.
There are both local and regional
components to the measured PM2.5
levels in Allegheny County and the
greater Pittsburgh area. Previous CSAPR
modeling showed that regional
emissions from upwind states,
particularly SO2 and NOX emissions,
contribute to PM2.5 nonattainment at the
Liberty monitor. In recent years, large
SO2 and NOX reductions from power
plants have occurred in Pennsylvania
and states upwind from the Greater
Pittsburgh region. Based on existing
CSAPR budgets, Pennsylvania’s energy
sector emissions of SO2 will have
decreased 166,000 tons between 2015–
2017 as a result of CSAPR
implementation. This is due to both the
installation of emissions controls and
retirements of electric generating units.
Between 2011 and 2016, 27.4
gigawatts of coal-fired EGUs have
retired in Pennsylvania and the closest
upwind states (West Virginia, Ohio,
Kentucky, Indiana, Illinois, and
Michigan) according to the Energy
Information Administration’s
Preliminary Monthly Electric Generator
Inventory, April 2017 (form EIA–860M,
at https://www.eia.gov/electricity/data/
eia860m/xls/april_generator2017.xlsx).
In addition, between 2017 and 2021, an
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additional 8.8 gigawatts of coal-fired
EGUs are expected to retire in the same
upwind states. This includes large EGUs
such as JM Stuart in Ohio (2,308
megawatts [MW]), Killen Station in
Ohio (600 MW), WH Sammis in Ohio
(720 MW), Michigan City in Indiana
(469 MW), Will County in Illinois (510
MW), Baldwin Energy Complex in
Illinois (576 MW), Paradise in Kentucky
(1,230 MW), and Baily in Indiana (480
MW). These regional coal unit
retirements will lead to further
emissions reductions which will help
ensure that Alleghany County monitors
will not have nonattainment or
maintenance issues by 2021.
In addition to regional emissions
reductions and plant closures noted
above, additional local reductions in
both direct PM2.5 and SO2 emissions are
also expected to occur and should also
contribute to further declines in
Allegheny County’s PM2.5 monitor
concentrations. For example, significant
SO2 reductions will occur at U.S. Steel’s
integrated steel mill facilities in
southern Allegheny County due to
reductions required via federallyenforceable permits issued by Allegheny
County to support its attainment plan
submitted to meet requirements in CAA
Section 172(c) for the 1-hr SO2 NAAQS.
Reductions occurred October 2018
largely due to declining sulfur content
in the Clairton Coke Work’s coke oven
gas (COG) due to upgraded controls.
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Sfmt 4702
Because this COG is burned at U.S.
Steel’s Clairton Coke Works, Irvin Mill,
and Edgar Thompson Steel Mill, these
reductions in sulfur content contribute
to much lower PM2.5 formation from
precursors in the immediate future after
October 4, 2018 as SO2 is a precursor to
PM2.5. Additionally, the expected
retirement of the Bruce Mansfield Power
Plant by June 2021 should reduce
precursor emissions from neighboring
Beaver County, PA. The Allegheny
County and Beaver County SO2 SIP
submissions, which EPA is reviewing
pursuant to CAA requirements, also
discuss expected lower SO2 emissions
in the Allegheny County area resulting
from reduced sulfur content
requirements in vehicle fuels,
reductions in general emissions due to
declining population in the Greater
Pittsburgh region, and several
shutdowns of significant emitters of SO2
in Allegheny County.
Projected power plant closures and
additional emissions controls in PA and
upwind states will help further reduce
both direct PM2.5 and PM2.5 precursors.
Regional emission reductions will
continue to occur from current on-thebooks Federal and state regulations such
as the Federal on-road and non-road
vehicle programs, and various rules for
major stationary emissions sources.
EPA modeling projections, the recent
downward trend in local and upwind
emissions reductions, the expected
E:\FR\FM\14FEP1.SGM
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Federal Register / Vol. 84, No. 31 / Thursday, February 14, 2019 / Proposed Rules
continued downward trend in emissions
between 2018 and 2021, and the
downward trend in monitored PM2.5
concentrations all indicate that the
Liberty monitor will attain and be able
to maintain the 2012 annual PM2.5
NAAQS by 2021.
With respect to Florida, in the CSAPR
modeling analysis for the 1997 PM2.5
NAAQS, Florida did not have any
potential nonattainment or maintenance
receptors identified for the 1997 or 2006
PM2.5 NAAQS. At this time, it is
anticipated that this trend will continue;
however, as there are ambient
monitoring data gaps in the 2009–2013
data that could have been used to
identify potential PM2.5 nonattainment
and maintenance receptors for Miami/
Dade, Gilchrist, Broward and Alachua
counties in Florida, the modeling
analysis of potential receptors was not
complete for these counties. However,
the most recent ambient data (2015–
2017) for these counties indicates design
values well below the level of the 2012
annual PM2.5 NAAQS. In addition, the
highest value for these observed
monitors is 8.0 mg/m3 at the
Hillsborough County monitor (12–057–
3002), which is well below the NAAQS.
This is also consistent with historical
data: Complete and valid design values
in the 2006–2008, 2007–2009 and/or
2008–2010 periods for these counties
were all well below the 2012 annual
PM2.5 NAAQS. For these reasons, we
find that none of the counties in Florida
with monitoring gaps between 2009–
2013 should be considered either
nonattainment or maintenance receptors
for the 2012 annual PM2.5 NAAQS. For
these reasons, we propose to find that
emissions from Illinois will not
significantly contribute to
nonattainment or interfere with
maintenance of the 2012 annual PM2.5
NAAQS in Florida.
The conclusions of IEPA’s analysis is
consistent with EPA’s expanded review
of its submittal. The area (Allegheny
County, PA) to which Illinois’ sources
potentially contribute is expected to
attain and maintain the 2012 annual
PM2.5 NAAQS, and as demonstrated in
IEPA’s submittal, Illinois will not
contribute to projected nonattainment or
maintenance issues at any sites in 2021.
IEPA’s analysis shows that through
permanent and enforceable measures
currently contained in its SIP and other
emissions reductions occurring in
Illinois, monitored PM2.5 air quality in
the identified area that Illinois sources
may impact will continue to improve,
and that no further measures are
necessary to satisfy Illinois’
responsibilities under CAA section
110(a)(2)(D)(i)(I). Therefore, EPA is
VerDate Sep<11>2014
17:17 Feb 13, 2019
Jkt 247001
proposing that prongs one and two of
the interstate pollution transport
element of Illinois’ infrastructure SIP
are approvable.
V. What action is EPA taking?
EPA is proposing to approve a portion
of IEPA’s September 29, 2017 submittal
certifying that the current Illinois SIP is
sufficient to meet the required
infrastructure requirements under CAA
section 110(a)(2)(D)(i)(I), specifically
prongs one and two, as set forth above.
VI. Statutory and Executive Order
Reviews
Under the CAA, the Administrator is
required to approve a SIP submission
that complies with the provisions of the
CAA and applicable Federal regulations.
See 42 U.S.C. 7410(k); 40 CFR 52.02(a).
Thus, in reviewing SIP submissions,
EPA’s role is to approve state choices,
provided that they meet the criteria of
the CAA. Accordingly, this action
merely approves state law as meeting
Federal requirements and does not
impose additional requirements beyond
those imposed by state law. For that
reason, this action:
• Is not a significant regulatory action
subject to review by the Office of
Management and Budget under
Executive Orders 12866 (58 FR 51735,
October 4, 1993) and 13563 (76 FR 3821,
January 21, 2011);
• Is not an Executive Order 13771 (82
FR 9339, February 2, 2017) regulatory
action because SIP approvals are
exempted under Executive Order 12866.
• Does not impose an information
collection burden under the provisions
of the Paperwork Reduction Act (44
U.S.C. 3501 et seq.);
• Is certified as not having a
significant economic impact on a
substantial number of small entities
under the Regulatory Flexibility Act (5
U.S.C. 601 et seq.);
• 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);
• Does not have Federalism
implications as specified in Executive
Order 13132 (64 FR 43255, August 10,
1999);
• Is not an economically significant
regulatory action based on health or
safety risks subject to Executive Order
13045 (62 FR 19885, April 23, 1997);
• Is not a significant regulatory action
subject to Executive Order 13211 (66 FR
28355, May 22, 2001);
• Is not subject to requirements of
Section 12(d) of the National
Technology Transfer and Advancement
Act of 1995 (15 U.S.C. 272 note) because
PO 00000
Frm 00028
Fmt 4702
Sfmt 4702
4029
application of those requirements would
be inconsistent with the CAA; and
• Does not provide EPA with the
discretionary authority to address, as
appropriate, disproportionate human
health or environmental effects, using
practicable and legally permissible
methods, under Executive Order 12898
(59 FR 7629, February 16, 1994).
In addition, the SIP is not approved
to apply on any Indian reservation land
or in any other area where EPA or an
Indian tribe has demonstrated that a
tribe has jurisdiction. In those areas of
Indian country, the rule does not have
tribal implications and will not impose
substantial direct costs on tribal
governments or preempt tribal law as
specified by Executive Order 13175 (65
FR 67249, November 9, 2000).
List of Subjects in 40 CFR Part 52
Environmental protection, Air
pollution control, Incorporation by
reference, Intergovernmental relations,
Particulate matter, Reporting and
recordkeeping requirements.
Dated: December 21, 2018.
James O. Payne,
Acting Regional Administrator, Region 5.
[FR Doc. 2019–02214 Filed 2–13–19; 8:45 am]
BILLING CODE 6560–50–P
ENVIRONMENTAL PROTECTION
AGENCY
40 CFR Part 81
[EPA–R09–OAR–2018–0831; FRL–9989–53–
Region 9]
Finding of Failure To Attain and
Reclassification of Pechanga
Nonattainment Area for the 2008
Ozone National Ambient Air Quality
Standards
Environmental Protection
Agency (EPA).
ACTION: Proposed rule.
AGENCY:
The Environmental Protection
Agency (EPA) is proposing to determine
that the Pechanga Band of Luisen˜o
Mission Indians of the Pechanga
Reservation nonattainment area
(‘‘Pechanga nonattainment area’’ or
‘‘Pechanga area’’) failed to attain the
2008 national ambient air quality
standards for ozone (‘‘ozone NAAQS’’ or
‘‘ozone standards’’) by the applicable
attainment date. The effect of failing to
attain by the attainment date is that the
‘‘Moderate’’ Pechanga nonattainment
area will be reclassified by operation of
law to ‘‘Serious’’ upon the effective date
of the final reclassification action. This
proposed action, if finalized, would
fulfill the EPA’s statutory obligation to
SUMMARY:
E:\FR\FM\14FEP1.SGM
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]]>Agencies
[Federal Register Volume 84, Number 31 (Thursday, February 14, 2019)]
[Proposed Rules]
[Pages 4025-4029]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2019-02214]
-----------------------------------------------------------------------
ENVIRONMENTAL PROTECTION AGENCY
40 CFR Part 52
[EPA-R05-OAR-2017-0583; FRL-9989-34-Region 5]
Air Plan Approval; Illinois; Infrastructure SIP Requirements for
the 2012 PM2.5 NAAQS; Interstate Transport
AGENCY: Environmental Protection Agency (EPA).
ACTION: Proposed rule.
-----------------------------------------------------------------------
SUMMARY: The Environmental Protection Agency (EPA) is proposing to
approve elements of the State Implementation Plan (SIP) submission from
the Illinois Environmental Protection Agency (IEPA) regarding the
infrastructure requirements of section 110 of the Clean Air Act (CAA)
for the 2012 annual fine particulate matter (PM2.5) National
Ambient Air Quality Standard (NAAQS or standard). The infrastructure
requirements are designed to ensure that the structural components of
each state's air quality management program are adequate to meet the
state's responsibilities under the CAA. This action pertains
specifically to infrastructure requirements in the Illinois SIP
concerning interstate transport provisions.
DATES: Comments must be received on or before March 18, 2019.
ADDRESSES: Submit your comments, identified by Docket ID No. EPA-R05-
OAR-2017-0583 at https://
[[Page 4026]]
www.regulations.gov, or via email to aburano.douglas@epa.gov. For
comments submitted at Regulations.gov, follow the online instructions
for submitting comments. Once submitted, comments cannot be edited or
removed from Regulations.gov. For either manner of submission, EPA may
publish any comment received to its public docket. Do not submit
electronically any information you consider to be Confidential Business
Information (CBI) or other information whose disclosure is restricted
by statute. Multimedia submissions (audio, video, etc.) must be
accompanied by a written comment. The written comment is considered the
official comment and should include discussion of all points you wish
to make. EPA will generally not consider comments or comment contents
located outside of the primary submission (i.e. on the web, cloud, or
other file sharing system). For additional submission methods, please
contact the person identified in the FOR FURTHER INFORMATION CONTACT
section. For the full EPA public comment policy, information about CBI
or multimedia submissions, and general guidance on making effective
comments, please visit https://www2.epa.gov/dockets/commenting-epa-dockets.
FOR FURTHER INFORMATION CONTACT: Samantha Panock, Environmental
Scientist, Attainment Planning and Maintenance Section, Air Programs
Branch (AR-18J), Environmental Protection Agency, Region 5, 77 West
Jackson Boulevard, Chicago, Illinois 60604, (312) 353-8973,
panock.samantha@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. What is the background of this SIP submission?
II. What guidance and memoranda is EPA using to evaluate this SIP
submission?
III. IEPA's Analysis and Conclusion
IV. EPA's Additional Analysis, Review, and Conclusion
V. What action is EPA taking?
VI. Statutory and Executive Order Reviews
I. What is the background of this SIP submission?
This rulemaking addresses a submission from the IEPA dated
September 29, 2017, which describes its infrastructure SIP for the 2012
annual PM2.5 NAAQS (78 FR 3086). Specifically, this
rulemaking addresses the portion of the submission dealing with
interstate pollution transport under CAA Section 110(a)(2)(D)(i),
otherwise known as the ``good neighbor'' provision. The requirement for
states to make a SIP submission of this type arises from Section
110(a)(1) of the CAA, pursuant to which states must submit ``within 3
years (or such shorter period as the Administrator may prescribe) after
the promulgation of a national primary ambient air quality standard (or
any revision thereof),'' a plan that provides for the ``implementation,
maintenance, and enforcement'' of such NAAQS. Section 110(a)(2) of the
CAA includes a list of specific elements that ``each such plan''
submission must address. EPA commonly refers to such state plans as
``infrastructure SIPs.'' State plans must address four requirements of
the good neighbor provisions (commonly referred to as ``prongs''),
including:
--Prong 1: Prohibiting any source or other type of emissions activity
in one state from contributing significantly to nonattainment of the
NAAQS in another state;
--Prong 2: Prohibiting any source or other type of emissions activity
in one state from interfering with maintenance of the NAAQS in another
state;
--Prong 3: Prohibiting any source or other type of emissions activity
in one state from interfering with measures required to prevent
significant deterioration (PSD) of air quality in another state; and
--Prong 4: Protecting visibility in another state.
This rulemaking is evaluating whether Illinois' interstate
transport provisions in its PM2.5 infrastructure SIP meet
prongs one and two of the good neighbor requirements of the CAA. Prongs
three and four will be evaluated in a separate rulemaking.
EPA has developed a consistent framework for addressing the prong
one and two interstate transport requirements with respect to the
PM2.5 NAAQS in several previous Federal rulemakings. The
four basic steps of that framework include: (1) Identifying downwind
receptors that are expected to have problems attaining or maintaining
the NAAQS; (2) identifying which upwind states contribute to these
identified problems in amounts sufficient to warrant further review and
analysis; (3) for states identified as contributing to downwind air
quality problems, identifying upwind emissions reductions necessary to
prevent an upwind state from significantly contributing to
nonattainment or interfering with maintenance of the NAAQS downwind;
and (4) for states that are found to have emissions that significantly
contribute to nonattainment or interfere with maintenance of the NAAQS
downwind, reducing the identified upwind emissions through adoption of
permanent and enforceable measures. This framework was most recently
applied with respect to PM2.5 in the August 8, 2011 Cross-
State Air Pollution Rule (CSAPR) (76 FR 48208), designed to address
both the 1997 and 2006 PM2.5 standards, as well as the 1997
and 2008 ozone standards.
II. What guidance and memoranda is EPA using to evaluate this SIP
submission?
EPA highlighted the statutory requirement to submit infrastructure
SIPs within three years of promulgation of a new NAAQS in an October 2,
2007 guidance document entitled ``Guidance on SIP Elements Required
Under Sections 110(a)(1) and (2) for the 1997 8-hour Ozone and
PM2.5 National Ambient Air Quality Standards.'' EPA has
issued additional guidance documents and memoranda, including a
September 13, 2013, guidance document titled ``Guidance on
Infrastructure State Implementation Plan (SIP) Elements under Clean Air
Act Sections 110(a)(1) and 110(a)(2).''
The most recent relevant document is a memorandum published on
March 17, 2016, titled ``Information on the Interstate Transport `Good
Neighbor' Provision for the 2012 Fine Particulate Matter National
Ambient Air Quality Standards under Clean Air Act Section
110(a)(2)(D)(i)(I)'' (2016 memorandum). The 2016 memorandum describes
EPA's consistent approach over the years to address interstate
transport and provides EPA's general review of relevant modeling data
and air quality projections as they relate to the 2012 annual
PM2.5 NAAQS. The 2016 memorandum provides information
relevant to EPA Regional office review of CAA Section 110
(a)(2)(D)(i)(I) ``good neighbor'' provision in infrastructure SIPs with
respect to the 2012 annual PM2.5 NAAQS. IEPA's submittal and
this rulemaking consider information provided in that memorandum.
The 2016 memorandum provides states and EPA Regional offices with
future year annual PM2.5 design values for monitors in the
United States based on quality assured and certified ambient monitoring
data and air quality modeling. The 2016 memorandum further describes
how these projected potential design values can be used to help
determine which monitors should be further evaluated to potentially
address whether emissions from other states significantly contribute to
nonattainment or interfere with
[[Page 4027]]
maintenance of the 2012 annual PM2.5 NAAQS at those sites.
The 2016 memorandum explains that, for purposes of addressing
interstate transport for the 2012 PM2.5 NAAQS, it may be
appropriate to evaluate projected air quality in 2021, which is the
attainment deadline for 2012 PM2.5 NAAQS nonattainment areas
classified as Moderate. Accordingly, because the available data
includes 2017 and 2025 projected average and maximum PM2.5
design values calculated through the CAMx photochemical model, the 2016
memorandum suggests approaches states might use to interpolate
PM2.5 values at sites in 2021. The 2016 memorandum indicates
that it may be reasonable to assume receptors projected to have average
and/or maximum design values above the NAAQS in both 2017 and 2025 are
also likely to be either nonattainment or maintenance receptors in
2021. Similarly, the 2016 memorandum indicates that it may be
reasonable to assume that receptors that are projected to attain the
NAAQS in both 2017 and 2025 are also likely to be attainment receptors
in 2021. However, where a potential receptor is projected to be
nonattainment or maintenance in 2017, but projected to be attainment in
2025, the 2016 memorandum suggests that further analysis of the
emissions and modeling may be needed to make a further judgement
regarding the receptor status in 2021.
The 2016 memorandum indicates that for all but one monitoring site
in the eastern United States, with complete and valid PM2.5
design values from 2009 to 2013, the modeling data shows that monitors
were expected to both attain and maintain the 2012 annual
PM2.5 NAAQS in both 2017 and 2025. The modeling results
provided in the 2016 memorandum show that out of seven PM2.5
monitors located in Allegheny County, Pennsylvania (PA), one monitor is
expected to be above the 2012 annual PM2.5 NAAQS in 2017.
Further, that monitor, the Liberty monitor (ID number 420030064), is
projected to be above the NAAQS only under the model's maximum
projected conditions (used in EPA's interstate transport framework to
identify maintenance receptors) and is projected to both attain and
maintain the NAAQS (along with all Allegheny County monitors) in 2025.
The 2016 memorandum therefore indicates that under such a condition
(where EPA's photochemical modeling indicates an area will maintain the
2012 annual PM2.5 NAAQS in 2025 but not attain in 2017)
further analysis of the site should be performed to determine if the
site may be a nonattainment or maintenance receptor in 2021 (the
attainment deadline for moderate PM2.5 areas).
The 2016 memorandum also indicates that based on modeling
projections, there are 17 potential nonattainment or maintenance
receptors in California, located in the San Joaquin Valley and South
Coast nonattainment areas, and one potential receptor in Shoshone
County, Idaho.
The 2016 memorandum also indicates that for certain states with
incomplete ambient monitoring data, additional information including
the latest available data should be analyzed to determine whether there
are potential downwind air quality problems that may be impacted by
transported emissions. These states include all or portions of Florida,
Illinois, Idaho (outside of Shoshone County), Tennessee, and Kentucky.
With the exception of four counties in Florida, the data quality
problems have subsequently been resolved for these areas, and these
areas now have current design values below the 2012 annual
PM2.5 NAAQS and are expected to maintain the NAAQS due to
downward emission trends for nitrogen oxides (NOX) and
sulfur dioxide (SO2).
IEPA's submittal indicates that the state used data from the 2016
memorandum and supplied its own additional information in its analysis.
EPA considered the analysis from IEPA, as well as additional analysis
conducted by EPA, in its review of the IEPA submittal.
III. IEPA's Analysis and Conclusion
IEPA's submittal contains a technical analysis of its interstate
transport of pollution relative to the 2012 annual PM2.5
NAAQS. As reflected in the EPA's 2016 memorandum, the only receptor
identified as nonattainment or maintenance on which Illinois was deemed
to have significant impact is the Liberty monitor (42-003-0064) in
Allegheny County, PA located in southwest PA. In this technical
analysis IEPA examined geographical, meteorological, and emissions
factors to evaluate impacts on the Allegheny monitor. As stated
previously, IEPA's technical analysis considers CSAPR rule
implementation and EPA guidance and memoranda. IEPA did not focus on
potential contribution to other areas EPA identified as not attaining
the 2012 annual PM2.5 NAAQS based on monitor data in Alaska,
California, Idaho, Nevada, or Hawaii. The distance between Illinois and
these areas, coupled with the prevailing wind directions, leads IEPA to
conclude that Illinois will not contribute significantly to any of the
potential receptors in those states. Since the Allegheny County, PA,
receptor is the only location considered downwind of Illinois, this
submission focuses on that single receptor. IEPA concluded that
Illinois contributes no significant impacts to the maintenance and
attainment of NAAQS for PM2.5 in Allegheny County, PA, and
therefore existing measures satisfy Illinois' responsibilities under
CAA Section 110(a)(2)(D)(i)(I).
IEPA's submission discussed geographical factors that show Illinois
does not contribute to the nonattainment issues at the Allegheny
monitor. As stated in IEPA's submittal, Illinois' nearest point to the
Allegheny monitor is about 400 miles away. At this large distance,
PM2.5 precursor emissions from Illinois are thoroughly
dispersed in the atmosphere long before reaching PA. Furthermore,
Illinois is required to control electric generation units (EGU) year-
round to meet annual budgets of NOX and SO2
associated with CSAPR, so the Illinois contribution to long-range
transport is already being minimized.
IEPA's submission included a wind rose from the Pittsburgh/
Allegheny airport to demonstrate that the dominant wind directions in
the monitor area are south through west, with the highest frequency
from the south. Local emitting sources located south and west of the
monitor were identified by IEPA in this submittal. Some sources include
Clairton Coke Works (1.3 miles south) and U.S. Steel Corporation (2.0
miles west). The 2011 emissions totals for all the identified sources
were 702 tons/year (TPY) of primary PM2.5, 3,075 TPY of
NOX, and 1,468 TPY of SO2. These large sources of
PM2.5 and precursors of PM2.5 near the monitor
line up with prevailing wind directions in that area, leading IEPA to
conclude that these sources largely contribute to the nonattainment
issues at the Allegheny monitor.
IEPA's submission evaluated the Illinois emissions data from
federal inventories of NOX and SO2. Emissions of
NOX and SO2 have been steadily decreasing since
the early 2000s due to state and federal control requirements. The
emissions of NOX and SO2 in Illinois from all
identified source categories have decreased by 48.5% and 64%,
respectively, since 2002. Illinois' implementation of Tier 3 vehicle
emission fuel standards will further reduce the on-road emissions going
forward.
IEPA concludes that that no further measures are necessary to
satisfy Illinois' responsibilities under CAA Section
110(a)(2)(D)(i)(I), because
[[Page 4028]]
Illinois does not contribute to projected nonattainment or maintenance
issues at the Liberty monitor site. Instead, IEPA found that ambient
air traveling from westerly and southernly winds and large sources of
primary PM2.5, NOX, and SO2 in PA near
the Allegheny monitor are more likely contributing to projected
nonattainment or maintenance issues at the site.
IV. EPA's Additional Analysis, Review, and Conclusion
The modeling information contained in EPA's 2016 memorandum shows
that one monitor in Allegheny County, PA (the Liberty monitor,
420030064) may have a maintenance issue in 2017, but is projected to
both attain and maintain the NAAQS by 2025. A linear interpolation of
the modeled design values to 2021 shows that the monitor is likely to
both attain and maintain the standard by 2021. Emissions and air
quality data trends help to corroborate this interpolation.
Over the last decade, local and regional emissions reductions of
primary PM2.5, SO2, and NOX, have led
to large reductions in annual PM2.5 design values in
Allegheny County, PA. In 2007, all of Allegheny County's
PM2.5 monitors exceeded the level of the 2012 annual
PM2.5 NAAQS (the 2005-2007 annual average design values
ranged from 12.9-19.8 micrograms per cubic meter ([micro]g/m\3\), as
shown in Table 1). The 2015-2017 annual average PM2.5 design
values now show that only one monitor (Liberty, at 13.0 [micro]g/m\3\)
exceeds the health-based annual PM2.5 NAAQS of 12.0
[micro]g/m\3\.
Table 1--PM2.5 Annual Design Values in [micro]g/m\3\
--------------------------------------------------------------------------------------------------------------------------------------------------------
Monitor 2005-2007 2006-2008 2007-2009 2008-2010 2009-2011 2010-2012 2011-2013 2012-2014 2013-2015 2014-2016 2015-2017
--------------------------------------------------------------------------------------------------------------------------------------------------------
Avalon......................... ......... ......... ......... * 16.3 * 14.7 13.4 11.4 10.6 10.6 * 10.4 * 10.2
Lawrenceville.................. 15.0 14.0 13.1 12.2 11.6 11.1 10.3 10.0 9.7 9.5 9.2
Liberty........................ 19.8 18.3 17.0 16.0 15.0 14.8 13.4 13.0 12.6 12.8 13.0
South Fayette.................. 12.9 * 11.8 11.7 11.1 11.0 10.5 9.6 9.0 8.8 * 8.5 * 8.4
North Park..................... * 13.0 * 12.3 * 11.3 * 10.1 9.7 9.4 8.8 8.5 8.5 * 8.2 * 8.2
Harrison....................... 15.0 14.2 13.7 13.0 12.4 * 11.7 10.6 10.0 9.8 9.8 9.8
North Braddock................. 16.2 15.2 14.3 13.3 12.7 12.5 *11.7 11.4 11.2 11.0 10.8
Parkway East Near-Road......... ......... ......... ......... ......... ......... ......... ......... ......... ......... * 10.6 * 10.6
Clairton....................... 15.3 14.3 13.2 12.4 * 11.5 * 10.9 * 9.8 9.5 9.8 * 9.8 * 9.8
--------------------------------------------------------------------------------------------------------------------------------------------------------
* Value does not contain a complete year worth of data.
The Liberty monitor is already close to attaining the NAAQS and
expected emissions reductions in the next three years will lead to
additional reductions in measured PM2.5 concentrations.
There are both local and regional components to the measured
PM2.5 levels in Allegheny County and the greater Pittsburgh
area. Previous CSAPR modeling showed that regional emissions from
upwind states, particularly SO2 and NOX
emissions, contribute to PM2.5 nonattainment at the Liberty
monitor. In recent years, large SO2 and NOX
reductions from power plants have occurred in Pennsylvania and states
upwind from the Greater Pittsburgh region. Based on existing CSAPR
budgets, Pennsylvania's energy sector emissions of SO2 will
have decreased 166,000 tons between 2015-2017 as a result of CSAPR
implementation. This is due to both the installation of emissions
controls and retirements of electric generating units.
Between 2011 and 2016, 27.4 gigawatts of coal-fired EGUs have
retired in Pennsylvania and the closest upwind states (West Virginia,
Ohio, Kentucky, Indiana, Illinois, and Michigan) according to the
Energy Information Administration's Preliminary Monthly Electric
Generator Inventory, April 2017 (form EIA-860M, at https://www.eia.gov/electricity/data/eia860m/xls/april_generator2017.xlsx). In addition,
between 2017 and 2021, an additional 8.8 gigawatts of coal-fired EGUs
are expected to retire in the same upwind states. This includes large
EGUs such as JM Stuart in Ohio (2,308 megawatts [MW]), Killen Station
in Ohio (600 MW), WH Sammis in Ohio (720 MW), Michigan City in Indiana
(469 MW), Will County in Illinois (510 MW), Baldwin Energy Complex in
Illinois (576 MW), Paradise in Kentucky (1,230 MW), and Baily in
Indiana (480 MW). These regional coal unit retirements will lead to
further emissions reductions which will help ensure that Alleghany
County monitors will not have nonattainment or maintenance issues by
2021.
In addition to regional emissions reductions and plant closures
noted above, additional local reductions in both direct
PM2.5 and SO2 emissions are also expected to
occur and should also contribute to further declines in Allegheny
County's PM2.5 monitor concentrations. For example,
significant SO2 reductions will occur at U.S. Steel's
integrated steel mill facilities in southern Allegheny County due to
reductions required via federally-enforceable permits issued by
Allegheny County to support its attainment plan submitted to meet
requirements in CAA Section 172(c) for the 1-hr SO2 NAAQS.
Reductions occurred October 2018 largely due to declining sulfur
content in the Clairton Coke Work's coke oven gas (COG) due to upgraded
controls. Because this COG is burned at U.S. Steel's Clairton Coke
Works, Irvin Mill, and Edgar Thompson Steel Mill, these reductions in
sulfur content contribute to much lower PM2.5 formation from
precursors in the immediate future after October 4, 2018 as
SO2 is a precursor to PM2.5. Additionally, the
expected retirement of the Bruce Mansfield Power Plant by June 2021
should reduce precursor emissions from neighboring Beaver County, PA.
The Allegheny County and Beaver County SO2 SIP submissions,
which EPA is reviewing pursuant to CAA requirements, also discuss
expected lower SO2 emissions in the Allegheny County area
resulting from reduced sulfur content requirements in vehicle fuels,
reductions in general emissions due to declining population in the
Greater Pittsburgh region, and several shutdowns of significant
emitters of SO2 in Allegheny County.
Projected power plant closures and additional emissions controls in
PA and upwind states will help further reduce both direct
PM2.5 and PM2.5 precursors. Regional emission
reductions will continue to occur from current on-the-books Federal and
state regulations such as the Federal on-road and non-road vehicle
programs, and various rules for major stationary emissions sources.
EPA modeling projections, the recent downward trend in local and
upwind emissions reductions, the expected
[[Page 4029]]
continued downward trend in emissions between 2018 and 2021, and the
downward trend in monitored PM2.5 concentrations all
indicate that the Liberty monitor will attain and be able to maintain
the 2012 annual PM2.5 NAAQS by 2021.
With respect to Florida, in the CSAPR modeling analysis for the
1997 PM2.5 NAAQS, Florida did not have any potential
nonattainment or maintenance receptors identified for the 1997 or 2006
PM2.5 NAAQS. At this time, it is anticipated that this trend
will continue; however, as there are ambient monitoring data gaps in
the 2009-2013 data that could have been used to identify potential
PM2.5 nonattainment and maintenance receptors for Miami/
Dade, Gilchrist, Broward and Alachua counties in Florida, the modeling
analysis of potential receptors was not complete for these counties.
However, the most recent ambient data (2015-2017) for these counties
indicates design values well below the level of the 2012 annual
PM2.5 NAAQS. In addition, the highest value for these
observed monitors is 8.0 [micro]g/m\3\ at the Hillsborough County
monitor (12-057-3002), which is well below the NAAQS. This is also
consistent with historical data: Complete and valid design values in
the 2006-2008, 2007-2009 and/or 2008-2010 periods for these counties
were all well below the 2012 annual PM2.5 NAAQS. For these
reasons, we find that none of the counties in Florida with monitoring
gaps between 2009-2013 should be considered either nonattainment or
maintenance receptors for the 2012 annual PM2.5 NAAQS. For
these reasons, we propose to find that emissions from Illinois will not
significantly contribute to nonattainment or interfere with maintenance
of the 2012 annual PM2.5 NAAQS in Florida.
The conclusions of IEPA's analysis is consistent with EPA's
expanded review of its submittal. The area (Allegheny County, PA) to
which Illinois' sources potentially contribute is expected to attain
and maintain the 2012 annual PM2.5 NAAQS, and as
demonstrated in IEPA's submittal, Illinois will not contribute to
projected nonattainment or maintenance issues at any sites in 2021.
IEPA's analysis shows that through permanent and enforceable measures
currently contained in its SIP and other emissions reductions occurring
in Illinois, monitored PM2.5 air quality in the identified
area that Illinois sources may impact will continue to improve, and
that no further measures are necessary to satisfy Illinois'
responsibilities under CAA section 110(a)(2)(D)(i)(I). Therefore, EPA
is proposing that prongs one and two of the interstate pollution
transport element of Illinois' infrastructure SIP are approvable.
V. What action is EPA taking?
EPA is proposing to approve a portion of IEPA's September 29, 2017
submittal certifying that the current Illinois SIP is sufficient to
meet the required infrastructure requirements under CAA section
110(a)(2)(D)(i)(I), specifically prongs one and two, as set forth
above.
VI. Statutory and Executive Order Reviews
Under the CAA, the Administrator is required to approve a SIP
submission that complies with the provisions of the CAA and applicable
Federal regulations. See 42 U.S.C. 7410(k); 40 CFR 52.02(a). Thus, in
reviewing SIP submissions, EPA's role is to approve state choices,
provided that they meet the criteria of the CAA. Accordingly, this
action merely approves state law as meeting Federal requirements and
does not impose additional requirements beyond those imposed by state
law. For that reason, this action:
Is not a significant regulatory action subject to review
by the Office of Management and Budget under Executive Orders 12866 (58
FR 51735, October 4, 1993) and 13563 (76 FR 3821, January 21, 2011);
Is not an Executive Order 13771 (82 FR 9339, February 2,
2017) regulatory action because SIP approvals are exempted under
Executive Order 12866.
Does not impose an information collection burden under the
provisions of the Paperwork Reduction Act (44 U.S.C. 3501 et seq.);
Is certified as not having a significant economic impact
on a substantial number of small entities under the Regulatory
Flexibility Act (5 U.S.C. 601 et seq.);
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);
Does not have Federalism implications as specified in
Executive Order 13132 (64 FR 43255, August 10, 1999);
Is not an economically significant regulatory action based
on health or safety risks subject to Executive Order 13045 (62 FR
19885, April 23, 1997);
Is not a significant regulatory action subject to
Executive Order 13211 (66 FR 28355, May 22, 2001);
Is not subject to requirements of Section 12(d) of the
National Technology Transfer and Advancement Act of 1995 (15 U.S.C. 272
note) because application of those requirements would be inconsistent
with the CAA; and
Does not provide EPA with the discretionary authority to
address, as appropriate, disproportionate human health or environmental
effects, using practicable and legally permissible methods, under
Executive Order 12898 (59 FR 7629, February 16, 1994).
In addition, the SIP is not approved to apply on any Indian
reservation land or in any other area where EPA or an Indian tribe has
demonstrated that a tribe has jurisdiction. In those areas of Indian
country, the rule does not have tribal implications and will not impose
substantial direct costs on tribal governments or preempt tribal law as
specified by Executive Order 13175 (65 FR 67249, November 9, 2000).
List of Subjects in 40 CFR Part 52
Environmental protection, Air pollution control, Incorporation by
reference, Intergovernmental relations, Particulate matter, Reporting
and recordkeeping requirements.
Dated: December 21, 2018.
James O. Payne,
Acting Regional Administrator, Region 5.
[FR Doc. 2019-02214 Filed 2-13-19; 8:45 am]
BILLING CODE 6560-50-P
