Air Plan Approval; Pennsylvania; 1997 8-Hour Ozone National Air Quality Standard (NAAQS) Second Maintenance Plan for the Altoona (Blair County) Area, 54947-54952 [2020-17422]
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Federal Register / Vol. 85, No. 172 / Thursday, September 3, 2020 / Proposed Rules
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ENVIRONMENTAL PROTECTION
AGENCY
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[FR Doc. 2020–19639 Filed 9–2–20; 8:45 am]
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Air Plan Approval; Pennsylvania; 1997
8-Hour Ozone National Air Quality
Standard (NAAQS) Second
Maintenance Plan for the Altoona (Blair
County) Area
Environmental Protection
Agency (EPA).
ACTION: Proposed rule.
AGENCY:
The Environmental Protection
Agency (EPA) is proposing to approve a
state implementation plan (SIP) revision
submitted by the Commonwealth of
Pennsylvania. This revision pertains to
the Commonwealth’s plan, submitted by
the Pennsylvania Department of
Environmental Protection (DEP), for
maintaining the 1997 8-hour ozone
national ambient air quality standard
(NAAQS) (referred to as the ‘‘1997
ozone NAAQS’’) in the Altoona, Blair
County, Pennsylvania area (Altoona
Area). This action is being taken under
the Clean Air Act (CAA).
DATES: Written comments must be
received on or before October 5, 2020.
ADDRESSES: Submit your comments,
identified by Docket ID No. EPA–R03–
OAR–2020–0332 at https://
www.regulations.gov, or via email to
spielberger.susan@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
SUMMARY:
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https://www.epa.gov/dockets/
commenting-epa-dockets.
FOR FURTHER INFORMATION CONTACT:
[EPA–R03–OAR–2020–0332; FRL–10013–
24–Region 3]
PO 00000
54947
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David Talley, Planning &
Implementation Branch (3AD30), Air &
Radiation Division, U.S. Environmental
Protection Agency, Region III, 1650
Arch Street, Philadelphia, Pennsylvania
19103. The telephone number is (215)
814–2117. Mr. Talley can also be
reached via electronic mail at
talley.david@epa.gov.
SUPPLEMENTARY INFORMATION: On
February 27, 2020, DEP submitted a
revision to the Pennsylvania SIP to
incorporate a plan for maintaining the
1997 ozone NAAQS in the Altoona Area
through August 1, 2027, in accordance
with CAA section 175A.
I. Background
In 1979, under section 109 of the
CAA, EPA established primary and
secondary NAAQS for ozone at 0.12
parts per million (ppm), averaged over
a 1-hour period. 44 FR 8202 (February
8, 1979). On July 18, 1997 (62 FR
38856),1 EPA revised the primary and
secondary NAAQS for ozone to set the
acceptable level of ozone in the ambient
air at 0.08 ppm, averaged over an 8-hour
period. EPA set the 1997 ozone NAAQS
based on scientific evidence
demonstrating that ozone causes
adverse health effects at lower
concentrations and over longer periods
of time than was understood when the
pre-existing 1-hour ozone NAAQS was
set.
Following promulgation of a new or
revised NAAQS, EPA is required by the
CAA to designate areas throughout the
nation as attaining or not attaining the
NAAQS. On April 30, 2004 (69 FR
23858), EPA designated the Altoona
Area, which comprises Blair County,
Pennsylvania, as nonattainment for the
1997 ozone NAAQS.
Once a nonattainment area has three
years of complete and certified air
quality data that has been determined to
attain the NAAQS, and the area has met
the other criteria outlined in CAA
section 107(d)(3)(E),2 the state can
1 In March 2008, EPA completed another review
of the primary and secondary ozone standards and
tightened them further by lowering the level for
both to 0.075 ppm. 73 FR 16436 (March 27, 2008).
Additionally, in October 2015, EPA completed a
review of the primary and secondary ozone
standards and tightened them by lowering the level
for both to 0.70 ppm. 80 FR 65292 (October 26,
2015).
2 The requirements of CAA section 107(d)(3)(E)
include attainment of the NAAQS, full approval
under section 110(k) of the applicable SIP,
determination that improvement in air quality is a
result of permanent and enforceable reductions in
emissions, demonstration that the state has met all
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submit a request to EPA to redesignate
the area to attainment. Areas that have
been redesignated by EPA from
nonattainment to attainment are referred
to as ‘‘maintenance areas.’’ One of the
criteria for redesignation is to have an
approved maintenance plan under CAA
section 175A. The maintenance plan
must demonstrate that the area will
continue to maintain the standard for
the period extending 10 years after
redesignation, and it must contain such
additional measures as necessary to
ensure maintenance as well as
contingency measures as necessary to
assure that violations of the standard
will be promptly corrected.
On August 1, 2007 (72 FR 41906
effective August 1, 2007), EPA approved
a redesignation request (and
maintenance plan) from DEP for the
Altoona Area. In accordance with
section 175A(b), at the end of the eighth
year after the effective date of the
redesignation, the state must also
submit a second maintenance plan to
ensure ongoing maintenance of the
standard for an additional 10 years.
EPA’s final implementation rule for
the 2008 ozone NAAQS revoked the
1997 ozone NAAQS and provided that
one consequence of revocation was that
areas that had been redesignated to
attainment (i.e, maintenance areas) for
the 1997 ozone NAAQS no longer
needed to submit second 10-year
maintenance plans under CAA section
175A(b).3 However, in South Coast Air
Quality Management District v. EPA 4
(South Coast II), the United States Court
of Appeals for the District of Columbia
(D.C. Circuit) vacated EPA’s
interpretation that, because of the
revocation of the 1997 ozone standard,
second maintenance plans were not
required for ‘‘orphan maintenance
areas,’’ (i.e., areas like the Altoona Area)
that had been redesignated to
attainment for the 1997 ozone NAAQS
and were designated attainment for the
2008 ozone NAAQS. Thus, states with
these ‘‘orphan maintenance areas’’
under the 1997 ozone NAAQS must
submit maintenance plans for the
second maintenance period.
As previously discussed, CAA section
175A sets forth the criteria for adequate
maintenance plans. In addition, EPA
has published longstanding guidance
that provides further insight on the
content of an approvable maintenance
plan, explaining that a maintenance
plan should address five elements: (1)
applicable section 110 and part D requirements, and
a fully approved maintenance plan under CAA
section 175A.
3 See 80 FR 12315 (March 6, 2015).
4 882 F.3d 1138 (D.C. Cir. 2018).
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An attainment emissions inventory; (2)
a maintenance demonstration; (3) a
commitment for continued air quality
monitoring; (4) a process for verification
of continued attainment; and (5) a
contingency plan. The 1992 Calcagni
Memo 5 provides that states may
generally demonstrate maintenance by
either performing air quality modeling
to show that the future mix of sources
and emission rates will not cause a
violation of the NAAQS or by showing
that future emissions of a pollutant and
its precursors will not exceed the level
of emissions during a year when the
area was attaining the NAAQS (i.e.,
attainment year inventory). See 1992
Calcagni Memo at p. 9. EPA further
clarified in three subsequent guidance
memos describing the conditions for
allowing the submittal of less rigorous
‘‘limited maintenance plans’’ (LMPs) 6
that the requirements of CAA section
175A could be met by demonstrating
that the area’s design value 7 was well
below the NAAQS and that the
historical stability of the area’s air
quality levels showed that the area was
unlikely to violate the NAAQS in the
future. Specifically, EPA believes that if
the most recent air quality design value
for the area is at a level that is below
85% of the standard, or in this case
below 0.071 ppm, then EPA considers
the state to have met the section 175A
requirement for a demonstration that the
area will maintain the NAAQS for the
requisite period. Accordingly, on
February 27, 2020, DEP submitted an
LMP for the Altoona Area, following
EPA’s LMP guidance and demonstrating
that the area will maintain the 1997
ozone NAAQS through August 1, 2027,
i.e., through the entire 20-year
maintenance period.
II. Summary of SIP Revision and EPA
Analysis
DEP’s February 27, 2020 SIP submittal
outlines a plan for continued
maintenance of the 1997 ozone NAAQS
5 ‘‘Procedures for Processing Requests to
Redesignate Areas to Attainment,’’ Memorandum
from John Calcagni, Director, Air Quality
Management Division, September 4, 1992 (1992
Calcagni Memo).
6 See ‘‘Limited Maintenance Plan Option for
Nonclassifiable Ozone Nonattainment Areas’’ from
Sally L. Shaver, Office of Air Quality Planning and
Standards (OAQPS), dated November 16, 1994;
‘‘Limited Maintenance Plan Option for
Nonclassifiable CO Nonattainment Areas’’ from
Joseph Paisie, OAQPS, dated October 6, 1995; and
‘‘Limited Maintenance Plan Option for Moderate
PM10 Nonattainment Areas’’ from Lydia Wegman,
OAQPS, dated August 9, 2001.
7 The ozone design value for a monitoring site is
the 3-year average of the annual fourth-highest daily
maximum 8-hour average ozone concentrations.
The design value for an ozone nonattainment area
is the highest design value of any monitoring site
in the area.
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which addresses the criteria set forth in
the 1992 Calcagni Memo as follows.
A. Attainment Emissions Inventory
For maintenance plans, a state should
develop a comprehensive and accurate
inventory of actual emissions for an
attainment year which identifies the
level of emissions in the area which is
sufficient to maintain the NAAQS. The
inventory should be developed
consistent with EPA’s most recent
guidance. For ozone, the inventory
should be based on typical summer
day’s emissions of nitrogen oxides
(NOX) and volatile organic compounds
(VOC), the precursors to ozone
formation. In the first maintenance plan
for the Altoona Area, DEP used 2004 for
the attainment year inventory, because
2004 was one of the years in the 2003–
2005 three-year period when the area
first attained the 1997 ozone NAAQS.8
The Altoona Area continued to monitor
attainment of the 1997 ozone NAAQS in
2014. Therefore, the emissions
inventory from 2014 represents
emissions levels conducive to continued
attainment (i.e., maintenance) of the
NAAQS. Thus, DEP is using 2014 as
representing attainment level emissions
for its second maintenance plan.
Pennsylvania used 2014 summer day
emissions from EPA’s 2014 version 7.0
modeling platform as the basis for the
2014 inventory presented in Table 1.9
TABLE 1—2014 TYPICAL SUMMER DAY
NOX AND VOC EMISSIONS FOR THE
ALTOONA AREA
(Tons/day)
Source category
NOX
emissions
VOC
emissions
Point ......................
Nonpoint ...............
Onroad ..................
Nonroad ................
2.51
3.73
4.49
0.77
0.90
6.96
2.27
0.77
Total ...............
11.50
11.90
The data shown in Table 1 is based on
the 2014 National Emissions Inventory
(NEI) version 2.10 The inventory
addresses four anthropogenic emission
8 For more information, see EPA’s June 7, 2007
notice proposing to redesignate the Altoona Area to
attainment for the 1997 ozone NAAQS (72 FR
31495).
9 For more information, visit https://
www.epa.gov/sites/production/files/2018-11/ozone_
1997_naaqs_emiss_inv_data_nov_19_2018_0.xlsx.
10 The NEI is a comprehensive and detailed
estimate of air emissions of criteria pollutants,
criteria precursors, and hazardous air pollutants
from air emissions sources. The NEI is released
every three years based primarily upon data
provided by State, Local, and Tribal air agencies for
sources in their jurisdictions and supplemented by
data developed by EPA.
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source categories: Stationary (point)
sources, stationary nonpoint (area)
sources, nonroad mobile, and onroad
mobile sources. Point sources are
stationary sources that have the
potential to emit (PTE) more than 100
tons per year (tpy) of VOC, or more than
50 tpy of NOX, and which are required
to obtain an operating permit. Data are
collected for each source at a facility
and reported to DEP. Examples of point
sources include kraft mills, electrical
generating units (EGUs), and
pharmaceutical factories. Nonpoint
sources include emissions from
equipment, operations, and activities
that are numerous and in total have
significant emissions. Examples include
emissions from commercial and
consumer products, portable fuel
containers, home heating, repair and
refinishing operations, and crematories.
The onroad emissions sector includes
emissions from engines used primarily
to propel equipment on highways and
other roads, including passenger
vehicles, motorcycles, and heavy-duty
diesel trucks. The nonroad emissions
sector includes emissions from engines
that are not primarily used to propel
transportation equipment, such as
generators, forklifts, and marine
pleasure craft. EPA reviewed the
emissions inventory submitted by DEP
and proposes to conclude that the plan’s
inventory is acceptable for the purposes
of a subsequent maintenance plan under
CAA section 175A(b).
B. Maintenance Demonstration
In order to attain the 1997 ozone
NAAQS, the three-year average of the
fourth-highest daily average ozone
concentrations (design value or ‘‘DV’’) at
each monitor within an area must not
exceed 0.08 ppm. Based on the
rounding convention described in 40
CFR part 50, appendix I, the standard is
attained if the DV is 0.084 ppm or
below. CAA section 175A requires a
demonstration that the area will
continue to maintain the NAAQS
throughout the duration of the requisite
maintenance period. Consistent with the
prior guidance documents discussed
previously in this document as well as
EPA’s November 20, 2018 ‘‘Resource
Document for 1997 Ozone NAAQS
Areas: Supporting Information for States
Developing Maintenance Plans’’ (2018
Resource Document),11 EPA believes
that if the most recent DV for the area
is well below the NAAQS (e.g. below
85%, or in this case below 0.071 ppm),
the section 175A demonstration
requirement has been met, provided that
Prevention of Significant Deterioration
(PSD) requirements, any control
measures already in the SIP, and any
Federal measures remain in place
through the end of the second 10-year
maintenance period (absent a showing
consistent with section 110(l) that such
measures are not necessary to assure
maintenance).
For the purposes of demonstrating
continued maintenance with the 1997
ozone NAAQS, DEP provided 3-year
DVs for the Altoona Area from 2007 to
2018. This includes DVs for 2005–2007,
2006–2008, 2007–2009, 2008–2010,
2009–2011, 2010–2012, 2011–2013,
2012–2014, 2013–2015, 2014–2016,
2015–2017, and 2016–2018, which are
shown in Table 2.12 In addition, EPA
has reviewed the most recent ambient
air quality monitoring data for ozone in
the Altoona Area, as submitted by
Pennsylvania and recorded in EPA’s Air
Quality System (AQS). The most recent
DV (i.e. 2017–2019) is also shown in
Table 2.13 There is one ambient air
quality monitor located in the Altoona
Area (AQS Site ID 42–013–0801).
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TABLE 2—1997 OZONE NAAQS DESIGN VALUES (ppm) FOR THE ALTOONA AREA
2005–
2007
2006–
2008
2007–
2009
2008–
2010
2009–
2011
2010–
2012
2011–
2013
2012–
2014
2013–
2015
2014–
2016
2015–
2017
2016–
2018
2017–
2019
0.073
0.072
0.070
0.070
0.070
0.075
0.073
0.068
0.064
0.063
0.064
X
0.063
As can be seen in Table 2, DVs in the
Altoona Area have been well below
85% of the 1997 ozone NAAQS (i.e.,
0.071 ppm) since the 2012–2014 design
value. The most recent DV (i.e. 2017–
2019) in the Altoona Area is 0.063 ppm,
which is well below 85% of the 1997
ozone NAAQS. EPA notes that the DV
for 2016–2018 for Altoona is
represented by an ‘‘X’’ in Table 2
because the 2016–2018 DV does not
meet the completeness criteria of 40
CFR part 50 appendix I, which require
that the three-year average data capture
rate be at least 90%.14 The three-year
average data capture for the Altoona
Area monitor for the 2016–2018
monitoring season was 89%. Therefore,
the 2016–2018 DV, calculated as 0.063
ppm, is invalid. According to DEP’s
February 27, 2020 submittal, this was
due to UV lamp instability issues at the
Blair County Monitor (AQS Site ID 42–
013–0801). The issue was resolved and
the monitor continues to record
concentrations that are well below the
1997 ozone NAAQS.15 As Table 2
shows, DVs have remained below 85%
of the 1997 ozone NAAQS since 2012–
2014. Additionally, the previous DV
(2015–2017) and the subsequent DV
(2017–2019) were 0.064 ppm and 0.063
ppm, respectively. Furthermore, in
2017, 2018, and 2019, there were zero
instances in which the Blair County
monitor recorded a highest daily
ambient ozone concentration in excess
of 0.084 ppm.16 Therefore, EPA has a
high level of confidence that there is
very little likelihood of future violations
of the 1997 ozone NAAQS in the
Altoona area, and that Pennsylvania’s
February 27, 2020 submittal is adequate.
Additionally, states can support the
demonstration of continued
maintenance by showing stable or
improving air quality trends. According
to EPA’s 2018 Resource Document,
several kinds of analyses can be
performed by states wishing to make
such a showing. One approach is to take
11 This resource document is included in the
docket for this rulemaking available online at
https://www.regulations.gov, Docket ID: EPA–R03–
OAR–2020–0332 and is also available at https://
www.epa.gov/sites/production/files/2018-11/
documents/ozone_1997_naaqs_lmp_resource_
document_nov_20_2018.pdf.
12 See also Table II–2 of DEP’s February 27, 2020
submittal, included in the docket for this
rulemaking available online at https://
www.regulations.gov, Docket ID: EPA–R03–OAR–
2020–0332.
13 This data is also included in the docket for this
rulemaking available online at https://
www.regulations.gov, Docket ID: EPA–R03–OAR–
2020–0332 and is also available at https://
www.epa.gov/air-trends/air-quality-designvalues#report.
14 40 CFR part 50 appendix I, section 2.3(b) states
that comparison to the 1997 ozone NAAQS is based
on three consecutive, complete calendar years of air
quality monitoring data. ‘‘This requirement is met
for the three-year period at a monitoring site if daily
maximum 8-hour average concentrations are
available for at least 90%, on average, of the days
during the designated ozone monitoring season,
with a minimum data completeness in any one year
of at least 75% of the designated sampling days.’’
15 See FN1 on Page 2 of DEP’s LMP.
16 This data is also included in the docket for this
rulemaking available online at https://
www.regulations.gov, Docket ID: EPA–R03–OAR–
2020–0332 and is also available at https://
www.epa.gov/air-trends/air-quality-designvalues#report.
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the most recent DV for the area and add
the maximum design value increase
(over one or more consecutive years)
that has been observed in the area over
the past several years. A sum that does
not exceed the level of the 1997 ozone
NAAQS may be a good indicator of
expected continued attainment. As
shown in Table 2 in this document, the
largest increases in DVs from 2007 to
2019 was 0.005 ppm, which occurred
between the 2009–2011 (0.070 ppm) and
2010–2012 (0.075 ppm) DVs. Adding
0.005 ppm to the most recent DV of
0.063 ppm results in 0.068 ppm, a sum
that is still below the 1997 ozone
NAAQS.
The Altoona Area has maintained air
quality levels well below the 1997
ozone NAAQS since the Area first
attained the NAAQS in 2005.17
Additional supporting information that
the area is expected to continue to
maintain the standard can be found in
projections of future year DVs that EPA
recently completed to assist states with
the development of interstate transport
SIPs for the 2015 8-hour ozone NAAQS.
Those projections, made for the year
2023, show that the DV for the Altoona
Area is expected to be 0.063 ppm.18
Therefore, EPA proposes to determine
that future violations of the 1997 ozone
NAAQS in the Altoona Area are
unlikely.
C. Continued Air Quality Monitoring
and Verification of Continued
Attainment
Once an area has been redesignated to
attainment, the state remains obligated
to maintain an air quality network in
accordance with 40 CFR part 58, in
order to verify the area’s attainment
status. In the February 27, 2020
submittal, DEP commits to continue to
operate their air monitoring network in
accordance with 40 CFR part 58. DEP
also commits to track the attainment
status of the Altoona Area for the 1997
ozone NAAQS through the review of air
quality and emissions data during the
second maintenance period. This
includes an annual evaluation of
vehicles miles traveled (VMT) and
stationary source emissions data
compared to the assumptions included
in the LMP. DEP also states that it will
evaluate the periodic (i.e. every three
years) emission inventories prepared
under EPA’s Air Emission Reporting
Requirements (40 CFR part 51, subpart
A). Based on these evaluations, DEP will
consider whether any further emission
control measures should be
implemented for the Altoona Area. EPA
has analyzed the commitments in DEP’s
submittal and is proposing to determine
that they meet the requirements for
continued air quality monitoring and
verification of continued attainment.
D. 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. 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 occurs 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 require that the state will
implement all pollution control
measures that were contained in the SIP
before redesignation of the area to
attainment. See section 175(A)(d) of the
CAA.
DEP’s February 27, 2020 submittal
includes a contingency plan for the
Altoona Area. In the event that the
fourth highest 8-hour ozone
concentration at the Blair County
monitor exceeds 84 ppb for two
consecutive years, but prior to an actual
violation of the NAAQS, DEP will
evaluate whether additional local
emission control measures should be
implemented that may prevent a
violation of the NAAQS.19 After
analyzing the conditions causing the
excessive ozone levels, evaluating the
effectiveness of potential corrective
measures, and considering the potential
effects of federal, state, and local
measures that have been adopted but
not yet implemented, DEP will begin the
process of implementing selected
measures so that they can be
implemented as expeditiously as
practicable following a violation of the
NAAQS. In the event of a violation, DEP
commits to adopting additional
emission reduction measures as
expeditiously as practicable in
accordance with the schedule included
in the contingency plan as well as the
CAA and applicable Pennsylvania
statutory requirements.
DEP will use the following criteria
when considering additional emission
reduction measures to adopt to address
a violation of the 1997 ozone NAAQS in
the Altoona County Area: (1) Air quality
analysis indicating the nature of the
violation, including the cause, location,
and source; (2) emission reduction
potential, including extent to which
emission generating sources occur in the
nonattainment area; (3) timeliness of
implementation in terms of the potential
to return the area to attainment as
expeditiously as practicable; and (4)
costs, equity, and cost-effectiveness. The
measures DEP would consider pursuing
for adoption in the Altoona Area
include, but are not limited to, those
summarized in Table 3. If additional
emission reductions are necessary, DEP
commits to adopt additional emission
reduction measures to attain and
maintain the 1997 ozone NAAQS.
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TABLE 3—ALTOONA AREA SECOND MAINTENANCE PLAN CONTINGENCY MEASURES
Non-Regulatory Measures:
Voluntary diesel engine ‘‘chip reflash’’ (installation software to correct the defeat device option on certain heavy-duty diesel engines).
Diesel retrofit (including replacement, repowering or alternative fuel use) for public or private local onroad or offroad fleets.
Idling reduction technology for Class 2 yard locomotives.
Idling reduction technologies or strategies for truck stops, warehouses, and other freight-handling facilities.
Accelerated turnover of lawn and garden equipment, especially commercial equipment, including promotion of electric equipment.
Additional promotion of alternative fuel (e.g. biodiesel) for home heating and agricultural use.
Regulatory Measures: 20
17 As explained in EPA’s June 7, 2007 notice
proposing to redesignate the Altoona Area as
attainment for the 1997 ozone NAAQS (72 FR
31495), the 2003–2005 DV for the Altoona County
Area was 0.077 ppm.
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18 See U.S. EPA, ‘‘Air Quality Modeling Technical
Support Document for the Updated 2023 Projected
Ozone Design Values’’, Office of Air Quality
Planning and Standards, dated June 2018, available
at https://www.epa.gov/airmarkets/air-quality-
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modeling-technical-support-document-updated2023-projected-ozone-design.
19 A violation of the NAAQS occurs when an
area’s 3-year DV exceeds the NAAQS.
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54951
TABLE 3—ALTOONA AREA SECOND MAINTENANCE PLAN CONTINGENCY MEASURES—Continued
Additional control on consumer products.21
Additional controls on portable fuel containers.22
The contingency plan includes
schedules for the adoption and
implementation of both non-regulatory
and regulatory contingency measures,
including schedules for adopting
potential land use planning strategies
not listed in Table 3, which are
summarized in Tables 4 and 5,
respectively.
TABLE 4—IMPLEMENTATION SCHEDULE FOR ALTOONA AREA NON-REGULATORY CONTINGENCY MEASURES
Time after
triggering event
Action
Within 2 months ..............
Within 3 months ..............
DEP will identify stakeholders for potential non-regulatory measures for further development.
If funding is necessary, DEP will identify potential sources of funding and the timeframe for when funds would be
available.
Work with the relevant planning commission(s) to identify potential land use planning strategies and projects with
quantifiable and timely emission benefits. Work with the Pennsylvania Department of Community and Economic
Development and other state agencies to assist these measures.
If state loans or grants are required, DEP will enter into agreements with implementing organizations. DEP will also
quantify projected emission benefits.
DEP will submit revised SIP to EPA.
DEP will implement strategies and projects.
Within 6 months ..............
Within 9 months ..............
Within 12 months ............
Within 12–24 months ......
TABLE 5—IMPLEMENTATION SCHEDULE FOR ALTOONA AREA REGULATORY CONTINGENCY MEASURES
Time after
triggering event
Action
Within 1 month ................
Within 3 months ..............
DEP will submit request to begin regulatory development process.
Request will be reviewed by the Air Quality Technical Advisory Committee (AQTAC), Citizens Advisory Council, and
other advisory committees as appropriate.
Environmental Quality Board (EQB) meeting/action.
DEP will publish regulatory measure in the Pennsylvania Bulletin for comment as proposed rulemaking.
DEP will hold a public hearing and comment period on proposed rulemaking.
House and Senate Standing Committee and Independent Regulatory Review Commission (IRCC) comment on proposed rule.
AQTAC, Citizens Advisory Council, and other committees will review responses to comment(s), if applicable, and the
draft final rulemaking.
EQB meeting/action.
The IRCC will take action on final rulemaking.
Attorney General’s review/action.
DEP will publish the regulatory measure as a final rulemaking in the Pennsylvania Bulletin and submit to EPA as a
SIP revision. The regulation will become effective upon publication in the Pennsylvania Bulletin.
Within
Within
Within
Within
6 months ..............
8 months ..............
10 months ............
11 months ............
Within 13 months ............
jbell on DSKJLSW7X2PROD with PROPOSALS
Within
Within
Within
Within
16
17
18
19
months
months
months
months
............
............
............
............
EPA proposes to find that the
contingency plan included in DEP’s
February 27, 2020 submittal satisfies the
pertinent requirements of CAA section
175A(d). EPA notes that while six of the
potential contingency measures
included in the Commonwealth’s
second maintenance plan are nonregulatory, their inclusion among other
measures is overall SIP-strengthening,
and their inclusion does not alter EPA’s
proposal to find the LMP is fully
approvable. EPA also finds that the
submittal acknowledges Pennsylvania’s
continuing requirement to implement
all pollution control measures that were
contained in the SIP before
redesignation of the Altoona Area to
attainment.
20 These regulatory measures were considered
potential cost-effective and timely control strategies
by the Ozone Transport Commission (OTC) as well
as the Mid-Atlantic Regional Air Management
Association and the Mid-Atlantic/Northeast
Visibility Union. The OTC is a multi-state
organization responsible for developing regional
solutions to ground-level ozone pollution in the
Northeast and Mid-Atlantic, including the
development of model rules that member states may
adopt. OTC member states include: Connecticut,
Delaware, the District of Columbia, Maine,
Maryland, Massachusetts, New Hampshire, New
Jersey, New York, Pennsylvania, Rhode Island,
Vermont, and Virginia. For more information on the
OTC, visit https://otcair.org/index.asp. To view the
model rules developed by the OTC, including those
for consumer products and portable fuel containers,
visit https://otcair.org/
document.asp?fview=modelrules.
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E. Transportation Conformity
Transportation conformity is required
by section 176(c) of the CAA.
Conformity to a SIP means that
transportation activities will not
produce new air quality violations,
worsen existing violations, or delay
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Frm 00007
Fmt 4702
Sfmt 4702
timely attainment of the NAAQS (CAA
176(c)(1)(B)). EPA’s conformity rule at
40 CFR part 93 requires that
transportation plans, programs and
projects conform to SIPs and establish
the criteria and procedures for
determining whether or not they
conform. The conformity rule generally
requires a demonstration that emissions
from the Regional Transportation Plan
(RTP) and Transportation Improvement
Program (TIP) are consistent with the
motor vehicle emissions budget (MVEB)
21 Pennsylvania’s existing controls on consumer
products are under 25 Pa. Code Chapter 130,
Subchapters B and C (38 Pa.B. 5598). This
contingency measure includes the adoption of
additional controls on consumer products such as
VOC limits for adhesive removers.
22 Existing controls on portable fuel containers
can be found under 40 CFR 59 subpart F—Control
of Evaporative Emissions From New and In-Use
Portable Fuel Containers.
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Federal Register / Vol. 85, No. 172 / Thursday, September 3, 2020 / Proposed Rules
contained in the control strategy SIP
revision or maintenance plan (40 CFR
93.101, 93.118, and 93.124). A MVEB is
defined as ‘‘that portion of the total
allowable emissions defined in the
submitted or approved control strategy
implementation plan revision or
maintenance plan for a certain date for
the purpose of meeting reasonable
further progress milestones or
demonstrating attainment or
maintenance of the NAAQS, for any
criteria pollutant or its precursors,
allocated to highway and transit vehicle
use and emissions (40 CFR 93.101).’’
Under the conformity rule, LMP areas
may demonstrate conformity without a
regional emission analysis (40 CFR
93.109(e)). However, because LMP areas
are still maintenance areas, certain
aspects of transportation conformity
determinations still will be required for
transportation plans, programs, and
projects. Specifically, for such
determination, RTPs, TIPs, and
transportation projects still will have to
demonstrate that they are fiscally
constrained (40 CFR 93.108), meet the
criteria for consultation (40 CFR 93.105
and 93.112) and transportation control
measure implementation in the
conformity rule provisions (40 CFR
93.113). Additionally, conformity
determinations for RTPs and TIPs must
be determined no less frequently than
every four years, and conformity of plan
and TIP amendments and transportation
projects is demonstrated in accordance
with the timing requirements specified
in 40 CFR 93.104. In addition, for
projects to be approved, they must come
from a currently conforming RTP and
TIP (40 CFR 93.114 and 93.115). The
Altoona Area remains under the
obligation to meet the applicable
conformity requirements for the 1997
ozone NAAQS.
jbell on DSKJLSW7X2PROD with PROPOSALS
III. Proposed Action
EPA’s review of DEP’s February 27,
2020 submittal indicates that it meets all
applicable CAA requirements,
specifically the requirements of CAA
section 175A. EPA is proposing to
approve the second maintenance plan
for the Altoona Area as a revision to the
Pennsylvania SIP. EPA is soliciting
public comments on the issues
discussed in this document. These
comments will be considered before
taking final action.
IV. 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.
42 U.S.C. 7410(k); 40 CFR 52.02(a).
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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 proposed 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, this proposed
rulemaking, proposing approval of
Pennsylvania’s second maintenance
plan for the Altoona Area, does not have
tribal implications as specified by
Executive Order 13175 (65 FR 67249,
November 9, 2000), because the SIP is
not approved to apply in Indian country
located in the State, and EPA notes that
it will not impose substantial direct
costs on tribal governments or preempt
tribal law.
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List of Subjects in 40 CFR Part 52
Environmental protection, Air
pollution control, Incorporation by
reference, Intergovernmental relations,
Nitrogen dioxide, Ozone, Reporting and
recordkeeping requirements, Volatile
organic compounds.
Dated: August 4, 2020.
Cosmo Servidio,
Regional Administrator, Region III.
[FR Doc. 2020–17422 Filed 9–2–20; 8:45 am]
BILLING CODE 6560–50–P
ENVIRONMENTAL PROTECTION
AGENCY
40 CFR Part 52
[EPA–R09–OAR–2020–0121; FRL–10013–
57–Region 9]
Air Plan Approval; California; South
Coast Air Quality Management District;
Ventura County Air Pollution Control
District
Environmental Protection
Agency (EPA).
ACTION: Proposed rule.
AGENCY:
The Environmental Protection
Agency (EPA) is proposing to approve
revisions to the South Coast Air Quality
Management District (SCAQMD) and
the Ventura County Air Pollution
Control District (VCAPCD) portions of
the California State Implementation
Plan (SIP). These revisions concern
emissions of volatile organic
compounds (VOCs) from the use and
application of industrial adhesives. We
are proposing to approve local rules to
regulate these emission sources under
the Clean Air Act (CAA or the Act). We
are taking comments on this proposal
and plan to follow with a final action.
DATES: Any comments must arrive by
October 5, 2020.
ADDRESSES: Submit your comments,
identified by Docket ID No. EPA–R09–
OAR–2020–0121 at https://
www.regulations.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. The 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
SUMMARY:
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]]>Agencies
[Federal Register Volume 85, Number 172 (Thursday, September 3, 2020)]
[Proposed Rules]
[Pages 54947-54952]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2020-17422]
=======================================================================
-----------------------------------------------------------------------
ENVIRONMENTAL PROTECTION AGENCY
40 CFR Part 52
[EPA-R03-OAR-2020-0332; FRL-10013-24-Region 3]
Air Plan Approval; Pennsylvania; 1997 8-Hour Ozone National Air
Quality Standard (NAAQS) Second Maintenance Plan for the Altoona (Blair
County) Area
AGENCY: Environmental Protection Agency (EPA).
ACTION: Proposed rule.
-----------------------------------------------------------------------
SUMMARY: The Environmental Protection Agency (EPA) is proposing to
approve a state implementation plan (SIP) revision submitted by the
Commonwealth of Pennsylvania. This revision pertains to the
Commonwealth's plan, submitted by the Pennsylvania Department of
Environmental Protection (DEP), for maintaining the 1997 8-hour ozone
national ambient air quality standard (NAAQS) (referred to as the
``1997 ozone NAAQS'') in the Altoona, Blair County, Pennsylvania area
(Altoona Area). This action is being taken under the Clean Air Act
(CAA).
DATES: Written comments must be received on or before October 5, 2020.
ADDRESSES: Submit your comments, identified by Docket ID No. EPA-R03-
OAR-2020-0332 at https://www.regulations.gov, or via email to
[email protected]. 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://www.epa.gov/dockets/commenting-epa-dockets.
FOR FURTHER INFORMATION CONTACT: David Talley, Planning &
Implementation Branch (3AD30), Air & Radiation Division, U.S.
Environmental Protection Agency, Region III, 1650 Arch Street,
Philadelphia, Pennsylvania 19103. The telephone number is (215) 814-
2117. Mr. Talley can also be reached via electronic mail at
[email protected].
SUPPLEMENTARY INFORMATION: On February 27, 2020, DEP submitted a
revision to the Pennsylvania SIP to incorporate a plan for maintaining
the 1997 ozone NAAQS in the Altoona Area through August 1, 2027, in
accordance with CAA section 175A.
I. Background
In 1979, under section 109 of the CAA, EPA established primary and
secondary NAAQS for ozone at 0.12 parts per million (ppm), averaged
over a 1-hour period. 44 FR 8202 (February 8, 1979). On July 18, 1997
(62 FR 38856),\1\ EPA revised the primary and secondary NAAQS for ozone
to set the acceptable level of ozone in the ambient air at 0.08 ppm,
averaged over an 8-hour period. EPA set the 1997 ozone NAAQS based on
scientific evidence demonstrating that ozone causes adverse health
effects at lower concentrations and over longer periods of time than
was understood when the pre-existing 1-hour ozone NAAQS was set.
---------------------------------------------------------------------------
\1\ In March 2008, EPA completed another review of the primary
and secondary ozone standards and tightened them further by lowering
the level for both to 0.075 ppm. 73 FR 16436 (March 27, 2008).
Additionally, in October 2015, EPA completed a review of the primary
and secondary ozone standards and tightened them by lowering the
level for both to 0.70 ppm. 80 FR 65292 (October 26, 2015).
---------------------------------------------------------------------------
Following promulgation of a new or revised NAAQS, EPA is required
by the CAA to designate areas throughout the nation as attaining or not
attaining the NAAQS. On April 30, 2004 (69 FR 23858), EPA designated
the Altoona Area, which comprises Blair County, Pennsylvania, as
nonattainment for the 1997 ozone NAAQS.
Once a nonattainment area has three years of complete and certified
air quality data that has been determined to attain the NAAQS, and the
area has met the other criteria outlined in CAA section
107(d)(3)(E),\2\ the state can
[[Page 54948]]
submit a request to EPA to redesignate the area to attainment. Areas
that have been redesignated by EPA from nonattainment to attainment are
referred to as ``maintenance areas.'' One of the criteria for
redesignation is to have an approved maintenance plan under CAA section
175A. The maintenance plan must demonstrate that the area will continue
to maintain the standard for the period extending 10 years after
redesignation, and it must contain such additional measures as
necessary to ensure maintenance as well as contingency measures as
necessary to assure that violations of the standard will be promptly
corrected.
---------------------------------------------------------------------------
\2\ The requirements of CAA section 107(d)(3)(E) include
attainment of the NAAQS, full approval under section 110(k) of the
applicable SIP, determination that improvement in air quality is a
result of permanent and enforceable reductions in emissions,
demonstration that the state has met all applicable section 110 and
part D requirements, and a fully approved maintenance plan under CAA
section 175A.
---------------------------------------------------------------------------
On August 1, 2007 (72 FR 41906 effective August 1, 2007), EPA
approved a redesignation request (and maintenance plan) from DEP for
the Altoona Area. In accordance with section 175A(b), at the end of the
eighth year after the effective date of the redesignation, the state
must also submit a second maintenance plan to ensure ongoing
maintenance of the standard for an additional 10 years.
EPA's final implementation rule for the 2008 ozone NAAQS revoked
the 1997 ozone NAAQS and provided that one consequence of revocation
was that areas that had been redesignated to attainment (i.e,
maintenance areas) for the 1997 ozone NAAQS no longer needed to submit
second 10-year maintenance plans under CAA section 175A(b).\3\ However,
in South Coast Air Quality Management District v. EPA \4\ (South Coast
II), the United States Court of Appeals for the District of Columbia
(D.C. Circuit) vacated EPA's interpretation that, because of the
revocation of the 1997 ozone standard, second maintenance plans were
not required for ``orphan maintenance areas,'' (i.e., areas like the
Altoona Area) that had been redesignated to attainment for the 1997
ozone NAAQS and were designated attainment for the 2008 ozone NAAQS.
Thus, states with these ``orphan maintenance areas'' under the 1997
ozone NAAQS must submit maintenance plans for the second maintenance
period.
---------------------------------------------------------------------------
\3\ See 80 FR 12315 (March 6, 2015).
\4\ 882 F.3d 1138 (D.C. Cir. 2018).
---------------------------------------------------------------------------
As previously discussed, CAA section 175A sets forth the criteria
for adequate maintenance plans. In addition, EPA has published
longstanding guidance that provides further insight on the content of
an approvable maintenance plan, explaining that a maintenance plan
should address five elements: (1) An attainment emissions inventory;
(2) a maintenance demonstration; (3) a commitment for continued air
quality monitoring; (4) a process for verification of continued
attainment; and (5) a contingency plan. The 1992 Calcagni Memo \5\
provides that states may generally demonstrate maintenance by either
performing air quality modeling to show that the future mix of sources
and emission rates will not cause a violation of the NAAQS or by
showing that future emissions of a pollutant and its precursors will
not exceed the level of emissions during a year when the area was
attaining the NAAQS (i.e., attainment year inventory). See 1992
Calcagni Memo at p. 9. EPA further clarified in three subsequent
guidance memos describing the conditions for allowing the submittal of
less rigorous ``limited maintenance plans'' (LMPs) \6\ that the
requirements of CAA section 175A could be met by demonstrating that the
area's design value \7\ was well below the NAAQS and that the
historical stability of the area's air quality levels showed that the
area was unlikely to violate the NAAQS in the future. Specifically, EPA
believes that if the most recent air quality design value for the area
is at a level that is below 85% of the standard, or in this case below
0.071 ppm, then EPA considers the state to have met the section 175A
requirement for a demonstration that the area will maintain the NAAQS
for the requisite period. Accordingly, on February 27, 2020, DEP
submitted an LMP for the Altoona Area, following EPA's LMP guidance and
demonstrating that the area will maintain the 1997 ozone NAAQS through
August 1, 2027, i.e., through the entire 20-year maintenance period.
---------------------------------------------------------------------------
\5\ ``Procedures for Processing Requests to Redesignate Areas to
Attainment,'' Memorandum from John Calcagni, Director, Air Quality
Management Division, September 4, 1992 (1992 Calcagni Memo).
\6\ See ``Limited Maintenance Plan Option for Nonclassifiable
Ozone Nonattainment Areas'' from Sally L. Shaver, Office of Air
Quality Planning and Standards (OAQPS), dated November 16, 1994;
``Limited Maintenance Plan Option for Nonclassifiable CO
Nonattainment Areas'' from Joseph Paisie, OAQPS, dated October 6,
1995; and ``Limited Maintenance Plan Option for Moderate
PM10 Nonattainment Areas'' from Lydia Wegman, OAQPS,
dated August 9, 2001.
\7\ The ozone design value for a monitoring site is the 3-year
average of the annual fourth-highest daily maximum 8-hour average
ozone concentrations. The design value for an ozone nonattainment
area is the highest design value of any monitoring site in the area.
---------------------------------------------------------------------------
II. Summary of SIP Revision and EPA Analysis
DEP's February 27, 2020 SIP submittal outlines a plan for continued
maintenance of the 1997 ozone NAAQS which addresses the criteria set
forth in the 1992 Calcagni Memo as follows.
A. Attainment Emissions Inventory
For maintenance plans, a state should develop a comprehensive and
accurate inventory of actual emissions for an attainment year which
identifies the level of emissions in the area which is sufficient to
maintain the NAAQS. The inventory should be developed consistent with
EPA's most recent guidance. For ozone, the inventory should be based on
typical summer day's emissions of nitrogen oxides (NOX) and
volatile organic compounds (VOC), the precursors to ozone formation. In
the first maintenance plan for the Altoona Area, DEP used 2004 for the
attainment year inventory, because 2004 was one of the years in the
2003-2005 three-year period when the area first attained the 1997 ozone
NAAQS.\8\ The Altoona Area continued to monitor attainment of the 1997
ozone NAAQS in 2014. Therefore, the emissions inventory from 2014
represents emissions levels conducive to continued attainment (i.e.,
maintenance) of the NAAQS. Thus, DEP is using 2014 as representing
attainment level emissions for its second maintenance plan.
Pennsylvania used 2014 summer day emissions from EPA's 2014 version 7.0
modeling platform as the basis for the 2014 inventory presented in
Table 1.\9\
---------------------------------------------------------------------------
\8\ For more information, see EPA's June 7, 2007 notice
proposing to redesignate the Altoona Area to attainment for the 1997
ozone NAAQS (72 FR 31495).
\9\ For more information, visit https://www.epa.gov/sites/production/files/2018-11/ozone_1997_naaqs_emiss_inv_data_nov_19_2018_0.xlsx.
Table 1--2014 Typical Summer Day NOX and VOC Emissions for the Altoona
Area
(Tons/day)
------------------------------------------------------------------------
NOX VOC
Source category emissions emissions
------------------------------------------------------------------------
Point........................................... 2.51 0.90
Nonpoint........................................ 3.73 6.96
Onroad.......................................... 4.49 2.27
Nonroad......................................... 0.77 0.77
-----------------------
Total....................................... 11.50 11.90
------------------------------------------------------------------------
The data shown in Table 1 is based on the 2014 National Emissions
Inventory (NEI) version 2.\10\ The inventory addresses four
anthropogenic emission
[[Page 54949]]
source categories: Stationary (point) sources, stationary nonpoint
(area) sources, nonroad mobile, and onroad mobile sources. Point
sources are stationary sources that have the potential to emit (PTE)
more than 100 tons per year (tpy) of VOC, or more than 50 tpy of
NOX, and which are required to obtain an operating permit.
Data are collected for each source at a facility and reported to DEP.
Examples of point sources include kraft mills, electrical generating
units (EGUs), and pharmaceutical factories. Nonpoint sources include
emissions from equipment, operations, and activities that are numerous
and in total have significant emissions. Examples include emissions
from commercial and consumer products, portable fuel containers, home
heating, repair and refinishing operations, and crematories. The onroad
emissions sector includes emissions from engines used primarily to
propel equipment on highways and other roads, including passenger
vehicles, motorcycles, and heavy-duty diesel trucks. The nonroad
emissions sector includes emissions from engines that are not primarily
used to propel transportation equipment, such as generators, forklifts,
and marine pleasure craft. EPA reviewed the emissions inventory
submitted by DEP and proposes to conclude that the plan's inventory is
acceptable for the purposes of a subsequent maintenance plan under CAA
section 175A(b).
---------------------------------------------------------------------------
\10\ The NEI is a comprehensive and detailed estimate of air
emissions of criteria pollutants, criteria precursors, and hazardous
air pollutants from air emissions sources. The NEI is released every
three years based primarily upon data provided by State, Local, and
Tribal air agencies for sources in their jurisdictions and
supplemented by data developed by EPA.
---------------------------------------------------------------------------
B. Maintenance Demonstration
In order to attain the 1997 ozone NAAQS, the three-year average of
the fourth-highest daily average ozone concentrations (design value or
``DV'') at each monitor within an area must not exceed 0.08 ppm. Based
on the rounding convention described in 40 CFR part 50, appendix I, the
standard is attained if the DV is 0.084 ppm or below. CAA section 175A
requires a demonstration that the area will continue to maintain the
NAAQS throughout the duration of the requisite maintenance period.
Consistent with the prior guidance documents discussed previously in
this document as well as EPA's November 20, 2018 ``Resource Document
for 1997 Ozone NAAQS Areas: Supporting Information for States
Developing Maintenance Plans'' (2018 Resource Document),\11\ EPA
believes that if the most recent DV for the area is well below the
NAAQS (e.g. below 85%, or in this case below 0.071 ppm), the section
175A demonstration requirement has been met, provided that Prevention
of Significant Deterioration (PSD) requirements, any control measures
already in the SIP, and any Federal measures remain in place through
the end of the second 10-year maintenance period (absent a showing
consistent with section 110(l) that such measures are not necessary to
assure maintenance).
---------------------------------------------------------------------------
\11\ This resource document is included in the docket for this
rulemaking available online at https://www.regulations.gov, Docket
ID: EPA-R03-OAR-2020-0332 and is also available at https://www.epa.gov/sites/production/files/2018-11/documents/ozone_1997_naaqs_lmp_resource_document_nov_20_2018.pdf.
---------------------------------------------------------------------------
For the purposes of demonstrating continued maintenance with the
1997 ozone NAAQS, DEP provided 3-year DVs for the Altoona Area from
2007 to 2018. This includes DVs for 2005-2007, 2006-2008, 2007-2009,
2008-2010, 2009-2011, 2010-2012, 2011-2013, 2012-2014, 2013-2015, 2014-
2016, 2015-2017, and 2016-2018, which are shown in Table 2.\12\ In
addition, EPA has reviewed the most recent ambient air quality
monitoring data for ozone in the Altoona Area, as submitted by
Pennsylvania and recorded in EPA's Air Quality System (AQS). The most
recent DV (i.e. 2017-2019) is also shown in Table 2.\13\ There is one
ambient air quality monitor located in the Altoona Area (AQS Site ID
42-013-0801).
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\12\ See also Table II-2 of DEP's February 27, 2020 submittal,
included in the docket for this rulemaking available online at
https://www.regulations.gov, Docket ID: EPA-R03-OAR-2020-0332.
\13\ This data is also included in the docket for this
rulemaking available online at https://www.regulations.gov, Docket
ID: EPA-R03-OAR-2020-0332 and is also available at https://www.epa.gov/air-trends/air-quality-design-values#report.
Table 2--1997 Ozone NAAQS Design Values (ppm) for the Altoona Area
--------------------------------------------------------------------------------------------------------------------------------------------------------
2005-2007 2006-2008 2007-2009 2008-2010 2009-2011 2010-2012 2011-2013 2012-2014 2013-2015 2014-2016 2015-2017 2016-2018 2017-2019
--------------------------------------------------------------------------------------------------------------------------------------------------------
0.073 0.072 0.070 0.070 0.070 0.075 0.073 0.068 0.064 0.063 0.064 X 0.063
--------------------------------------------------------------------------------------------------------------------------------------------------------
As can be seen in Table 2, DVs in the Altoona Area have been well
below 85% of the 1997 ozone NAAQS (i.e., 0.071 ppm) since the 2012-2014
design value. The most recent DV (i.e. 2017-2019) in the Altoona Area
is 0.063 ppm, which is well below 85% of the 1997 ozone NAAQS. EPA
notes that the DV for 2016-2018 for Altoona is represented by an ``X''
in Table 2 because the 2016-2018 DV does not meet the completeness
criteria of 40 CFR part 50 appendix I, which require that the three-
year average data capture rate be at least 90%.\14\ The three-year
average data capture for the Altoona Area monitor for the 2016-2018
monitoring season was 89%. Therefore, the 2016-2018 DV, calculated as
0.063 ppm, is invalid. According to DEP's February 27, 2020 submittal,
this was due to UV lamp instability issues at the Blair County Monitor
(AQS Site ID 42-013-0801). The issue was resolved and the monitor
continues to record concentrations that are well below the 1997 ozone
NAAQS.\15\ As Table 2 shows, DVs have remained below 85% of the 1997
ozone NAAQS since 2012-2014. Additionally, the previous DV (2015-2017)
and the subsequent DV (2017-2019) were 0.064 ppm and 0.063 ppm,
respectively. Furthermore, in 2017, 2018, and 2019, there were zero
instances in which the Blair County monitor recorded a highest daily
ambient ozone concentration in excess of 0.084 ppm.\16\ Therefore, EPA
has a high level of confidence that there is very little likelihood of
future violations of the 1997 ozone NAAQS in the Altoona area, and that
Pennsylvania's February 27, 2020 submittal is adequate.
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\14\ 40 CFR part 50 appendix I, section 2.3(b) states that
comparison to the 1997 ozone NAAQS is based on three consecutive,
complete calendar years of air quality monitoring data. ``This
requirement is met for the three-year period at a monitoring site if
daily maximum 8-hour average concentrations are available for at
least 90%, on average, of the days during the designated ozone
monitoring season, with a minimum data completeness in any one year
of at least 75% of the designated sampling days.''
\15\ See FN1 on Page 2 of DEP's LMP.
\16\ This data is also included in the docket for this
rulemaking available online at https://www.regulations.gov, Docket
ID: EPA-R03-OAR-2020-0332 and is also available at https://www.epa.gov/air-trends/air-quality-design-values#report.
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Additionally, states can support the demonstration of continued
maintenance by showing stable or improving air quality trends.
According to EPA's 2018 Resource Document, several kinds of analyses
can be performed by states wishing to make such a showing. One approach
is to take
[[Page 54950]]
the most recent DV for the area and add the maximum design value
increase (over one or more consecutive years) that has been observed in
the area over the past several years. A sum that does not exceed the
level of the 1997 ozone NAAQS may be a good indicator of expected
continued attainment. As shown in Table 2 in this document, the largest
increases in DVs from 2007 to 2019 was 0.005 ppm, which occurred
between the 2009-2011 (0.070 ppm) and 2010-2012 (0.075 ppm) DVs. Adding
0.005 ppm to the most recent DV of 0.063 ppm results in 0.068 ppm, a
sum that is still below the 1997 ozone NAAQS.
The Altoona Area has maintained air quality levels well below the
1997 ozone NAAQS since the Area first attained the NAAQS in 2005.\17\
Additional supporting information that the area is expected to continue
to maintain the standard can be found in projections of future year DVs
that EPA recently completed to assist states with the development of
interstate transport SIPs for the 2015 8-hour ozone NAAQS. Those
projections, made for the year 2023, show that the DV for the Altoona
Area is expected to be 0.063 ppm.\18\ Therefore, EPA proposes to
determine that future violations of the 1997 ozone NAAQS in the Altoona
Area are unlikely.
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\17\ As explained in EPA's June 7, 2007 notice proposing to
redesignate the Altoona Area as attainment for the 1997 ozone NAAQS
(72 FR 31495), the 2003-2005 DV for the Altoona County Area was
0.077 ppm.
\18\ See U.S. EPA, ``Air Quality Modeling Technical Support
Document for the Updated 2023 Projected Ozone Design Values'',
Office of Air Quality Planning and Standards, dated June 2018,
available at https://www.epa.gov/airmarkets/air-quality-modeling-technical-support-document-updated-2023-projected-ozone-design.
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C. Continued Air Quality Monitoring and Verification of Continued
Attainment
Once an area has been redesignated to attainment, the state remains
obligated to maintain an air quality network in accordance with 40 CFR
part 58, in order to verify the area's attainment status. In the
February 27, 2020 submittal, DEP commits to continue to operate their
air monitoring network in accordance with 40 CFR part 58. DEP also
commits to track the attainment status of the Altoona Area for the 1997
ozone NAAQS through the review of air quality and emissions data during
the second maintenance period. This includes an annual evaluation of
vehicles miles traveled (VMT) and stationary source emissions data
compared to the assumptions included in the LMP. DEP also states that
it will evaluate the periodic (i.e. every three years) emission
inventories prepared under EPA's Air Emission Reporting Requirements
(40 CFR part 51, subpart A). Based on these evaluations, DEP will
consider whether any further emission control measures should be
implemented for the Altoona Area. EPA has analyzed the commitments in
DEP's submittal and is proposing to determine that they meet the
requirements for continued air quality monitoring and verification of
continued attainment.
D. 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. 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 occurs 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 require that the state will implement all
pollution control measures that were contained in the SIP before
redesignation of the area to attainment. See section 175(A)(d) of the
CAA.
DEP's February 27, 2020 submittal includes a contingency plan for
the Altoona Area. In the event that the fourth highest 8-hour ozone
concentration at the Blair County monitor exceeds 84 ppb for two
consecutive years, but prior to an actual violation of the NAAQS, DEP
will evaluate whether additional local emission control measures should
be implemented that may prevent a violation of the NAAQS.\19\ After
analyzing the conditions causing the excessive ozone levels, evaluating
the effectiveness of potential corrective measures, and considering the
potential effects of federal, state, and local measures that have been
adopted but not yet implemented, DEP will begin the process of
implementing selected measures so that they can be implemented as
expeditiously as practicable following a violation of the NAAQS. In the
event of a violation, DEP commits to adopting additional emission
reduction measures as expeditiously as practicable in accordance with
the schedule included in the contingency plan as well as the CAA and
applicable Pennsylvania statutory requirements.
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\19\ A violation of the NAAQS occurs when an area's 3-year DV
exceeds the NAAQS.
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DEP will use the following criteria when considering additional
emission reduction measures to adopt to address a violation of the 1997
ozone NAAQS in the Altoona County Area: (1) Air quality analysis
indicating the nature of the violation, including the cause, location,
and source; (2) emission reduction potential, including extent to which
emission generating sources occur in the nonattainment area; (3)
timeliness of implementation in terms of the potential to return the
area to attainment as expeditiously as practicable; and (4) costs,
equity, and cost-effectiveness. The measures DEP would consider
pursuing for adoption in the Altoona Area include, but are not limited
to, those summarized in Table 3. If additional emission reductions are
necessary, DEP commits to adopt additional emission reduction measures
to attain and maintain the 1997 ozone NAAQS.
Table 3--Altoona Area Second Maintenance Plan Contingency Measures
------------------------------------------------------------------------
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Non-Regulatory Measures:
Voluntary diesel engine ``chip reflash'' (installation software to
correct the defeat device option on certain heavy-duty diesel
engines).
Diesel retrofit (including replacement, repowering or alternative
fuel use) for public or private local onroad or offroad fleets.
Idling reduction technology for Class 2 yard locomotives.
Idling reduction technologies or strategies for truck stops,
warehouses, and other freight-handling facilities.
Accelerated turnover of lawn and garden equipment, especially
commercial equipment, including promotion of electric equipment.
Additional promotion of alternative fuel (e.g. biodiesel) for home
heating and agricultural use.
Regulatory Measures: \20\
[[Page 54951]]
Additional control on consumer products.\21\
Additional controls on portable fuel containers.\22\
------------------------------------------------------------------------
The contingency plan includes schedules for the adoption and
implementation of both non-regulatory and regulatory contingency
measures, including schedules for adopting potential land use planning
strategies not listed in Table 3, which are summarized in Tables 4 and
5, respectively.
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\20\ These regulatory measures were considered potential cost-
effective and timely control strategies by the Ozone Transport
Commission (OTC) as well as the Mid-Atlantic Regional Air Management
Association and the Mid-Atlantic/Northeast Visibility Union. The OTC
is a multi-state organization responsible for developing regional
solutions to ground-level ozone pollution in the Northeast and Mid-
Atlantic, including the development of model rules that member
states may adopt. OTC member states include: Connecticut, Delaware,
the District of Columbia, Maine, Maryland, Massachusetts, New
Hampshire, New Jersey, New York, Pennsylvania, Rhode Island,
Vermont, and Virginia. For more information on the OTC, visit
https://otcair.org/index.asp. To view the model rules developed by
the OTC, including those for consumer products and portable fuel
containers, visit https://otcair.org/document.asp?fview=modelrules.
\21\ Pennsylvania's existing controls on consumer products are
under 25 Pa. Code Chapter 130, Subchapters B and C (38 Pa.B. 5598).
This contingency measure includes the adoption of additional
controls on consumer products such as VOC limits for adhesive
removers.
\22\ Existing controls on portable fuel containers can be found
under 40 CFR 59 subpart F--Control of Evaporative Emissions From New
and In-Use Portable Fuel Containers.
Table 4--Implementation Schedule for Altoona Area Non-Regulatory
Contingency Measures
------------------------------------------------------------------------
Time after triggering event Action
------------------------------------------------------------------------
Within 2 months............... DEP will identify stakeholders for
potential non-regulatory measures for
further development.
Within 3 months............... If funding is necessary, DEP will
identify potential sources of funding
and the timeframe for when funds would
be available.
Within 6 months............... Work with the relevant planning
commission(s) to identify potential
land use planning strategies and
projects with quantifiable and timely
emission benefits. Work with the
Pennsylvania Department of Community
and Economic Development and other
state agencies to assist these
measures.
Within 9 months............... If state loans or grants are required,
DEP will enter into agreements with
implementing organizations. DEP will
also quantify projected emission
benefits.
Within 12 months.............. DEP will submit revised SIP to EPA.
Within 12-24 months........... DEP will implement strategies and
projects.
------------------------------------------------------------------------
Table 5--Implementation Schedule for Altoona Area Regulatory Contingency
Measures
------------------------------------------------------------------------
Time after triggering event Action
------------------------------------------------------------------------
Within 1 month................ DEP will submit request to begin
regulatory development process.
Within 3 months............... Request will be reviewed by the Air
Quality Technical Advisory Committee
(AQTAC), Citizens Advisory Council, and
other advisory committees as
appropriate.
Within 6 months............... Environmental Quality Board (EQB)
meeting/action.
Within 8 months............... DEP will publish regulatory measure in
the Pennsylvania Bulletin for comment
as proposed rulemaking.
Within 10 months.............. DEP will hold a public hearing and
comment period on proposed rulemaking.
Within 11 months.............. House and Senate Standing Committee and
Independent Regulatory Review
Commission (IRCC) comment on proposed
rule.
Within 13 months.............. AQTAC, Citizens Advisory Council, and
other committees will review responses
to comment(s), if applicable, and the
draft final rulemaking.
Within 16 months.............. EQB meeting/action.
Within 17 months.............. The IRCC will take action on final
rulemaking.
Within 18 months.............. Attorney General's review/action.
Within 19 months.............. DEP will publish the regulatory measure
as a final rulemaking in the
Pennsylvania Bulletin and submit to EPA
as a SIP revision. The regulation will
become effective upon publication in
the Pennsylvania Bulletin.
------------------------------------------------------------------------
EPA proposes to find that the contingency plan included in DEP's
February 27, 2020 submittal satisfies the pertinent requirements of CAA
section 175A(d). EPA notes that while six of the potential contingency
measures included in the Commonwealth's second maintenance plan are
non-regulatory, their inclusion among other measures is overall SIP-
strengthening, and their inclusion does not alter EPA's proposal to
find the LMP is fully approvable. EPA also finds that the submittal
acknowledges Pennsylvania's continuing requirement to implement all
pollution control measures that were contained in the SIP before
redesignation of the Altoona Area to attainment.
E. Transportation Conformity
Transportation conformity is required by section 176(c) of the CAA.
Conformity to a SIP means that transportation activities will not
produce new air quality violations, worsen existing violations, or
delay timely attainment of the NAAQS (CAA 176(c)(1)(B)). EPA's
conformity rule at 40 CFR part 93 requires that transportation plans,
programs and projects conform to SIPs and establish the criteria and
procedures for determining whether or not they conform. The conformity
rule generally requires a demonstration that emissions from the
Regional Transportation Plan (RTP) and Transportation Improvement
Program (TIP) are consistent with the motor vehicle emissions budget
(MVEB)
[[Page 54952]]
contained in the control strategy SIP revision or maintenance plan (40
CFR 93.101, 93.118, and 93.124). A MVEB is defined as ``that portion of
the total allowable emissions defined in the submitted or approved
control strategy implementation plan revision or maintenance plan for a
certain date for the purpose of meeting reasonable further progress
milestones or demonstrating attainment or maintenance of the NAAQS, for
any criteria pollutant or its precursors, allocated to highway and
transit vehicle use and emissions (40 CFR 93.101).''
Under the conformity rule, LMP areas may demonstrate conformity
without a regional emission analysis (40 CFR 93.109(e)). However,
because LMP areas are still maintenance areas, certain aspects of
transportation conformity determinations still will be required for
transportation plans, programs, and projects. Specifically, for such
determination, RTPs, TIPs, and transportation projects still will have
to demonstrate that they are fiscally constrained (40 CFR 93.108), meet
the criteria for consultation (40 CFR 93.105 and 93.112) and
transportation control measure implementation in the conformity rule
provisions (40 CFR 93.113). Additionally, conformity determinations for
RTPs and TIPs must be determined no less frequently than every four
years, and conformity of plan and TIP amendments and transportation
projects is demonstrated in accordance with the timing requirements
specified in 40 CFR 93.104. In addition, for projects to be approved,
they must come from a currently conforming RTP and TIP (40 CFR 93.114
and 93.115). The Altoona Area remains under the obligation to meet the
applicable conformity requirements for the 1997 ozone NAAQS.
III. Proposed Action
EPA's review of DEP's February 27, 2020 submittal indicates that it
meets all applicable CAA requirements, specifically the requirements of
CAA section 175A. EPA is proposing to approve the second maintenance
plan for the Altoona Area as a revision to the Pennsylvania SIP. EPA is
soliciting public comments on the issues discussed in this document.
These comments will be considered before taking final action.
IV. 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. 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 proposed 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, this proposed rulemaking, proposing approval of
Pennsylvania's second maintenance plan for the Altoona Area, does not
have tribal implications as specified by Executive Order 13175 (65 FR
67249, November 9, 2000), because the SIP is not approved to apply in
Indian country located in the State, and EPA notes that it will not
impose substantial direct costs on tribal governments or preempt tribal
law.
List of Subjects in 40 CFR Part 52
Environmental protection, Air pollution control, Incorporation by
reference, Intergovernmental relations, Nitrogen dioxide, Ozone,
Reporting and recordkeeping requirements, Volatile organic compounds.
Dated: August 4, 2020.
Cosmo Servidio,
Regional Administrator, Region III.
[FR Doc. 2020-17422 Filed 9-2-20; 8:45 am]
BILLING CODE 6560-50-P
