Air Plan Approval; ID: Logan Utah-Idaho PM2.5, 9884-9893 [2021-03031]
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9884
Proposed Rules
Federal Register
Vol. 86, No. 30
Wednesday, February 17, 2021
This section of the FEDERAL REGISTER
contains notices to the public of the proposed
issuance of rules and regulations. The
purpose of these notices is to give interested
persons an opportunity to participate in the
rule making prior to the adoption of the final
rules.
ENVIRONMENTAL PROTECTION
AGENCY
40 CFR Parts 52 and 81
[EPA–R10–OAR–2020–0190; FRL–10014–
37–Region 10]
Air Plan Approval; ID: Logan UtahIdaho PM2.5 Redesignation to
Attainment and Maintenance Plan
Environmental Protection
Agency (EPA).
ACTION: Proposed rule.
AGENCY:
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FOR FURTHER INFORMATION CONTACT:
The Environmental Protection
Agency (EPA) is proposing to
redesignate the Idaho portion of the
Logan, Utah-Idaho fine particulate
matter (PM2.5) nonattainment area
(Logan UT-ID NAA) to attainment for
the 2006 PM2.5 National Ambient Air
Quality Standard (NAAQS). EPA is also
proposing to approve a maintenance
plan for the area demonstrating
continued compliance with the 2006
PM2.5 NAAQS through 2031, which the
Idaho Department of Environmental
Quality (IDEQ) submitted along with the
redesignation request on September 13,
2019, for inclusion into the Idaho State
Implementation Plan (SIP).
Additionally, EPA is proposing to
approve the 2031 motor vehicle
emissions budgets included in Idaho’s
maintenance plan for PM2.5, nitrogen
oxides (NOX) and volatile organic
compounds (VOC). EPA is proposing
this action pursuant to the Clean Air Act
(CAA or the Act).
DATES: Comments must be received on
or before March 19, 2021.
ADDRESSES: Submit your comments,
identified by Docket ID No. EPA–R10–
OAR–2020–0190, at https://
www.regulations.gov. Follow the online
instructions for submitting comments.
Once submitted, comments cannot be
edited or removed from Regulations.gov.
EPA may publish any comment received
to its public docket. Do not
electronically submit any information
you consider to be Confidential
Business Information (CBI) or other
SUMMARY:
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information the disclosure of which 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, 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-epadockets.
Adam Clark, (206) 553–1495,
clark.adam@epa.gov.
SUPPLEMENTARY INFORMATION:
Throughout this document whenever
‘‘we,’’ ‘‘us,’’ or ‘‘our’’ is used, it is
intended to refer to EPA.
Table of Contents
I. Background
II. Requirements for Redesignation to
Attainment
III. EPA’s Analysis of Idaho’s Submittal
A. Attainment Determination
B. Applicable Requirements Under Section
110 and Part D of the CAA
1. CAA Section 110 General SIP
Requirements
2. Part D of Title I Requirements
3. Fully Approved SIP Under CAA Section
110(k)
C. Improvement in Air Quality Due to
Permanent and Enforceable Measures
D. Fully Approved Maintenance Plan
1. Attainment Inventory
2. Maintenance Demonstration
3. Monitoring Network
4. Verification of Continued Attainment
5. Contingency Plan
E. Requirements for Transportation
Conformity and Motor Vehicle Emissions
Budgets (MVEBs)
IV. Proposed Action
V. Statutory and Executive Order Reviews
I. Background
On October 17, 2006 (71 FR 61144),
EPA revised the level of the 24-hour
PM2.5 NAAQS, lowering the primary
and secondary standards from the 1997
standard of 65 micrograms per cubic
meter (mg/m3) to 35 mg/m3. On
November 13, 2009, EPA designated a
portion of Franklin County, Idaho in
addition to portions of Cache County,
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Utah nonattainment for the 2006 24hour PM2.5 NAAQS (74 FR 58688). This
cross-boundary nonattainment area is
referred to as the Logan, UT-ID PM2.5
NAA.
The boundaries of the Logan, UT-ID
PM2.5 NAA roughly conform to the
geographic boundaries of the Cache
Valley. The Cache Valley is an isolated,
bowl-shaped valley measuring
approximately 60 kilometers north to
south and 20 kilometers east to west and
almost entirely surrounded by mountain
ranges. The Wellsville Mountains lie to
the west, and on the east lie the Bear
River Mountains; both are northern
branches of the Wasatch Range. This
topography can act as a barrier to air
movement in the Cache Valley during
temperature inversions, which occur in
the winter months and are often the
cause of elevated concentrations of fine
particulates. Additional information
pertaining to the unique issues
associated with the Logan, UT-ID PM2.5
NAA and studies completed on
inversions can be found in the docket
for Utah and Idaho in the November 13,
2009, final designations action for the
2006 24-Hour PM2.5 NAAQS (74 FR
58688).
The nonattainment designation of the
Logan UT-ID PM2.5 NAA required Idaho
to prepare and submit an attainment
plan to meet statutory and regulatory
requirements in the Idaho portion of the
Logan, UT-ID PM2.5 NAA.1 IDEQ
submitted this attainment plan to EPA
on December 14, 2012, and
supplemented the attainment plan on
December 24, 2014. The attainment plan
addressed specific required elements,
including but not limited to the
following elements: Emissions
inventory, Reasonably Available Control
Measures/Technology (RACM/RACT),
attainment demonstration, contingency
measures, and Motor Vehicle Emissions
Budgets (MVEBs). EPA approved the
baseline emissions inventory on July 18,
2014 (79 FR 41904) and the control
measures on March 25, 2014 (79 FR
16201). EPA approved the control
measures in the attainment plan as
meeting RACM/RACT and disapproved
contingency measures on January 4,
2017 (82 FR 729). EPA approved the
attainment demonstration on August 8,
1 See part D of title I of the Clean Air Act and
EPA’s Fine Particulate Matter National Ambient Air
Quality Standards: State Implementation Plan
Requirements (72 FR 20586, April 25, 2007).
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2017 (82 FR 37025). We also approved
a separate, March 20, 2018, Idaho SIP
revision as meeting applicable part D
nonattainment new source review (NSR)
requirements on August 20, 2018 (83 FR
42033).2 Most recently, we approved the
attainment plan as meeting the
Reasonable Further Progress (RFP),
Quantitative Milestone (QM), and
MVEB requirements on February 20,
2020 (85 FR 9664).
On September 8, 2017 (82 FR 42447),
EPA granted two, one-year extensions,
under CAA section 188(d), to the
December 31, 2015 Moderate attainment
date for the 2006 24-hour PM2.5 Logan,
UT-ID NAA. On October 19, 2018, EPA
finalized a determination that the
Logan, UT-ID PM2.5 NAA had attained
the 2006 primary and secondary 24hour PM2.5 NAAQS (‘‘Determination of
Attainment’’) by the December 31, 2017,
attainment date (83 FR 52983).
Additionally, EPA finalized a
determination that the obligation to
submit any remaining attainmentrelated SIP revisions arising from
classification of the Logan, UT-ID NAA
as Moderate under subpart 4 of part D
(of title I of the Act) for the 2006 24hour PM2.5 NAAQS are not applicable
for so long as the area continues to
attain the 2006 24-hour PM2.5 NAAQS.
See 40 CFR 51.1015(a) (known as a
‘‘Clean Data Determination’’ or ‘‘CDD’’).
II. Requirements for Redesignation to
Attainment
The CAA provides the requirements
for redesignating a nonattainment area
to attainment. Specifically, section
107(d)(3)(E) of the CAA, 42 U.S.C.
7407(d)(3)(E), allows for redesignation
provided that: (1) EPA determines that
the area has attained the applicable
NAAQS; (2) EPA has fully approved the
applicable implementation plan for the
area under section 110(k) of the CAA;
(3) EPA determines that the
improvement in air quality is due to
permanent and enforceable reductions
in emissions resulting from
implementation of the applicable SIP
and applicable federal air pollutant
control regulations and other permanent
and enforceable reductions; (4) EPA has
fully approved a maintenance plan for
the area as meeting the requirements of
section 175A of the CAA; and (5) the
state containing such area has met all
requirements applicable to the area
under section 110 and part D of the
CAA. In this proposed action, EPA will
review CAA section 107(d)(3)(E)
requirements (2) and (5) together as part
of our evaluation of Idaho’s
redesignation request.
EPA has provided guidance on
redesignation in the ‘‘General
Preamble,’’ 3 and has provided further
guidance on processing redesignation
requests in the following documents: (1)
‘‘Procedures for Processing Requests to
Redesignate Areas to Attainment,’’
Memorandum from John Calcagni,
Director, Air Quality Management
Division, September 4, 1992 (hereafter
the ‘‘Calcagni Memo’’); (2) ‘‘State
Implementation Plan (SIP) Actions
Submitted in Response to Clean Air Act
(CAA) Deadlines,’’ Memorandum from
John Calcagni, Director, Air Quality
Management Division, October 28, 1992;
and (3) ‘‘Part D New Source Review
(Part D NSR) Requirements for Areas
Requesting Redesignation to
Attainment,’’ Memorandum from Mary
D. Nichols, Assistant Administrator for
Air and Radiation, October 14, 1994.
These documents are included in the
Docket for this proposed action.
III. EPA’s Analysis of Idaho’s Submittal
EPA is proposing to redesignate the
Franklin County, ID portion of the
Logan UT-ID NAA to attainment for the
2006 24-hour PM2.5 NAAQS and
proposing to approve into the Idaho SIP
the associated maintenance plan. EPA’s
proposed approval of the redesignation
request and maintenance plan is based
upon EPA’s determination that the area
continues to attain the 2006 24-hour
PM2.5 NAAQS and that all other
redesignation criteria have been met for
the area. The following is a description
of how Idaho’s September 13, 2019,
submittal satisfies the requirements of
section 107(d)(3)(E) of the CAA for the
2006 24-hour PM2.5 standard.
A. Attainment Determination
To redesignate an area from
nonattainment to attainment, the CAA
requires EPA to determine that the area
has attained the applicable NAAQS
(CAA section 107(d)(3)(E)(i)). Whether
an area has attained the 2006 24-hour
PM2.5 NAAQS is based upon measured
air quality levels at each eligible
monitoring site with a complete threeyear period to produce a design value
equal to or below 35 mg/m3. See 40 CFR
part 50 and 40 CFR part 50, appendix
N. A state must demonstrate that an area
has attained the 2006 24-hour PM2.5
NAAQS through submittal of ambient
air quality data from an ambient air
monitoring network representing
maximum PM2.5 concentrations. The
data must be quality assured, qualitycontrolled and certified in the EPA’s Air
Quality System (AQS) and it must show
that the three-year average of valid PM2.5
98th percentile mass concentrations is
equal to or below the 2006 24-hour
PM2.5 NAAQS (35 mg/m3), pursuant to
40 CFR 50.13. In making this showing,
three consecutive years of complete air
quality data must be used.
As noted, on October 19, 2018, EPA
finalized a Determination of Attainment
for the Logan, UT-ID PM2.5 NAA based
upon quality-assured and certified
ambient air quality monitoring data for
the period of 2015–2017 (83 FR 52983).
The monitoring data used as the basis
for the Determination of Attainment
under CAA section 188(b)(2) is provided
in Table 1 of this document.
TABLE 1—LOGAN UT-ID AREA DESIGN VALUES FROM 2018 CDD 4
98th percentile value (μg/m3)
Monitor
2015–2017
design value
AQS site ID
2015
Smithfield, UT ......................................................................
Franklin, ID ...........................................................................
490050007
160410001
2016
a 28.9
2017
34.0
33.3
18.8
36.0
a 33
b 38.3
b 30
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a This
value combines monitor data from the Logan, UT and Smithfield, UT monitors. EPA concurred on exceptional events in the October 19,
2018 (83 FR 52983) action and the specified data was excluded.
b This value includes 1-in-3 day monitoring frequency from January 1–August 9, 2017, and daily monitoring frequency from August 10–December 31, 2017.
2 Idaho’s submission incorporated by reference
EPA’s August 24, 2016 (81 FR 58010) rule changes
to 40 CFR 51.165 promulgated under CAA subpart
4, part D.
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3 See ‘‘State Implementation Plans; General
Preamble for the Implementation of Title I of the
Clean Air Act Amendments of 1990,’’ 57 FR 13498,
April 16, 1992.
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4 See
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83 FR 52983, October 19, 2018.
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EPA has also reviewed the subsequent
PM2.5 ambient air monitoring data in the
Logan UT-ID area for the monitoring
design value 5 periods of 2016–2018 and
2017–2019. Consistent with the
requirements at 40 CFR part 50, Idaho
quality assured, quality-controlled and
certified this ambient air monitoring
data in the EPA’s Air Quality System
(AQS). This air quality data
demonstrates that the Logan UT-ID area
continues to attain the 2006 24-hour
PM2.5 NAAQS. For the 2016–2018 threeyear period, the Smithfield monitor
recorded a design value of 33 mg/m3.6
The area’s 24-hour PM2.5 design values
for the 2017–2019 three-year period are
provided in Table 2 of this document.
TABLE 2—LOGAN UT-ID CURRENT PM2.5 DESIGN VALUES 7
98th percentile value (μg/m3)
Monitor
Design value
(3-year
average)
AQS site ID
2017
Smithfield, UT ......................................................................
Preston, ID ...........................................................................
490050007
160410002
2018
36.0
2019
27.9
27.2
a 17.3
35.1
30.1
33
b NA
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a The Preston monitor operated at a 1-in-3 day monitoring frequency throughout 2017 and did not begin operation until February 24, 2017,
making the first quarter incomplete for this monitor with less than 50% of data reported.
b Due to the incomplete first quarter in 2017, this design value does not meet validity requirements per 40 CFR part 50, Appendix N, section
4.2(c)(i).
As Table 2 indicates, the Logan UTID PM2.5 NAA has continued to attain
the 2006 24-hour PM2.5 NAAQS since
EPA issued its October 19, 2018,
Determination of Attainment for the
area based on the 2015–2017 design
values shown in Table 1 of this
document. We note that the Preston, ID
monitor did not produce a valid design
value for the 2017–2019 period because
the monitor did not begin operation
until February 24, 2017, thus producing
an incomplete first quarter for that
monitoring year. Despite this, EPA finds
that it is appropriate to conclude that
the area has continued to attain the
NAAQS since the initial 2015–2017
period upon which we based our
October 19, 2018, Determination of
Attainment, based on uninterrupted
attainment at the Smithfield, UT
monitor. A review of concurrent
monitoring data for the Smithfield and
Preston monitors provided in Table 2 of
this document, and discussed in more
detail in our Technical Support
Document (TSD) 8 included in the
docket for this proposed action, shows
that the Smithfield site typically records
higher levels of PM2.5 than the Preston
site, indicating that Smithfield’s
location is more suitable to demonstrate
maximum PM2.5 concentrations in the
Cache Valley. On September 1, 2020,
Utah and Idaho completed a
memorandum of understanding (MOU)
to collectively meet the monitoring
requirements of 40 CFR part 58,
Appendix D in the Logan UT-ID
metropolitan statistical area (MSA),
allowing Idaho to rely on the Smithfield
monitor in Utah as the highest
concentration monitor in the MSA. As
shown, the Smithfield monitor has
attained the 2006 24-hour PM2.5 NAAQS
for the 2015–2017, 2016–2018 and
2017–2019 design value periods. The
MOU is included in the docket for this
proposed action. The TSD also
demonstrates that it is very unlikely that
the Preston monitor’s first complete
valid design value for the 2018–2020
period could exceed the 2006 PM2.5
NAAQS based on a review of all
available data recorded at this monitor.
EPA’s review of the monitoring data
for 2016–2018 and 2017–2019 supports
the previous determination that the area
has attained the 2006 24-hour PM2.5
NAAQS and demonstrates that the area
continues to attain the standard. As
discussed further in Section III.D of this
document, Idaho has committed to
continue monitoring ambient PM2.5
concentrations in accordance with 40
CFR part 58. Thus, EPA is proposing to
determine that the Logan UT-ID PM2.5
NAA attained the 2006 24-hour PM2.5
NAAQS.
5 As defined in 40 CFR part 50, Appendix N,
section (1)(c).
6 See https://www.epa.gov/air-trends/air-qualitydesign-values#report.
7 The Preston monitor does not have a valid
design value for the 2017–2019 three-year period
because of an incomplete 2017 quarter 1 which
cannot be substituted with quarter 1 data at the
same monitor in 2018 or 2019 per 40 CFR part 50,
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B. Applicable Requirements Under
Section 110 and Part D of the CAA
Section 107(d)(3)(E)(ii) and (v) of the
CAA states that for an area to be
redesignated to attainment, it must be
determined that the Administrator has
fully approved the applicable
implementation plan for the area under
CAA section 110(k) and all the
requirements applicable to the Area
under section 110 of the CAA (general
SIP requirements) and part D of Title I
of the CAA (SIP requirements for
nonattainment areas) must be met.
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1. CAA Section 110 General SIP
Requirements
Section 110(a)(2) of Title I of the CAA
delineates the general requirements for
a SIP, which include enforceable
emissions limitations and other control
measures, means or techniques,
provisions for the establishment and
operation of appropriate devices
necessary to collect data on ambient air
quality, and programs to enforce the
limitations. The general SIP elements
and requirements set forth in CAA
section 110(a)(2) include, but are not
limited to the following:
• Submittal of a SIP that has been
adopted by the state after reasonable
public notice and hearing;
• Provisions for establishment and
operation of appropriate procedures
needed to monitor ambient air quality;
• Implementation of a source permit
program; provisions for the
implementation of Part C requirements
(PSD);
• Provisions for the implementation
of Part D requirements for NSR permit
programs;
• Provisions for air pollution
modeling; and
• Provisions for public and local
agency participation in planning and
emission control rule development.
CAA section 110(a)(2)(D) requires that
SIPs contain certain measures to prevent
sources in a state from significantly
contributing to air quality problems in
another state. However, CAA section
110(a)(2)(D) requirements for a state are
not linked with a particular
nonattainment area’s designation and
classification in that state. EPA believes
that the requirements linked with a
Appendix N, section 4.2(c)(i) because it has below
50% complete data for that quarter.
8 Please see ‘‘EPA R10 Ambient Monitoring TSD’’
in the docket for this proposed action (EPA–R10–
OAR–2020–0190) on www.regulations.gov.
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particular nonattainment area’s
designation and classifications are the
relevant measures to evaluate in
reviewing a redesignation request. The
transport SIP submittal requirements,
where applicable, continue to apply to
a state regardless of the designation of
any one particular area in the state.
Thus, EPA does not believe that these
requirements are applicable
requirements for purposes of
redesignation.
In addition, EPA believes that the
other CAA section 110(a)(2) elements
not connected with nonattainment plan
submissions and not linked with an
area’s attainment status are not
applicable requirements for purposes of
redesignation because the area will still
be subject to these requirements after it
is redesignated. EPA concludes that the
CAA section 110(a)(2) and part D
requirements which are linked with a
particular area’s designation and
classification are the relevant measures
to evaluate in reviewing a redesignation
request, and that CAA section 110(a)(2)
elements not linked to the area’s
nonattainment status are not applicable
for purposes of redesignation. This
approach is consistent with EPA’s
existing policy on applicability of
conformity (i.e., for redesignations) and
oxygenated fuels requirement. See
Reading, Pennsylvania, proposed and
final rulemakings (61 FR 53174, October
10, 1996), (62 FR 24826, May 7, 1997);
Cleveland-Akron-Lorain, Ohio final
rulemaking (61 FR 20458, May 7, 1996);
and Tampa, Florida, final rulemaking
(60 FR 62748, December 7, 1995). See
also, the discussion on this issue in the
Cincinnati, Ohio redesignation (65 FR at
37890, June 19, 2000), and in the
Pittsburgh-Beaver Valley, Pennsylvania
redesignation (66 FR at 53099, October
19, 2001).
EPA has reviewed the Idaho SIP and
has concluded that it meets the general
SIP requirements under Section
110(a)(2) of the CAA to the extent they
are applicable for the purposes of
redesignation. EPA has previously
approved provisions of Idaho’s SIP as
demonstrating compliance with the
CAA section 110(a)(2) requirements for
the 2006 PM2.5 NAAQS (79 FR 40662,
July 14, 2014). These requirements are,
however, statewide requirements that
are not linked to the PM2.5
nonattainment status of the Logan, UTID NAA. Therefore, EPA believes that
these SIP elements are not applicable
requirements for purposes of review of
this proposed redesignation.
2. Part D of Title I Requirements
Part D of Title I of the CAA sets forth
the basic nonattainment plan
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requirements applicable to all
nonattainment areas at subpart 1 (CAA
sections 172–176) and requirements
specific to PM10 and PM2.5 areas at
subpart 4 (CAA section 189). On August
24, 2016, EPA promulgated the Fine
Particulate Matter National Ambient Air
Quality Standards; State
Implementation Plan Requirements
rule.9 This rule implements the
requirements of Part D of Title I of the
CAA for areas designated nonattainment
for any PM2.5 NAAQS.
In accordance with 40 CFR 51.1015,
upon a determination by EPA that a
Moderate PM2.5 nonattainment area has
attained the PM2.5 NAAQS, the
requirements for the state to submit an
attainment demonstration, provisions
demonstrating that RACM (including
RACT for stationary sources) shall be
implemented no later than 4 years
following the date of designation of the
area, RFP plan, QMs and QM reports,
and contingency measures for the area
shall be suspended until such time as:
(1) The area is redesignated to
attainment, after which such
requirements are permanently
discharged; or, (2) EPA determines that
the area has re-violated the PM2.5
NAAQS.
Those states containing Moderate
PM2.5 NAAs were required to submit a
SIP by December 31, 2014, which
demonstrated attainment of the PM2.5
NAAQS by December 31, 2015.10
Pursuant to CAA section 188(d) and 40
CFR 51.1005(a), on September 8, 2017,
EPA extended the attainment date for
the Logan UT-ID NAA from December
31, 2015 to December 31, 2017 (82 FR
42447). As stated in the ‘‘Background’’
section, EPA has approved several
attainment plan elements for the Idaho
portion of the Logan UT-ID area.
Specifically, EPA approved the
following elements of Idaho’s
attainment plan: Baseline emissions
inventory (July 18, 2014, 79 FR 41904);
control measures (March 25, 2014, 79
FR 16201); RACM/RACT (January 4,
2017, 82 FR 729); attainment
demonstration (August 8, 2017, 82 FR
37025); nonattainment NSR (August 20,
2018, 83 FR 42033), and RFP, QM and
MVEB (February 20, 2020, 85 FR 9664).
Pursuant to 40 CFR 51.1015(a), on
October 19, 2018, EPA completed a CDD
9 81 FR 58010, August 24, 2016. Codified at 40
CFR part 51, subpart Z.
10 See Section 188(c)(1) of the CAA, 42 U.S.C.
7513(c)(1), 40 CFR 51.1004(a)(1). See also
Identification of Nonattainment Classification and
Deadlines for Submission of State Implementation
Plan (SIP) Provisions for the 1997 Fine Particle
(PM2.5) National Ambient Air Quality Standard
(NAAQS) and 2006 PM2.5 NAAQS (June 2, 2014),
79 FR 31566, 31567–68.
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9887
for the Logan, UT-ID Moderate PM2.5
NAA. (83 FR 52983). The CDD
suspended the obligation for Idaho to
make submissions to meet certain CAA
requirements related to attainment of
the NAAQS, including the CAA section
172(c)(9) requirement to adopt
contingency measures.
Determinations of attainment do not
relieve states from submitting and EPA
from approving certain Part D planning
requirements for the 2006 PM2.5
NAAQS. CAA section 172(c)(3) requires
submission and approval of a
comprehensive, accurate and current
inventory of actual emissions. For
purposes of the PM2.5 NAAQS, this
emissions inventory should address not
only direct emissions of PM2.5, but also
emissions of all precursors to PM2.5
formation, i.e., SO2, NOX, VOC, and
ammonia. As previously discussed, EPA
determined that Idaho met the CAA
section 172(c)(3) comprehensive
emissions inventory requirement in a
final rulemaking on July 18, 2014 (79 FR
41904).
CAA section 172(c)(4) requires the
identification and quantification of
allowable emissions for major new and
modified stationary sources in an area,
and CAA section 172(c)(5) and requires
source permits for the construction and
operation of new and modified major
stationary sources anywhere in the
nonattainment area. EPA first approved
the requirements of the part D NSR
permit program for Idaho under subpart
1 on November 26, 2010 (75 FR 72719).
Subsequently, on March 20, 2018, Idaho
submitted rule revisions to meet
additional part D NSR requirements
promulgated by the EPA under subpart
4 (81 FR 58010, August 24, 2016). We
approved Idaho’s submission on August
20, 2018 (83 FR 42033).
Once the Logan, UT-ID PM2.5 NAA is
redesignated to attainment, the
prevention of significant deterioration
(PSD) requirements of part C of the Act
will apply. Idaho’s PSD regulations are
codified in the Idaho Administrative
Procedures Act (IDAPA) at
58.01.01.200–228 (permit to construct)
and governed by IDAPA 58.01.01.205
(permit requirements for new major
facilities or major modifications in
attainment or unclassifiable areas). We
most recently approved revisions to
Idaho’s PSD program on August 20,
2018 (83 FR 42033), May 12, 2017 (82
FR 22083) and August 12, 2016 (81 FR
53290). EPA finds that Idaho’s PSD
provisions meet all applicable Federal
requirements for any area designated
unclassifiable or attainment, and these
provisions will become fully effective in
the Idaho portion of the Logan, UT-ID
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PM2.5 NAA upon redesignation of the
area to attainment.
CAA section 172(c)(7) requires the SIP
to meet the applicable provisions of
CAA section 110(a)(2). As noted above,
we find that the Idaho SIP meets the
CAA section 110(a)(2) applicable
requirements for purposes of
redesignation.
For purposes of redesignation to
attainment for the 2006 24-hour PM2.5
NAAQS, EPA proposes to find that
Idaho has met all the applicable SIP
requirements under part D of Title I of
the CAA.
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3. Fully Approved SIP Under CAA
Section 110(k)
As discussed in Sections III.B.1 and
III.B.2 of this document, for purposes of
redesignation to attainment for the 2006
24-hour PM2.5 NAAQS, EPA has fully
approved all applicable requirements of
Idaho’s SIP for the Idaho portion of the
Logan UT-ID area in accordance with
CAA section 110(k). Therefore, EPA has
fully approved all applicable
requirements of the applicable
implementation plan in accordance
with CAA section 110(k).
C. Improvement in Air Quality Due to
Permanent and Enforceable Measures
CAA section 107(d)(3)(E)(iii) of the
CAA provides that for an area to be
redesignated to attainment, the
Administrator must determine that the
improvement in air quality is due to
permanent and enforceable reductions
in emissions resulting from
implementation of the applicable
implementation plan, implementation
of applicable Federal air pollutant
control regulations, and other
permanent and enforceable reductions.
On December 14, 2012, IDEQ
submitted an attainment plan that
addressed attainment planning
requirements for the Idaho portion of
the Logan UT-ID PM2.5 NAA. On
December 24, 2014, the IDEQ submitted
a supplement to the 2012 attainment
plan that included additional analysis.
Idaho’s December 14, 2012, attainment
plan submittal included residential
wood combustion (RWC) ordinances,
road-sanding agreements, and a wood
stove change-out program to reduce
emissions of PM2.5 in the Idaho portion
of the Logan UT-ID PM2.5 NAA. Each of
these programs is discussed in detail
within this section. EPA approved the
RWC ordinances and road sanding
agreements into the Idaho SIP on March
25, 2014 (79 FR 16201), making them
federally enforceable. EPA approved
Idaho’s evaluation of, and imposition of,
RACM and RACT level controls on
appropriate sources on January 4, 2017
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16:07 Feb 16, 2021
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(82 FR 729). This approval included
approving the RWC ordinances and
wood stove change-out program as
meeting the RACM requirement.
The RWC ordinances approved as
RACM on January 4, 2017, apply within
Franklin County and all six Idaho cities
on the Idaho side of the Logan UT-ID
PM2.5 NAA (Franklin, Preston, Weston,
Dayton, Clifton, and Oxford). EPA
determined in its approvals that these
RWC ordinances achieved permanent
and enforceable emissions reductions.
Key elements in the current RWC
ordinances include mandatory burn
bans issued when PM2.5 has reached or
is forecasted to reach 75 on the Air
Quality Index (AQI), which corresponds
to a PM2.5 concentration of 23.3 mg/m3
and aligns with the RWC ordinances
applicable within Cache County on the
Utah side of the Logan UT-ID PM2.5
NAA. All RWC ordinances effective in
Franklin County prohibit both open
burning and the use of specified devices
when an air quality alert is issued. The
ordinances also prohibit the installation
of non-EPA-certified devices. Each of
the adopted ordinances bans open
burning of any kind during burn ban
days, bans the sale or installation of
non-EPA certified devices in new or
existing buildings, and prohibits the
construction of any building for which
a solid fuel burning device is the sole
source of heat. In its December 14, 2012,
attainment plan submittal, Idaho
estimated that maximum reductions for
this measure are 0.06 tons per day (tpd)
direct PM2.5, 0.009 tpd nitrogen oxides
(NOX), and 0.078 tpd volatile organic
compounds (VOC).
In our March 25, 2014 action, EPA
also approved road sanding agreements
between IDEQ, Franklin County Road
and Bridge, and the Idaho
Transportation Department (IDT) to
reduce the contribution of primary
PM2.5 from reentrained dust on paved
roads. According to records submitted
to Idaho and summarized in the
submission, IDT used salt in 2014 (409
tons), 2015 (340 tons), and 2016 (109
tons) and did not use sand. Franklin
County Road and Bridge historically
used a 10:1 ratio of sand and salt;
however, in the Idaho attainment plan,
Franklin County committed to use a 4:1
ratio of sand and salt when anti-skid
treatment is required. Franklin County
also agreed to apply brine when
temperatures are above 22 °F, a measure
that further reduces the amount of sand
required by approximately 50%. The
City of Preston now uses a 2:1 ratio of
sand and salt at an average of 700 tons
total per year. In its SIP, IDEQ estimates
that these road sanding commitments
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Sfmt 4702
would lead to 0.10 tpd reduction in
direct PM2.5 annually.
Finally, in its attainment plan, IDEQ
quantified the emission reduction
benefits from three woodstove changeout programs on the Idaho side of the
Logan UT-ID area. These programs were
conducted in 2006–2007, 2011–2012,
and 2013–2014. Accordingly, Idaho
demonstrated in the submission that a
total of 209 uncertified RWC devices
have been changed-out since 2006. In
addition, 39 stoves were removed and
destroyed through Idaho’s Alternative
Energy Device tax deduction program.
In total, 256 wood stoves have been
changed out on the Idaho side of the
Logan UT-ID NAA since 2006. As
described in the supplemental 2014
attainment plan SIP submittal (applying
the appropriate temporal profile to
convert to tons per day), Idaho stated
these change-outs have led to
permanent reductions of 0.05 tpd direct
PM2.5, 0.003 tpd NOX, and 0.13 tpd
VOC.11 These woodstove change-out
programs achieved permanent and
enforceable emissions reductions
because the RWC ordinances banned the
sale or installation of non-EPA certified
devices in new or existing buildings in
Franklin County jurisdictions.
IDEQ also noted that Utah adopted
permanent and enforceable control
measures into its SIP that have reduced
PM2.5 and precursor emissions and led
to the improvement in air quality in the
Logan UT-ID PM2.5 NAA. IDEQ
specifically referenced area source rules
(2015 reductions of 122 lbs/day NOX,
679 lbs/day PM2.5, 3,665 lbs/day VOC)
and a vehicle and inspection and
maintenance program (2015 reductions
of 0.214 tons/day for NOX and 0.212
tons/day for VOC) in the Utah portion
of the Logan UT-ID NAA.12 IDEQ also
referenced Federal measures, including
the ‘‘Tier 3 Motor Vehicle Emission and
Fuel Standards Rule’’ (79 FR 23414), as
permanent and enforceable reductions
leading to improvement in air quality,
and ultimately to attainment, in the
Logan UT-ID PM2.5 NAA.
Based on the foregoing evaluation of
these control measures, EPA proposes to
determine that the improvement in air
quality is reasonably attributable to
permanent and enforceable reductions
in emissions resulting from
implementation of the applicable
implementation plan, implementation
of applicable Federal air pollutant
control regulations, and other
permanent and enforceable reductions.
11 2014
attainment plan SIP submittal, Section
4.1.
12 See Idaho’s September 13, 2019 submittal at
Section 5.2.
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D. Fully Approved Maintenance Plan
CAA section 107(d)(3)(E)(iv) requires
that, for a NAA to be redesignated to
attainment, EPA must fully approve a
maintenance plan which meets the
requirements of CAA section 175A. The
plan must demonstrate continued
attainment of the relevant NAAQS in
the area for at least 10 years after our
approval of the redesignation. Eight
years after our approval of a
redesignation, the State must submit a
revised maintenance plan
demonstrating attainment for the 10
years following the initial 10-year
period. The maintenance plan must also
contain a contingency plan to ensure
prompt correction of any violation of
the NAAQS. See CAA sections 175A(b)
and (d). The Calcagni Memo provides
additional guidance on the content of a
maintenance plan, stating that a
maintenance plan should include the
following elements: (1) An attainment
emissions inventory; (2) a maintenance
demonstration showing attainment for
10 years following redesignation; (3) a
commitment to maintain the existing
monitoring network; (4) verification of
continued attainment; and (5) a
contingency plan to prevent or correct
future violations of the NAAQS. The
following paragraphs describe how each
of these elements is addressed in
Idaho’s maintenance plan.
1. Attainment Inventory
As discussed in the General Preamble
(see 57 FR 13498, April 16, 1992) and
the Calcagni Memo, PM2.5 maintenance
plans should include an attainment
emission inventory to identify the level
of emissions in the area which is
sufficient to maintain the NAAQS.
The maintenance plan attainment
year inventory should include the
emissions during the time period
associated with the monitoring data
showing attainment.13 For the Logan,
UT-ID PM2.5 NAA, IDEQ determined
attainment using air quality data from
2015, 2016, and 2017, the design value
period relied upon for the EPA’s
Determination of Attainment (83 FR
52983, October 19, 2018). The State
therefore used 2017 to calculate its base
year attainment inventory, which
aligned with the 2017 National
Emissions Inventory (NEI) data available
for point, area, on-road mobile, and
nonroad mobile sources. IDEQ then
projected the 2017 base year inventory
to both a ‘‘horizon year’’ (a future year
at least 10 years from the approval date
of the maintenance plan) of 2031 and an
interim year of 2026.
The NEI is compiled at the county
level, so the State first calculated the
2017 emissions inventories for Franklin
County, and then apportioned these
county-wide inventories to the portion
of Franklin County included in the
Logan, UT-ID NAA.14 IDEQ projected
mobile source emissions using the latest
version of EPA’s Motor Vehicle
Emissions Simulator (MOVES) model
(MOVES2014b). IDEQ used apportioned
2017 NEI data for the on-road mobile
9889
source emissions, and used
MOVES2014b model defaults for the
nonroad portion of the model, because
the State has not yet developed input
files for that version of the model.15 To
best represent emissions that occur on
days when the ambient concentrations
of PM2.5 are of concern, the MOVES
meteorological inputs were based on an
average episodic day representing
conditions present during wintertime
stagnation events leading to high levels
of ambient PM2.5 in the Logan UT-ID
PM2.5 NAA.16 IDEQ ran MOVES2014b to
calculate on-road and nonroad mobile
source emissions on an average episodic
winter day for Franklin County for
January 2017, 2026 and 2031. Area
source emissions were apportioned from
2017 NEI data for individual categories,
which were projected for the 2026 and
2031 inventories based on an average
annual growth rate. No point sources
were listed in the base year or projected
future inventories. More detailed
descriptions of the 2017 base year
inventory and the 2026 and 2031
projected inventories can be found in
section 4 and Appendix A of Idaho’s
September 13, 2019 submittal, in the
docket for this action.
For each of these source categories,
the pollutants that were inventoried
include: PM2.5, sulfur dioxide (SO2),
NOX, VOC, and ammonia (NH3).
Summary of emission figures from 2017
base year and the projected inventories
are provided in Table 3 of this
document.
TABLE 3—IDAHO PORTION OF THE LOGAN, UT-ID PM2.5 NAA; ACTUAL EMISSIONS FROM 2017 AND PROJECTED
EMISSIONS FOR 2026 AND 2031
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[Pounds per average episodic winter day]
PM2.5
filterable
Year
Source category
PM2.5
condensable
2017 .................................
2017 .................................
2017 .................................
Area .................................
Mobile ..............................
Nonroad ...........................
9.72
......................
......................
208.8
127.3
42.5
338.8
957.7
286.6
28.3
1.9
0.8
1,626.5
901.2
1,189.1
868.6
13.8
0.7
2017
2026
2026
2026
.................................
.................................
.................................
.................................
Total ..........................
Area .................................
Mobile ..............................
Nonroad ...........................
9.72
9.88
......................
......................
378.5
222.4
109.4
31.2
1,583
363.5
421.8
302.8
31
28.6
2.0
0.8
3,716.8
2,061.1
533.1
776.4
883.1
872.1
12.5
0.7
2026
2031
2031
2031
.................................
.................................
.................................
.................................
Total ..........................
Area .................................
Mobile ..............................
Nonroad ...........................
9.88
9.97
......................
......................
363
230
110.5
29.8
1088.1
377.2
297.3
306.7
31.4
28.8
2
0.8
3,370.6
2,302.6
396.3
732.5
885.3
874
13.2
0.7
2031 .................................
Total ..........................
9.97
370.4
981.2
31.6
3,431.4
887.9
Projected change (%)
..........................................
2.5
¥2.2
¥38
2
¥7.70
0.5
13 See
Calcagni Memo at 8.
Appendix A of Idaho’s September 13, 2019
submittal for the apportionment methodology.
14 See
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NOX
15 With the exception of paved road dust
emissions, which IDEQ calculated using AP–42
guidance.
16 An episodic day was defined as any day from
November through March during which the daily
average PM2.5 concentration in Franklin County was
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Fmt 4702
Sfmt 4702
SO2
VOC
NH3
above 35 mg/m3. A total of 62 days were identified
that met these criteria at the Logan-Cache Airport
weather station from 2013 through 2017. The
hourly meteorological data from these 62 days were
then averaged to create the final average episodic
day inputs.
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Following our review, we have
determined that IDEQ prepared an
adequate attainment inventory for the
Idaho portion of the Logan, UT-ID PM2.5
NAA.
In the September 13, 2019
submission, Idaho also provided
inventory information for the Utah
portion of the Logan, UT-ID NAA. Idaho
derived this inventory from the Utah
Division of Air Quality (Utah DAQ),
which performed a photochemical grid
modeling analysis using the
‘‘Comprehensive Air Quality Model
with Extensions’’ (v. 6.3, https://
www.camx.com/) modeling system for
the nonattainment area for Utah’s
attainment, interim, and projected years.
Utah used linear projections to estimate
future years to 2035. Utah DAQ’s
modeling domain included all three of
the nonattainment areas in UT and
extended into southern Idaho to include
the Idaho portion of the Logan UT-ID
PM2.5 NAA. The methodology for the
mobile, nonroad and area source
emissions inventories can be found in
the Utah DAQ PM2.5 Emissions
Inventory Preparation Plan (Utah DAQ
2019), in the docket for this action.
IDEQ interpolated the Utah DAQ
projections to 2031 using the average
annual growth rate for area, mobile, and
nonroad sources to match the 2031
horizon year for Idaho’s redesignation
request. The actual and projected
emissions in the Utah portion of the
Logan UT-ID PM2.5 NAA are provided in
Table 4 of this document. Table 5 of this
document provides Idaho’s projected
emissions inventories for the entire
Logan UT-ID PM2.5 NAA, which is the
combination of the values in Tables 3
and 4 of this document.
TABLE 4—UTAH PORTION OF THE LOGAN, UT-ID PM2.5 NAA; ACTUAL EMISSIONS FROM 2017 AND PROJECTED
EMISSIONS FOR 2026 AND 2031
[Pounds per average episodic winter day].
Year
Source category
PM2.5
condensable
2017 .................................
2017 .................................
2017 .................................
Area .................................
Mobile ..............................
Nonroad ...........................
1.83
......................
......................
1,198.17
460
200
1,840
7,520
1,580
60
40
....................
7,600
4,920
4,380
26,960
200
....................
2017
2026
2026
2026
.................................
.................................
.................................
.................................
Total ..........................
Area .................................
Mobile ..............................
Nonroad ...........................
1.83
2.09
......................
......................
1,858.17
1,277.91
260
120
10,940
1,400
3,040
1,180
100
60
20
....................
16,900
7,760
2,780
2,540
27,160
26,540
180
....................
2026
2031
2031
2031
.................................
.................................
.................................
.................................
Total ..........................
Area .................................
Mobile ..............................
Nonroad ...........................
2.09
2.29
......................
......................
1,657.91
1,311.04
326.67
108.89
5,620
1,411.11
3,306.67
1,157.78
80
60
20
....................
13,080
8,215.56
3,357.78
2,284.44
26,720
26,362.22
191.11
....................
2031 .................................
Total ..........................
2.29
1,746.6
5,875.56
80
13,857.78
26,553.33
Projected change (%)
..........................................
25.2
¥6.0
¥46.3
¥20
¥18.0
¥0.02
PM2.5
filterable
NOX
SO2
VOC
NH3
TABLE 5—ENTIRE LOGAN, UT-ID PM2.5 NAA; ACTUAL EMISSIONS FROM 2017 AND PROJECTED EMISSIONS FOR 2026
AND 2031
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[Pounds per winter day]
Year
Source category
PM2.5
condensable
2017 .................................
2017 .................................
2017 .................................
Area .................................
Mobile ..............................
Nonroad ...........................
11.55
......................
......................
1,406.94
587.3
242.48
2,178.76
8,477.7
1,866.57
88.27
41.94
0.76
9,226.45
5,821.24
5,569.08
27,828.63
213.76
0.66
2017
2026
2026
2026
.................................
.................................
.................................
.................................
Total ..........................
Area .................................
Mobile ..............................
Nonroad ...........................
11.55
11.98
......................
......................
2,236.72
1,500.33
369.36
151.19
12,523.03
1,763.48
3,461.84
1,482.79
130.97
88.58
22
0.77
20,616.77
9,821.12
3,313.12
3,316.4
28,043.05
27,412.08
192.55
0.66
2026
2031
2031
2031
.................................
.................................
.................................
.................................
Total ..........................
Area .................................
Mobile ..............................
Nonroad ...........................
11.98
12.26
......................
......................
2,020.88
1,541.06
437.21
138.73
6,708.11
1,788.33
3,603.94
1,464.52
111.35
88.75
22.05
.78
16,450.64
10,518.17
3,754.04
3,016.94
27,605.29
27,236.22
204.32
0.67
2031 .................................
Total ..........................
12.26
2,117
6,856.79
111.58
17,289.15
27,441.21
Projected change (%)
..........................................
6.1
¥5.4
¥45.2
¥14.8
¥16.1
¥2.1
Based our review of the emissions
inventories Idaho provided in its
September 13, 2019 submittal, shown in
Tables 3 through 5 of this document, we
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PM2.5
filterable
NOX
propose to find that Idaho prepared an
PO 00000
SO2
VOC
NH3
adequate attainment inventory for the
Logan, UT-ID PM2.5 NAA.17
17 ‘‘Emissions Inventory Guidance for
Implementation of Ozone and Particulate Matter
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2. Maintenance Demonstration
CAA section 175A requires a state
seeking redesignation to attainment to
submit a SIP revision to provide for the
maintenance of the NAAQS in the area
‘‘for at least 10 years after the
redesignation.’’ A state can make this
demonstration by either showing that
future emissions of a pollutant or its
precursors will not exceed the level of
the attainment inventory, or by
modeling to show that the future mix of
sources and emissions rates will not
cause a violation of the NAAQS. See
Calcagni Memo, pages 9–10. Idaho
elected to demonstrate maintenance of
the 2006 PM2.5 NAAQS for at least ten
years following redesignation using the
attainment inventory method.
IDEQ developed projected
inventories, provided in Tables 3
through 5 of this document, to show
that the Logan UT-ID area will remain
in attainment through the year 2031.
These projected inventories, covering an
interim year of 2026 and a horizon year
of 2031, show that future emissions of
NOX, SO2, VOCs, ammonia, and direct
PM2.5 throughout the NAA will remain
at or below the 2017 attainment-level
emissions for the 2006 24-hour PM2.5
NAAQS. As these inventories show,
emissions from NOX, SO2, VOCs and
NH3 are projected to decrease between
2017 and 2031 (Table 5 of this
document). The emissions of direct
filterable PM2.5 are projected to decline
by 5.4% by 2031 (Table 5 of this
document).
Although emissions from condensable
PM2.5 increase by 6.1% by 2031, Idaho
adequately demonstrated that this
increase will not prevent maintenance
of the NAAQS through 2031. The
condensable fraction of PM2.5 is 0.6% of
the total PM2.5-Primary levels projected
for 2031. As depicted in Table 5 of this
document, the total condensable PM2.5
emissions are projected to increase by
0.71 pounds per winter day between
2017 and 2031, while total filterable
PM2.5 emissions are projected to
decrease by 119.72 pounds per winter
day over the same time period. Overall,
total PM2.5 (sum of filterable and
condensable PM2.5) is projected to
decrease by 5.3% from 2017 to 2031.
EPA has reviewed the documentation
provided by Idaho for developing the
2026 and 2031 emissions inventories for
the Logan UT-ID PM2.5 NAA. Based on
our review, EPA finds that the
emissions inventories were prepared in
accordance with EPA requirements.
These inventories indicate a decrease in
PM2.5 and precursor emissions
National Ambient Air Quality Standards (NAAQS)
and Regional Haze Regulations,’’ May 2017.
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16:07 Feb 16, 2021
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throughout the maintenance period,
therefore EPA is proposing to determine
that the projected emissions inventories
in the Idaho maintenance plan
sufficiently demonstrate that the Logan
UT-ID PM2.5 NAA will continue to
maintain the 2006 24-hour PM2.5
standard throughout the maintenance
period.
3. Monitoring Network
Once a NAA has been redesignated to
attainment, the state must continue to
operate an appropriate air quality
monitoring network, in accordance with
40 CFR part 58, to verify the attainment
status of the area.18 The maintenance
plan should contain provisions for
continued operation of air quality
monitors that will provide such
verification. In the maintenance plan,
IDEQ noted that it currently operates a
regulatory monitor (the Preston monitor)
in the Idaho portion of the Logan, UTID PM2.5 NAA, and committed to
continue operating a regulatory
monitoring network in Franklin County
in order to verify continued attainment
of the PM2.5 NAAQS and track the
progress of the maintenance plan. IDEQ
also stated that it will work with EPA
each year through the air monitoring
network review process (per 40 CFR
part 58) to determine the adequacy of
the monitoring network.19 EPA
proposes to determine that the
maintenance plan contains adequate
provisions for continued operation of an
air quality monitoring network to verify
maintenance of the 2006 PM2.5 NAAQS.
4. Verification of Continued Attainment
As stated in Section III.D.3 of this
document, in its maintenance plan,
Idaho commits to continue to operate a
regulatory monitoring network in order
to verify continued attainment of the
PM2.5 NAAQS in the Idaho portion of
the Logan UT-ID area. Idaho is also
required to periodically update the
emissions inventory for Franklin County
in accordance with the Annual Air
Emissions Reporting Requirements Rule
(AERR) during the maintenance plan
period. This includes developing annual
inventories for major point sources and
a comprehensive periodic inventory
covering all source categories every
three years.
18 As stated, Utah and Idaho signed an MOU to
collectively meet the monitoring requirements of 40
CFR part 58, Appendix D in the Logan UT-ID MSA
on September 1, 2020.
19 See EPA’s November 9, 2020 approval of
Idaho’s 2020 Annual Monitoring Network Plan, in
the docket for this action.
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9891
5. Contingency Plan
CAA section 175A(d) requires that a
maintenance plan also include
contingency provisions, as necessary, to
promptly correct any violation of the
NAAQS that occurs after redesignation
of the area to attainment. For the
purposes of CAA section 175A, a state
is not required to have fully adopted
contingency measures that will take
effect without further action by the state
in order for the maintenance plan to be
approved. However, the contingency
plan is an enforceable part of the SIP
and should ensure that contingency
measures are adopted expeditiously
once they are triggered. The plan should
discuss the measures to be adopted and
a schedule and procedure for adoption
and implementation. The contingency
plan must require that the state will
implement all measures contained in
the Part D nonattainment plan for the
area prior to redesignation. The state
should also identify the specific
indicators, or triggers, which will be
used to determine when the
contingency plan will be implemented.
Idaho’s maintenance plan outlines the
procedures for the adoption and
implementation of contingency
measures to further reduce emissions
should a violation occur. Idaho’s
contingency measures include a
warning level response and an action
level response. An initial warning level
response is triggered for the 2006 24hour PM2.5 NAAQS when the 98th
percentile 24-hour PM2.5 concentration
for a single calendar year reaches 35.5
mg/m3 or greater within the area. An
action level response will be prompted
by any one of the following: (1) A two
year average of the 98th percentile
reaches 35.5 mg/m3 or greater within the
area; or (2) a violation of the standard
occurs in the area (i.e. a three-year
average of the 98th percentile reaches
35.5 mg/m3 or greater).
Regardless of which level of response
is triggered, the State will evaluate all
appropriate data including air quality
data, evaluation of wood smoke
programs and information on wildfires
or winter power outages to determine
the cause of the exceedance. IDEQ will
perform this evaluation within six
months of the end of the year in which
the NAAQS is exceeded or violated.
Should a warning level response be
triggered, and IDEQ determines that
additional emissions reductions are
necessary, the State will adopt and
implement contingency measures as
expeditiously as possible and no later
than 18 months from the determination
of a single year exceedance based on
quality assured data. Should an action
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level response be triggered,
implementation of necessary control
measures will take place as
expeditiously as possible, but in no
event later than 18 months after IDEQ
determines, based on quality-assured
ambient data, that an action level trigger
has been exceeded.
Idaho has identified the following
potential contingency measures for the
maintenance plan:
• Measures to address emissions from
residential wood combustion, including
the potential implementation of a burn
ban in the maintenance area at a lower
threshold than currently in place in the
ordinances for the six cities in the Idaho
portion of the Logan UT-ID PM2.5 NAA.
The current ordinances trigger a burn
ban when the Air Quality Index (AQI)
level reaches 75.
• Additional measures to address
other PM2.5 sources identified in the
emissions inventory such as on-road
and nonroad vehicles, industrial
sources, and dust.
Based on our analysis of Idaho’s
submittal, we propose to find that the
contingency measure provisions
provided in Idaho’s Logan, UT-ID PM2.5
maintenance plan are sufficient and
meet the requirements of CAA section
175A(d).
E. Requirements for Transportation
Conformity and Motor Vehicle
Emissions Budgets (MVEBs).
Transportation conformity is required
by CAA section 176(c). EPA’s
conformity rule at 40 CFR part 93,
subpart A requires that transportation
plans, programs, and projects conform
to SIPs and establishes the criteria and
procedures for determining whether or
not they conform. 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. Thus,
EPA’s conformity rule requires a
demonstration that emissions from a
Metropolitan Planning Organization’s
(MPO’s) Regional Transportation Plan
and Transportation Improvement
Program, involving Federal Highway
Administration (FHWA) or Federal
Transit Administration (FTA) funding
or approval, are consistent with the
MVEB(s) contained in a control strategy
SIP revision or maintenance plan (40
CFR 93.101, 93.118, and 93.124). A
MVEB is the level of mobile source
emissions of a pollutant relied upon in
the attainment or maintenance
demonstration to attain or maintain
compliance with the NAAQS in the
nonattainment or maintenance area.
A PM2.5 maintenance plan should
identify MVEBs for direct PM2.5, NOX
and all other PM2.5 precursors from onroad mobile source emissions that are
determined to significantly contribute to
PM2.5 levels in the area.20 To determine
which precursor pollutants are required
to have an MVEB, IDEQ reviewed PM2.5
speciation at the Franklin monitor.
Based on PM2.5 speciation data and the
local emissions inventory composition
for each pollutant, IDEQ determined
that in addition to NOX and direct
PM2.5, the maintenance plan should also
include an MVEB for VOCs because
they are important precursors to
secondary formation PM2.5. The State
excluded direct PM2.5 emissions from
paved road dust from the MVEBs in
accordance with 40 CFR 93.102(b)(3), as
these emissions made up only 1% of
total wintertime contributions at the
Franklin monitor. Vehicle emissions of
SO2 and NH3 were also found to
contribute minimally to PM2.5 in the
area and therefore the maintenance plan
does not include MVEBs for these
precursors in accordance with 40 CFR
93.102(b)(2)(v). See Section 6 of Idaho’s
maintenance plan, in the docket for this
action, for further analysis of the
pollutants and precursors and the
decisions on whether or not MVEBs
were required for the individual
pollutants and precursors.
The MVEBs for 2031 are identical to
the on-road mobile source emissions
inventory provided for direct PM2.5,
NOX and VOCs in Table 1 (in Section
II.D.1 of this document) of this proposed
action for that year, except that the 2031
direct PM2.5 budget does not include
paved road dust. As stated in that
section, IDEQ used EPA’s MOVES2014b
model to develop vehicle emissions
estimates for 2031, which were
recalculated into tons per day (from lbs
per day) for the 2031 MVEBs.
Based on its analysis, IDEQ set the
mobile source emissions budgets for
2031 provided in Table 6 of this
proposed action, as part of the
September 13, 2019 maintenance plan
submission. The previously approved
2017 MVEBs (see 85 FR 9664, February
20, 2020), are included in Table 6.
According to EPA’s conformity rule, the
emissions budget acts as a ceiling on
emissions in the year for which it is
defined or until a SIP revision modifies
the budget.21
TABLE 6—2017 AND 2031 MVEBS FOR THE IDAHO PORTION OF THE LOGAN UT-ID PM2.5 NAA
Motor vehicle emissions budget
(tpd)
Year
Direct PM2.5
jbell on DSKJLSW7X2PROD with PROPOSALS
2017 .............................................................................................................................................
2031 .............................................................................................................................................
We propose to find that Idaho has
evaluated the appropriate pollutants
and precursors and appropriately
established MVEBs for direct PM2.5,
NOX and VOCs. Idaho used the most upto-date model (MOVES2014b) available
at the time of submission in order to
appropriately calculate these budgets.22
The MVEBs are based on the control
measures in the maintenance plan and
consistent with maintaining the 2006
20 See
21 See
40 CFR 93.102(b)(2)(iv)–(v) and (b)(3).
40 CFR 93.118.
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16:07 Feb 16, 2021
Jkt 253001
24-hour PM2.5 NAAQS. Based on our
review of Idaho’s 2031 MVEBs, we are
proposing to approve the budgets.
IV. Proposed Action
EPA is proposing to redesignate the
Idaho portion of the Logan UT-ID PM2.5
NAA, and proposing to approve the
associated maintenance plan for the
area. If this proposal is finalized, the
designation status of the Idaho portion
22 See document titled ‘‘EPA R10 MVEB and
MOVES TSD’’ in the docket for this proposed action
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NOX
VOC
.544
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of the Logan, UT-ID PM2.5 NAA under
40 CFR part 81 will be revised to
attainment upon the effective date of
that final action.
V. Statutory and Executive Order
Reviews
Under the CAA, redesignation of an
area to attainment and the
accompanying approval of a
maintenance plan under section
(EPA–R10–OAR–2020–0190) on
www.regulations.gov.
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107(d)(3)(E) are actions that affect the
status of a geographical area and do not
impose any additional regulatory
requirements on sources beyond those
imposed by state law. A redesignation to
attainment does not in and of itself
create any new requirements, but rather
results in the applicability of
requirements contained in the CAA for
areas that have been redesignated to
attainment. Moreover, 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 already 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
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16:07 Feb 16, 2021
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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, this rule does not have
tribal implications as specified by
Executive Order 13175 (65 FR 67249,
November 9, 2000), because
redesignation is an action that affects
the status of a geographical area and
does not impose any new regulatory
requirements on tribes, impact any
existing sources of air pollution on
tribal lands, nor impair the maintenance
of ozone national ambient air quality
standards in tribal lands.
List of Subjects
40 CFR Part 52
Environmental protection, Air
pollution control, Incorporation by
reference, Intergovernmental relations,
Lead, Nitrogen dioxide, Ozone,
Particulate matter, Reporting and
recordkeeping requirements, Sulfur
oxides, Volatile organic compounds.
40 CFR Part 81
Environmental protection, Air
pollution control, National parks,
Wilderness areas.
Authority: 42 U.S.C. 7401 et seq.
Dated: February 9, 2021.
Michelle L. Pirzadeh,
Acting Regional Administrator, Region 10.
[FR Doc. 2021–03031 Filed 2–16–21; 8:45 am]
BILLING CODE 6560–50–P
ENVIRONMENTAL PROTECTION
AGENCY
40 CFR Part 281
[EPA–R05–UST–2020–0685; FRL–10020–
06–Region 5]
Indiana: Final Approval of State
Underground Storage Tank Program
Revisions
Environmental Protection
Agency (EPA).
ACTION: Proposed rule.
AGENCY:
Pursuant to the Resource
Conservation and Recovery Act (RCRA
or Act), the Environmental Protection
Agency (EPA) proposes to take direct
final action to approve revisions to the
State of Indiana’s Underground Storage
Tank (UST) program submitted by the
State. This action is based on EPA’s
determination that the State’s revisions
satisfy all requirements needed for UST
SUMMARY:
PO 00000
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9893
program approval. In the ‘‘Rules and
Regulations’’ section of this Federal
Register, EPA is approving the changes
by direct final rule because we believe
this action is not controversial and do
not expect comments that oppose it.
DATES: Send written comments by
March 19, 2021.
ADDRESSES: Submit your comments,
identified by EPA–R05–UST–2020–0685
by one of the following methods:
1. Federal eRulemaking Portal:
https://www.regulations.gov. Follow the
online instructions for submitting
comments.
2. Email: Kamke.Sherry@epa.gov.
Instructions: Direct your comments to
Docket ID No. EPA–R05–UST–2020–
0685. EPA’s policy is that all comments
received will be included in the public
docket without change and may be
available online at https://
www.regulations.gov, including any
personal information provided, unless
the comment includes information
claimed to be Confidential Business
Information (CBI) or other information
whose disclosure is restricted by statute.
Do not submit information that you
consider to be CBI or otherwise
protected through https://
www.regulations.gov, or email. The
federal https://www.regulations.gov
website is an ‘‘anonymous access’’
system, which means EPA will not
know your identity or contact
information unless you provide it in the
body of your comment. If you send an
email comment directly to EPA without
going through https://
www.regulations.gov, your email
address will be automatically captured
and included as part of the comment
that is placed in the public docket and
made available on the internet. If you
submit an electronic comment, EPA
recommends that you include your
name and other contact information in
the body of your comment and with any
disk or CD–ROM you submit. If EPA
cannot read your comment due to
technical difficulties, and cannot
contact you for clarification, EPA may
not be able to consider your comment.
Electronic files should avoid the use of
special characters, any form of
encryption, and be free of any defects or
viruses.
EPA encourages electronic submittals,
but if you are unable to submit
electronically, please reach out to EPA
contact person listed in the notice for
assistance with additional submission
methods.
You can view and copy the
documents that form the basis for this
action and associated publicly available
materials through www.regulations.gov.
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]]>Agencies
[Federal Register Volume 86, Number 30 (Wednesday, February 17, 2021)]
[Proposed Rules]
[Pages 9884-9893]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2021-03031]
========================================================================
Proposed Rules
Federal Register
________________________________________________________________________
This section of the FEDERAL REGISTER contains notices to the public of
the proposed issuance of rules and regulations. The purpose of these
notices is to give interested persons an opportunity to participate in
the rule making prior to the adoption of the final rules.
========================================================================
Federal Register / Vol. 86, No. 30 / Wednesday, February 17, 2021 /
Proposed Rules
[[Page 9884]]
ENVIRONMENTAL PROTECTION AGENCY
40 CFR Parts 52 and 81
[EPA-R10-OAR-2020-0190; FRL-10014-37-Region 10]
Air Plan Approval; ID: Logan Utah-Idaho PM2.5 Redesignation to
Attainment and Maintenance Plan
AGENCY: Environmental Protection Agency (EPA).
ACTION: Proposed rule.
-----------------------------------------------------------------------
SUMMARY: The Environmental Protection Agency (EPA) is proposing to
redesignate the Idaho portion of the Logan, Utah-Idaho fine particulate
matter (PM2.5) nonattainment area (Logan UT-ID NAA) to
attainment for the 2006 PM2.5 National Ambient Air Quality
Standard (NAAQS). EPA is also proposing to approve a maintenance plan
for the area demonstrating continued compliance with the 2006
PM2.5 NAAQS through 2031, which the Idaho Department of
Environmental Quality (IDEQ) submitted along with the redesignation
request on September 13, 2019, for inclusion into the Idaho State
Implementation Plan (SIP). Additionally, EPA is proposing to approve
the 2031 motor vehicle emissions budgets included in Idaho's
maintenance plan for PM2.5, nitrogen oxides (NOX)
and volatile organic compounds (VOC). EPA is proposing this action
pursuant to the Clean Air Act (CAA or the Act).
DATES: Comments must be received on or before March 19, 2021.
ADDRESSES: Submit your comments, identified by Docket ID No. EPA-R10-
OAR-2020-0190, at https://www.regulations.gov. Follow the online
instructions for submitting comments. Once submitted, comments cannot
be edited or removed from Regulations.gov. EPA may publish any comment
received to its public docket. Do not electronically submit any
information you consider to be Confidential Business Information (CBI)
or other information the disclosure of which 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, 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: Adam Clark, (206) 553-1495,
[email protected].
SUPPLEMENTARY INFORMATION: Throughout this document whenever ``we,''
``us,'' or ``our'' is used, it is intended to refer to EPA.
Table of Contents
I. Background
II. Requirements for Redesignation to Attainment
III. EPA's Analysis of Idaho's Submittal
A. Attainment Determination
B. Applicable Requirements Under Section 110 and Part D of the
CAA
1. CAA Section 110 General SIP Requirements
2. Part D of Title I Requirements
3. Fully Approved SIP Under CAA Section 110(k)
C. Improvement in Air Quality Due to Permanent and Enforceable
Measures
D. Fully Approved Maintenance Plan
1. Attainment Inventory
2. Maintenance Demonstration
3. Monitoring Network
4. Verification of Continued Attainment
5. Contingency Plan
E. Requirements for Transportation Conformity and Motor Vehicle
Emissions Budgets (MVEBs)
IV. Proposed Action
V. Statutory and Executive Order Reviews
I. Background
On October 17, 2006 (71 FR 61144), EPA revised the level of the 24-
hour PM2.5 NAAQS, lowering the primary and secondary
standards from the 1997 standard of 65 micrograms per cubic meter
([micro]g/m\3\) to 35 [micro]g/m\3\. On November 13, 2009, EPA
designated a portion of Franklin County, Idaho in addition to portions
of Cache County, Utah nonattainment for the 2006 24-hour
PM2.5 NAAQS (74 FR 58688). This cross-boundary nonattainment
area is referred to as the Logan, UT-ID PM2.5 NAA.
The boundaries of the Logan, UT-ID PM2.5 NAA roughly
conform to the geographic boundaries of the Cache Valley. The Cache
Valley is an isolated, bowl-shaped valley measuring approximately 60
kilometers north to south and 20 kilometers east to west and almost
entirely surrounded by mountain ranges. The Wellsville Mountains lie to
the west, and on the east lie the Bear River Mountains; both are
northern branches of the Wasatch Range. This topography can act as a
barrier to air movement in the Cache Valley during temperature
inversions, which occur in the winter months and are often the cause of
elevated concentrations of fine particulates. Additional information
pertaining to the unique issues associated with the Logan, UT-ID
PM2.5 NAA and studies completed on inversions can be found
in the docket for Utah and Idaho in the November 13, 2009, final
designations action for the 2006 24-Hour PM2.5 NAAQS (74 FR
58688).
The nonattainment designation of the Logan UT-ID PM2.5
NAA required Idaho to prepare and submit an attainment plan to meet
statutory and regulatory requirements in the Idaho portion of the
Logan, UT-ID PM2.5 NAA.\1\ IDEQ submitted this attainment
plan to EPA on December 14, 2012, and supplemented the attainment plan
on December 24, 2014. The attainment plan addressed specific required
elements, including but not limited to the following elements:
Emissions inventory, Reasonably Available Control Measures/Technology
(RACM/RACT), attainment demonstration, contingency measures, and Motor
Vehicle Emissions Budgets (MVEBs). EPA approved the baseline emissions
inventory on July 18, 2014 (79 FR 41904) and the control measures on
March 25, 2014 (79 FR 16201). EPA approved the control measures in the
attainment plan as meeting RACM/RACT and disapproved contingency
measures on January 4, 2017 (82 FR 729). EPA approved the attainment
demonstration on August 8,
[[Page 9885]]
2017 (82 FR 37025). We also approved a separate, March 20, 2018, Idaho
SIP revision as meeting applicable part D nonattainment new source
review (NSR) requirements on August 20, 2018 (83 FR 42033).\2\ Most
recently, we approved the attainment plan as meeting the Reasonable
Further Progress (RFP), Quantitative Milestone (QM), and MVEB
requirements on February 20, 2020 (85 FR 9664).
---------------------------------------------------------------------------
\1\ See part D of title I of the Clean Air Act and EPA's Fine
Particulate Matter National Ambient Air Quality Standards: State
Implementation Plan Requirements (72 FR 20586, April 25, 2007).
\2\ Idaho's submission incorporated by reference EPA's August
24, 2016 (81 FR 58010) rule changes to 40 CFR 51.165 promulgated
under CAA subpart 4, part D.
---------------------------------------------------------------------------
On September 8, 2017 (82 FR 42447), EPA granted two, one-year
extensions, under CAA section 188(d), to the December 31, 2015 Moderate
attainment date for the 2006 24-hour PM2.5 Logan, UT-ID NAA.
On October 19, 2018, EPA finalized a determination that the Logan, UT-
ID PM2.5 NAA had attained the 2006 primary and secondary 24-
hour PM2.5 NAAQS (``Determination of Attainment'') by the
December 31, 2017, attainment date (83 FR 52983). Additionally, EPA
finalized a determination that the obligation to submit any remaining
attainment-related SIP revisions arising from classification of the
Logan, UT-ID NAA as Moderate under subpart 4 of part D (of title I of
the Act) for the 2006 24-hour PM2.5 NAAQS are not applicable
for so long as the area continues to attain the 2006 24-hour
PM2.5 NAAQS. See 40 CFR 51.1015(a) (known as a ``Clean Data
Determination'' or ``CDD'').
II. Requirements for Redesignation to Attainment
The CAA provides the requirements for redesignating a nonattainment
area to attainment. Specifically, section 107(d)(3)(E) of the CAA, 42
U.S.C. 7407(d)(3)(E), allows for redesignation provided that: (1) EPA
determines that the area has attained the applicable NAAQS; (2) EPA has
fully approved the applicable implementation plan for the area under
section 110(k) of the CAA; (3) EPA determines that the improvement in
air quality is due to permanent and enforceable reductions in emissions
resulting from implementation of the applicable SIP and applicable
federal air pollutant control regulations and other permanent and
enforceable reductions; (4) EPA has fully approved a maintenance plan
for the area as meeting the requirements of section 175A of the CAA;
and (5) the state containing such area has met all requirements
applicable to the area under section 110 and part D of the CAA. In this
proposed action, EPA will review CAA section 107(d)(3)(E) requirements
(2) and (5) together as part of our evaluation of Idaho's redesignation
request.
EPA has provided guidance on redesignation in the ``General
Preamble,'' \3\ and has provided further guidance on processing
redesignation requests in the following documents: (1) ``Procedures for
Processing Requests to Redesignate Areas to Attainment,'' Memorandum
from John Calcagni, Director, Air Quality Management Division,
September 4, 1992 (hereafter the ``Calcagni Memo''); (2) ``State
Implementation Plan (SIP) Actions Submitted in Response to Clean Air
Act (CAA) Deadlines,'' Memorandum from John Calcagni, Director, Air
Quality Management Division, October 28, 1992; and (3) ``Part D New
Source Review (Part D NSR) Requirements for Areas Requesting
Redesignation to Attainment,'' Memorandum from Mary D. Nichols,
Assistant Administrator for Air and Radiation, October 14, 1994. These
documents are included in the Docket for this proposed action.
---------------------------------------------------------------------------
\3\ See ``State Implementation Plans; General Preamble for the
Implementation of Title I of the Clean Air Act Amendments of 1990,''
57 FR 13498, April 16, 1992.
---------------------------------------------------------------------------
III. EPA's Analysis of Idaho's Submittal
EPA is proposing to redesignate the Franklin County, ID portion of
the Logan UT-ID NAA to attainment for the 2006 24-hour PM2.5
NAAQS and proposing to approve into the Idaho SIP the associated
maintenance plan. EPA's proposed approval of the redesignation request
and maintenance plan is based upon EPA's determination that the area
continues to attain the 2006 24-hour PM2.5 NAAQS and that
all other redesignation criteria have been met for the area. The
following is a description of how Idaho's September 13, 2019, submittal
satisfies the requirements of section 107(d)(3)(E) of the CAA for the
2006 24-hour PM2.5 standard.
A. Attainment Determination
To redesignate an area from nonattainment to attainment, the CAA
requires EPA to determine that the area has attained the applicable
NAAQS (CAA section 107(d)(3)(E)(i)). Whether an area has attained the
2006 24-hour PM2.5 NAAQS is based upon measured air quality
levels at each eligible monitoring site with a complete three-year
period to produce a design value equal to or below 35 [micro]g/m\3\.
See 40 CFR part 50 and 40 CFR part 50, appendix N. A state must
demonstrate that an area has attained the 2006 24-hour PM2.5
NAAQS through submittal of ambient air quality data from an ambient air
monitoring network representing maximum PM2.5
concentrations. The data must be quality assured, quality-controlled
and certified in the EPA's Air Quality System (AQS) and it must show
that the three-year average of valid PM2.5 98th percentile
mass concentrations is equal to or below the 2006 24-hour
PM2.5 NAAQS (35 [micro]g/m\3\), pursuant to 40 CFR 50.13. In
making this showing, three consecutive years of complete air quality
data must be used.
As noted, on October 19, 2018, EPA finalized a Determination of
Attainment for the Logan, UT-ID PM2.5 NAA based upon
quality-assured and certified ambient air quality monitoring data for
the period of 2015-2017 (83 FR 52983). The monitoring data used as the
basis for the Determination of Attainment under CAA section 188(b)(2)
is provided in Table 1 of this document.
---------------------------------------------------------------------------
\4\ See 83 FR 52983, October 19, 2018.
Table 1--Logan UT-ID Area Design Values From 2018 CDD \4\
----------------------------------------------------------------------------------------------------------------
98th percentile value ([micro]g/m\3\)
Monitor AQS site ID ------------------------------------------------ 2015-2017
2015 2016 2017 design value
----------------------------------------------------------------------------------------------------------------
Smithfield, UT.................. 490050007 \a\ 28.9 34.0 36.0 \a\ 33
Franklin, ID.................... 160410001 18.8 33.3 \b\ 38.3 \b\ 30
----------------------------------------------------------------------------------------------------------------
\a\ This value combines monitor data from the Logan, UT and Smithfield, UT monitors. EPA concurred on
exceptional events in the October 19, 2018 (83 FR 52983) action and the specified data was excluded.
\b\ This value includes 1-in-3 day monitoring frequency from January 1-August 9, 2017, and daily monitoring
frequency from August 10-December 31, 2017.
[[Page 9886]]
EPA has also reviewed the subsequent PM2.5 ambient air
monitoring data in the Logan UT-ID area for the monitoring design value
\5\ periods of 2016-2018 and 2017-2019. Consistent with the
requirements at 40 CFR part 50, Idaho quality assured, quality-
controlled and certified this ambient air monitoring data in the EPA's
Air Quality System (AQS). This air quality data demonstrates that the
Logan UT-ID area continues to attain the 2006 24-hour PM2.5
NAAQS. For the 2016-2018 three-year period, the Smithfield monitor
recorded a design value of 33 [micro]g/m\3\.\6\ The area's 24-hour
PM2.5 design values for the 2017-2019 three-year period are
provided in Table 2 of this document.
---------------------------------------------------------------------------
\5\ As defined in 40 CFR part 50, Appendix N, section (1)(c).
\6\ See https://www.epa.gov/air-trends/air-quality-design-values#report.
\7\ The Preston monitor does not have a valid design value for
the 2017-2019 three-year period because of an incomplete 2017
quarter 1 which cannot be substituted with quarter 1 data at the
same monitor in 2018 or 2019 per 40 CFR part 50, Appendix N, section
4.2(c)(i) because it has below 50% complete data for that quarter.
Table 2--Logan UT-ID Current PM2.5 Design Values \7\
----------------------------------------------------------------------------------------------------------------
98th percentile value ([micro]g/m\3\) Design value
Monitor AQS site ID ------------------------------------------------ (3-year
2017 2018 2019 average)
----------------------------------------------------------------------------------------------------------------
Smithfield, UT.................. 490050007 36.0 27.9 35.1 33
Preston, ID..................... 160410002 \a\ 17.3 27.2 30.1 \b\ NA
----------------------------------------------------------------------------------------------------------------
\a\ The Preston monitor operated at a 1-in-3 day monitoring frequency throughout 2017 and did not begin
operation until February 24, 2017, making the first quarter incomplete for this monitor with less than 50% of
data reported.
\b\ Due to the incomplete first quarter in 2017, this design value does not meet validity requirements per 40
CFR part 50, Appendix N, section 4.2(c)(i).
As Table 2 indicates, the Logan UT-ID PM2.5 NAA has
continued to attain the 2006 24-hour PM2.5 NAAQS since EPA
issued its October 19, 2018, Determination of Attainment for the area
based on the 2015-2017 design values shown in Table 1 of this document.
We note that the Preston, ID monitor did not produce a valid design
value for the 2017-2019 period because the monitor did not begin
operation until February 24, 2017, thus producing an incomplete first
quarter for that monitoring year. Despite this, EPA finds that it is
appropriate to conclude that the area has continued to attain the NAAQS
since the initial 2015-2017 period upon which we based our October 19,
2018, Determination of Attainment, based on uninterrupted attainment at
the Smithfield, UT monitor. A review of concurrent monitoring data for
the Smithfield and Preston monitors provided in Table 2 of this
document, and discussed in more detail in our Technical Support
Document (TSD) \8\ included in the docket for this proposed action,
shows that the Smithfield site typically records higher levels of
PM2.5 than the Preston site, indicating that Smithfield's
location is more suitable to demonstrate maximum PM2.5
concentrations in the Cache Valley. On September 1, 2020, Utah and
Idaho completed a memorandum of understanding (MOU) to collectively
meet the monitoring requirements of 40 CFR part 58, Appendix D in the
Logan UT-ID metropolitan statistical area (MSA), allowing Idaho to rely
on the Smithfield monitor in Utah as the highest concentration monitor
in the MSA. As shown, the Smithfield monitor has attained the 2006 24-
hour PM2.5 NAAQS for the 2015-2017, 2016-2018 and 2017-2019
design value periods. The MOU is included in the docket for this
proposed action. The TSD also demonstrates that it is very unlikely
that the Preston monitor's first complete valid design value for the
2018-2020 period could exceed the 2006 PM2.5 NAAQS based on
a review of all available data recorded at this monitor.
---------------------------------------------------------------------------
\8\ Please see ``EPA R10 Ambient Monitoring TSD'' in the docket
for this proposed action (EPA-R10-OAR-2020-0190) on
www.regulations.gov.
---------------------------------------------------------------------------
EPA's review of the monitoring data for 2016-2018 and 2017-2019
supports the previous determination that the area has attained the 2006
24-hour PM2.5 NAAQS and demonstrates that the area continues
to attain the standard. As discussed further in Section III.D of this
document, Idaho has committed to continue monitoring ambient
PM2.5 concentrations in accordance with 40 CFR part 58.
Thus, EPA is proposing to determine that the Logan UT-ID
PM2.5 NAA attained the 2006 24-hour PM2.5 NAAQS.
B. Applicable Requirements Under Section 110 and Part D of the CAA
Section 107(d)(3)(E)(ii) and (v) of the CAA states that for an area
to be redesignated to attainment, it must be determined that the
Administrator has fully approved the applicable implementation plan for
the area under CAA section 110(k) and all the requirements applicable
to the Area under section 110 of the CAA (general SIP requirements) and
part D of Title I of the CAA (SIP requirements for nonattainment areas)
must be met.
1. CAA Section 110 General SIP Requirements
Section 110(a)(2) of Title I of the CAA delineates the general
requirements for a SIP, which include enforceable emissions limitations
and other control measures, means or techniques, provisions for the
establishment and operation of appropriate devices necessary to collect
data on ambient air quality, and programs to enforce the limitations.
The general SIP elements and requirements set forth in CAA section
110(a)(2) include, but are not limited to the following:
Submittal of a SIP that has been adopted by the state
after reasonable public notice and hearing;
Provisions for establishment and operation of appropriate
procedures needed to monitor ambient air quality;
Implementation of a source permit program; provisions for
the implementation of Part C requirements (PSD);
Provisions for the implementation of Part D requirements
for NSR permit programs;
Provisions for air pollution modeling; and
Provisions for public and local agency participation in
planning and emission control rule development.
CAA section 110(a)(2)(D) requires that SIPs contain certain
measures to prevent sources in a state from significantly contributing
to air quality problems in another state. However, CAA section
110(a)(2)(D) requirements for a state are not linked with a particular
nonattainment area's designation and classification in that state. EPA
believes that the requirements linked with a
[[Page 9887]]
particular nonattainment area's designation and classifications are the
relevant measures to evaluate in reviewing a redesignation request. The
transport SIP submittal requirements, where applicable, continue to
apply to a state regardless of the designation of any one particular
area in the state. Thus, EPA does not believe that these requirements
are applicable requirements for purposes of redesignation.
In addition, EPA believes that the other CAA section 110(a)(2)
elements not connected with nonattainment plan submissions and not
linked with an area's attainment status are not applicable requirements
for purposes of redesignation because the area will still be subject to
these requirements after it is redesignated. EPA concludes that the CAA
section 110(a)(2) and part D requirements which are linked with a
particular area's designation and classification are the relevant
measures to evaluate in reviewing a redesignation request, and that CAA
section 110(a)(2) elements not linked to the area's nonattainment
status are not applicable for purposes of redesignation. This approach
is consistent with EPA's existing policy on applicability of conformity
(i.e., for redesignations) and oxygenated fuels requirement. See
Reading, Pennsylvania, proposed and final rulemakings (61 FR 53174,
October 10, 1996), (62 FR 24826, May 7, 1997); Cleveland-Akron-Lorain,
Ohio final rulemaking (61 FR 20458, May 7, 1996); and Tampa, Florida,
final rulemaking (60 FR 62748, December 7, 1995). See also, the
discussion on this issue in the Cincinnati, Ohio redesignation (65 FR
at 37890, June 19, 2000), and in the Pittsburgh-Beaver Valley,
Pennsylvania redesignation (66 FR at 53099, October 19, 2001).
EPA has reviewed the Idaho SIP and has concluded that it meets the
general SIP requirements under Section 110(a)(2) of the CAA to the
extent they are applicable for the purposes of redesignation. EPA has
previously approved provisions of Idaho's SIP as demonstrating
compliance with the CAA section 110(a)(2) requirements for the 2006
PM2.5 NAAQS (79 FR 40662, July 14, 2014). These requirements
are, however, statewide requirements that are not linked to the
PM2.5 nonattainment status of the Logan, UT-ID NAA.
Therefore, EPA believes that these SIP elements are not applicable
requirements for purposes of review of this proposed redesignation.
2. Part D of Title I Requirements
Part D of Title I of the CAA sets forth the basic nonattainment
plan requirements applicable to all nonattainment areas at subpart 1
(CAA sections 172-176) and requirements specific to PM10 and
PM2.5 areas at subpart 4 (CAA section 189). On August 24,
2016, EPA promulgated the Fine Particulate Matter National Ambient Air
Quality Standards; State Implementation Plan Requirements rule.\9\ This
rule implements the requirements of Part D of Title I of the CAA for
areas designated nonattainment for any PM2.5 NAAQS.
---------------------------------------------------------------------------
\9\ 81 FR 58010, August 24, 2016. Codified at 40 CFR part 51,
subpart Z.
---------------------------------------------------------------------------
In accordance with 40 CFR 51.1015, upon a determination by EPA that
a Moderate PM2.5 nonattainment area has attained the
PM2.5 NAAQS, the requirements for the state to submit an
attainment demonstration, provisions demonstrating that RACM (including
RACT for stationary sources) shall be implemented no later than 4 years
following the date of designation of the area, RFP plan, QMs and QM
reports, and contingency measures for the area shall be suspended until
such time as: (1) The area is redesignated to attainment, after which
such requirements are permanently discharged; or, (2) EPA determines
that the area has re-violated the PM2.5 NAAQS.
Those states containing Moderate PM2.5 NAAs were
required to submit a SIP by December 31, 2014, which demonstrated
attainment of the PM2.5 NAAQS by December 31, 2015.\10\
Pursuant to CAA section 188(d) and 40 CFR 51.1005(a), on September 8,
2017, EPA extended the attainment date for the Logan UT-ID NAA from
December 31, 2015 to December 31, 2017 (82 FR 42447). As stated in the
``Background'' section, EPA has approved several attainment plan
elements for the Idaho portion of the Logan UT-ID area. Specifically,
EPA approved the following elements of Idaho's attainment plan:
Baseline emissions inventory (July 18, 2014, 79 FR 41904); control
measures (March 25, 2014, 79 FR 16201); RACM/RACT (January 4, 2017, 82
FR 729); attainment demonstration (August 8, 2017, 82 FR 37025);
nonattainment NSR (August 20, 2018, 83 FR 42033), and RFP, QM and MVEB
(February 20, 2020, 85 FR 9664).
---------------------------------------------------------------------------
\10\ See Section 188(c)(1) of the CAA, 42 U.S.C. 7513(c)(1), 40
CFR 51.1004(a)(1). See also Identification of Nonattainment
Classification and Deadlines for Submission of State Implementation
Plan (SIP) Provisions for the 1997 Fine Particle (PM2.5)
National Ambient Air Quality Standard (NAAQS) and 2006
PM2.5 NAAQS (June 2, 2014), 79 FR 31566, 31567-68.
---------------------------------------------------------------------------
Pursuant to 40 CFR 51.1015(a), on October 19, 2018, EPA completed a
CDD for the Logan, UT-ID Moderate PM2.5 NAA. (83 FR 52983).
The CDD suspended the obligation for Idaho to make submissions to meet
certain CAA requirements related to attainment of the NAAQS, including
the CAA section 172(c)(9) requirement to adopt contingency measures.
Determinations of attainment do not relieve states from submitting
and EPA from approving certain Part D planning requirements for the
2006 PM2.5 NAAQS. CAA section 172(c)(3) requires submission
and approval of a comprehensive, accurate and current inventory of
actual emissions. For purposes of the PM2.5 NAAQS, this
emissions inventory should address not only direct emissions of
PM2.5, but also emissions of all precursors to
PM2.5 formation, i.e., SO2, NOX, VOC,
and ammonia. As previously discussed, EPA determined that Idaho met the
CAA section 172(c)(3) comprehensive emissions inventory requirement in
a final rulemaking on July 18, 2014 (79 FR 41904).
CAA section 172(c)(4) requires the identification and
quantification of allowable emissions for major new and modified
stationary sources in an area, and CAA section 172(c)(5) and requires
source permits for the construction and operation of new and modified
major stationary sources anywhere in the nonattainment area. EPA first
approved the requirements of the part D NSR permit program for Idaho
under subpart 1 on November 26, 2010 (75 FR 72719). Subsequently, on
March 20, 2018, Idaho submitted rule revisions to meet additional part
D NSR requirements promulgated by the EPA under subpart 4 (81 FR 58010,
August 24, 2016). We approved Idaho's submission on August 20, 2018 (83
FR 42033).
Once the Logan, UT-ID PM2.5 NAA is redesignated to
attainment, the prevention of significant deterioration (PSD)
requirements of part C of the Act will apply. Idaho's PSD regulations
are codified in the Idaho Administrative Procedures Act (IDAPA) at
58.01.01.200-228 (permit to construct) and governed by IDAPA
58.01.01.205 (permit requirements for new major facilities or major
modifications in attainment or unclassifiable areas). We most recently
approved revisions to Idaho's PSD program on August 20, 2018 (83 FR
42033), May 12, 2017 (82 FR 22083) and August 12, 2016 (81 FR 53290).
EPA finds that Idaho's PSD provisions meet all applicable Federal
requirements for any area designated unclassifiable or attainment, and
these provisions will become fully effective in the Idaho portion of
the Logan, UT-ID
[[Page 9888]]
PM2.5 NAA upon redesignation of the area to attainment.
CAA section 172(c)(7) requires the SIP to meet the applicable
provisions of CAA section 110(a)(2). As noted above, we find that the
Idaho SIP meets the CAA section 110(a)(2) applicable requirements for
purposes of redesignation.
For purposes of redesignation to attainment for the 2006 24-hour
PM2.5 NAAQS, EPA proposes to find that Idaho has met all the
applicable SIP requirements under part D of Title I of the CAA.
3. Fully Approved SIP Under CAA Section 110(k)
As discussed in Sections III.B.1 and III.B.2 of this document, for
purposes of redesignation to attainment for the 2006 24-hour
PM2.5 NAAQS, EPA has fully approved all applicable
requirements of Idaho's SIP for the Idaho portion of the Logan UT-ID
area in accordance with CAA section 110(k). Therefore, EPA has fully
approved all applicable requirements of the applicable implementation
plan in accordance with CAA section 110(k).
C. Improvement in Air Quality Due to Permanent and Enforceable Measures
CAA section 107(d)(3)(E)(iii) of the CAA provides that for an area
to be redesignated to attainment, the Administrator must determine that
the improvement in air quality is due to permanent and enforceable
reductions in emissions resulting from implementation of the applicable
implementation plan, implementation of applicable Federal air pollutant
control regulations, and other permanent and enforceable reductions.
On December 14, 2012, IDEQ submitted an attainment plan that
addressed attainment planning requirements for the Idaho portion of the
Logan UT-ID PM2.5 NAA. On December 24, 2014, the IDEQ
submitted a supplement to the 2012 attainment plan that included
additional analysis. Idaho's December 14, 2012, attainment plan
submittal included residential wood combustion (RWC) ordinances, road-
sanding agreements, and a wood stove change-out program to reduce
emissions of PM2.5 in the Idaho portion of the Logan UT-ID
PM2.5 NAA. Each of these programs is discussed in detail
within this section. EPA approved the RWC ordinances and road sanding
agreements into the Idaho SIP on March 25, 2014 (79 FR 16201), making
them federally enforceable. EPA approved Idaho's evaluation of, and
imposition of, RACM and RACT level controls on appropriate sources on
January 4, 2017 (82 FR 729). This approval included approving the RWC
ordinances and wood stove change-out program as meeting the RACM
requirement.
The RWC ordinances approved as RACM on January 4, 2017, apply
within Franklin County and all six Idaho cities on the Idaho side of
the Logan UT-ID PM2.5 NAA (Franklin, Preston, Weston,
Dayton, Clifton, and Oxford). EPA determined in its approvals that
these RWC ordinances achieved permanent and enforceable emissions
reductions. Key elements in the current RWC ordinances include
mandatory burn bans issued when PM2.5 has reached or is
forecasted to reach 75 on the Air Quality Index (AQI), which
corresponds to a PM2.5 concentration of 23.3 [mu]g/m\3\ and
aligns with the RWC ordinances applicable within Cache County on the
Utah side of the Logan UT-ID PM2.5 NAA. All RWC ordinances
effective in Franklin County prohibit both open burning and the use of
specified devices when an air quality alert is issued. The ordinances
also prohibit the installation of non-EPA-certified devices. Each of
the adopted ordinances bans open burning of any kind during burn ban
days, bans the sale or installation of non-EPA certified devices in new
or existing buildings, and prohibits the construction of any building
for which a solid fuel burning device is the sole source of heat. In
its December 14, 2012, attainment plan submittal, Idaho estimated that
maximum reductions for this measure are 0.06 tons per day (tpd) direct
PM2.5, 0.009 tpd nitrogen oxides (NOX), and 0.078
tpd volatile organic compounds (VOC).
In our March 25, 2014 action, EPA also approved road sanding
agreements between IDEQ, Franklin County Road and Bridge, and the Idaho
Transportation Department (IDT) to reduce the contribution of primary
PM2.5 from reentrained dust on paved roads. According to
records submitted to Idaho and summarized in the submission, IDT used
salt in 2014 (409 tons), 2015 (340 tons), and 2016 (109 tons) and did
not use sand. Franklin County Road and Bridge historically used a 10:1
ratio of sand and salt; however, in the Idaho attainment plan, Franklin
County committed to use a 4:1 ratio of sand and salt when anti-skid
treatment is required. Franklin County also agreed to apply brine when
temperatures are above 22 [deg]F, a measure that further reduces the
amount of sand required by approximately 50%. The City of Preston now
uses a 2:1 ratio of sand and salt at an average of 700 tons total per
year. In its SIP, IDEQ estimates that these road sanding commitments
would lead to 0.10 tpd reduction in direct PM2.5 annually.
Finally, in its attainment plan, IDEQ quantified the emission
reduction benefits from three woodstove change-out programs on the
Idaho side of the Logan UT-ID area. These programs were conducted in
2006-2007, 2011-2012, and 2013-2014. Accordingly, Idaho demonstrated in
the submission that a total of 209 uncertified RWC devices have been
changed-out since 2006. In addition, 39 stoves were removed and
destroyed through Idaho's Alternative Energy Device tax deduction
program. In total, 256 wood stoves have been changed out on the Idaho
side of the Logan UT-ID NAA since 2006. As described in the
supplemental 2014 attainment plan SIP submittal (applying the
appropriate temporal profile to convert to tons per day), Idaho stated
these change-outs have led to permanent reductions of 0.05 tpd direct
PM2.5, 0.003 tpd NOX, and 0.13 tpd VOC.\11\ These
woodstove change-out programs achieved permanent and enforceable
emissions reductions because the RWC ordinances banned the sale or
installation of non-EPA certified devices in new or existing buildings
in Franklin County jurisdictions.
---------------------------------------------------------------------------
\11\ 2014 attainment plan SIP submittal, Section 4.1.
---------------------------------------------------------------------------
IDEQ also noted that Utah adopted permanent and enforceable control
measures into its SIP that have reduced PM2.5 and precursor
emissions and led to the improvement in air quality in the Logan UT-ID
PM2.5 NAA. IDEQ specifically referenced area source rules
(2015 reductions of 122 lbs/day NOX, 679 lbs/day
PM2.5, 3,665 lbs/day VOC) and a vehicle and inspection and
maintenance program (2015 reductions of 0.214 tons/day for
NOX and 0.212 tons/day for VOC) in the Utah portion of the
Logan UT-ID NAA.\12\ IDEQ also referenced Federal measures, including
the ``Tier 3 Motor Vehicle Emission and Fuel Standards Rule'' (79 FR
23414), as permanent and enforceable reductions leading to improvement
in air quality, and ultimately to attainment, in the Logan UT-ID
PM2.5 NAA.
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\12\ See Idaho's September 13, 2019 submittal at Section 5.2.
---------------------------------------------------------------------------
Based on the foregoing evaluation of these control measures, EPA
proposes to determine that the improvement in air quality is reasonably
attributable to permanent and enforceable reductions in emissions
resulting from implementation of the applicable implementation plan,
implementation of applicable Federal air pollutant control regulations,
and other permanent and enforceable reductions.
[[Page 9889]]
D. Fully Approved Maintenance Plan
CAA section 107(d)(3)(E)(iv) requires that, for a NAA to be
redesignated to attainment, EPA must fully approve a maintenance plan
which meets the requirements of CAA section 175A. The plan must
demonstrate continued attainment of the relevant NAAQS in the area for
at least 10 years after our approval of the redesignation. Eight years
after our approval of a redesignation, the State must submit a revised
maintenance plan demonstrating attainment for the 10 years following
the initial 10-year period. The maintenance plan must also contain a
contingency plan to ensure prompt correction of any violation of the
NAAQS. See CAA sections 175A(b) and (d). The Calcagni Memo provides
additional guidance on the content of a maintenance plan, stating that
a maintenance plan should include the following elements: (1) An
attainment emissions inventory; (2) a maintenance demonstration showing
attainment for 10 years following redesignation; (3) a commitment to
maintain the existing monitoring network; (4) verification of continued
attainment; and (5) a contingency plan to prevent or correct future
violations of the NAAQS. The following paragraphs describe how each of
these elements is addressed in Idaho's maintenance plan.
1. Attainment Inventory
As discussed in the General Preamble (see 57 FR 13498, April 16,
1992) and the Calcagni Memo, PM2.5 maintenance plans should
include an attainment emission inventory to identify the level of
emissions in the area which is sufficient to maintain the NAAQS.
The maintenance plan attainment year inventory should include the
emissions during the time period associated with the monitoring data
showing attainment.\13\ For the Logan, UT-ID PM2.5 NAA, IDEQ
determined attainment using air quality data from 2015, 2016, and 2017,
the design value period relied upon for the EPA's Determination of
Attainment (83 FR 52983, October 19, 2018). The State therefore used
2017 to calculate its base year attainment inventory, which aligned
with the 2017 National Emissions Inventory (NEI) data available for
point, area, on-road mobile, and nonroad mobile sources. IDEQ then
projected the 2017 base year inventory to both a ``horizon year'' (a
future year at least 10 years from the approval date of the maintenance
plan) of 2031 and an interim year of 2026.
---------------------------------------------------------------------------
\13\ See Calcagni Memo at 8.
---------------------------------------------------------------------------
The NEI is compiled at the county level, so the State first
calculated the 2017 emissions inventories for Franklin County, and then
apportioned these county-wide inventories to the portion of Franklin
County included in the Logan, UT-ID NAA.\14\ IDEQ projected mobile
source emissions using the latest version of EPA's Motor Vehicle
Emissions Simulator (MOVES) model (MOVES2014b). IDEQ used apportioned
2017 NEI data for the on-road mobile source emissions, and used
MOVES2014b model defaults for the nonroad portion of the model, because
the State has not yet developed input files for that version of the
model.\15\ To best represent emissions that occur on days when the
ambient concentrations of PM2.5 are of concern, the MOVES
meteorological inputs were based on an average episodic day
representing conditions present during wintertime stagnation events
leading to high levels of ambient PM2.5 in the Logan UT-ID
PM2.5 NAA.\16\ IDEQ ran MOVES2014b to calculate on-road and
nonroad mobile source emissions on an average episodic winter day for
Franklin County for January 2017, 2026 and 2031. Area source emissions
were apportioned from 2017 NEI data for individual categories, which
were projected for the 2026 and 2031 inventories based on an average
annual growth rate. No point sources were listed in the base year or
projected future inventories. More detailed descriptions of the 2017
base year inventory and the 2026 and 2031 projected inventories can be
found in section 4 and Appendix A of Idaho's September 13, 2019
submittal, in the docket for this action.
---------------------------------------------------------------------------
\14\ See Appendix A of Idaho's September 13, 2019 submittal for
the apportionment methodology.
\15\ With the exception of paved road dust emissions, which IDEQ
calculated using AP-42 guidance.
\16\ An episodic day was defined as any day from November
through March during which the daily average PM2.5
concentration in Franklin County was above 35 [mu]g/m3. A total of
62 days were identified that met these criteria at the Logan-Cache
Airport weather station from 2013 through 2017. The hourly
meteorological data from these 62 days were then averaged to create
the final average episodic day inputs.
---------------------------------------------------------------------------
For each of these source categories, the pollutants that were
inventoried include: PM2.5, sulfur dioxide (SO2),
NOX, VOC, and ammonia (NH3). Summary of emission
figures from 2017 base year and the projected inventories are provided
in Table 3 of this document.
Table 3--Idaho Portion of the Logan, UT-ID PM2.5 NAA; Actual Emissions From 2017 and Projected Emissions for 2026 and 2031
[Pounds per average episodic winter day]
--------------------------------------------------------------------------------------------------------------------------------------------------------
PM2.5 PM2.5
Year Source category condensable filterable NOX SO2 VOC NH3
--------------------------------------------------------------------------------------------------------------------------------------------------------
2017...................................... Area......................... 9.72 208.8 338.8 28.3 1,626.5 868.6
2017...................................... Mobile....................... ............ 127.3 957.7 1.9 901.2 13.8
2017...................................... Nonroad...................... ............ 42.5 286.6 0.8 1,189.1 0.7
------------------------------------------------------------------------------
2017...................................... Total..................... 9.72 378.5 1,583 31 3,716.8 883.1
2026...................................... Area......................... 9.88 222.4 363.5 28.6 2,061.1 872.1
2026...................................... Mobile....................... ............ 109.4 421.8 2.0 533.1 12.5
2026...................................... Nonroad...................... ............ 31.2 302.8 0.8 776.4 0.7
------------------------------------------------------------------------------
2026...................................... Total..................... 9.88 363 1088.1 31.4 3,370.6 885.3
2031...................................... Area......................... 9.97 230 377.2 28.8 2,302.6 874
2031...................................... Mobile....................... ............ 110.5 297.3 2 396.3 13.2
2031...................................... Nonroad...................... ............ 29.8 306.7 0.8 732.5 0.7
------------------------------------------------------------------------------
2031...................................... Total..................... 9.97 370.4 981.2 31.6 3,431.4 887.9
--------------------------------------------------------------------------------------------------------------------------------------------------------
Projected change (%).................. ............................. 2.5 -2.2 -38 2 -7.70 0.5
--------------------------------------------------------------------------------------------------------------------------------------------------------
[[Page 9890]]
Following our review, we have determined that IDEQ prepared an
adequate attainment inventory for the Idaho portion of the Logan, UT-ID
PM2.5 NAA.
In the September 13, 2019 submission, Idaho also provided inventory
information for the Utah portion of the Logan, UT-ID NAA. Idaho derived
this inventory from the Utah Division of Air Quality (Utah DAQ), which
performed a photochemical grid modeling analysis using the
``Comprehensive Air Quality Model with Extensions'' (v. 6.3, https://www.camx.com/) modeling system for the nonattainment area for Utah's
attainment, interim, and projected years. Utah used linear projections
to estimate future years to 2035. Utah DAQ's modeling domain included
all three of the nonattainment areas in UT and extended into southern
Idaho to include the Idaho portion of the Logan UT-ID PM2.5
NAA. The methodology for the mobile, nonroad and area source emissions
inventories can be found in the Utah DAQ PM2.5 Emissions
Inventory Preparation Plan (Utah DAQ 2019), in the docket for this
action. IDEQ interpolated the Utah DAQ projections to 2031 using the
average annual growth rate for area, mobile, and nonroad sources to
match the 2031 horizon year for Idaho's redesignation request. The
actual and projected emissions in the Utah portion of the Logan UT-ID
PM2.5 NAA are provided in Table 4 of this document. Table 5
of this document provides Idaho's projected emissions inventories for
the entire Logan UT-ID PM2.5 NAA, which is the combination
of the values in Tables 3 and 4 of this document.
Table 4--Utah Portion of the Logan, UT-ID PM2.5 NAA; Actual Emissions From 2017 and Projected Emissions for 2026 and 2031
[Pounds per average episodic winter day].
--------------------------------------------------------------------------------------------------------------------------------------------------------
PM2.5 PM2.5
Year Source category condensable filterable NOX SO2 VOC NH3
--------------------------------------------------------------------------------------------------------------------------------------------------------
2017...................................... Area......................... 1.83 1,198.17 1,840 60 7,600 26,960
2017...................................... Mobile....................... ............ 460 7,520 40 4,920 200
2017...................................... Nonroad...................... ............ 200 1,580 ........... 4,380 ...........
------------------------------------------------------------------------------
2017...................................... Total..................... 1.83 1,858.17 10,940 100 16,900 27,160
2026...................................... Area......................... 2.09 1,277.91 1,400 60 7,760 26,540
2026...................................... Mobile....................... ............ 260 3,040 20 2,780 180
2026...................................... Nonroad...................... ............ 120 1,180 ........... 2,540 ...........
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2026...................................... Total..................... 2.09 1,657.91 5,620 80 13,080 26,720
2031...................................... Area......................... 2.29 1,311.04 1,411.11 60 8,215.56 26,362.22
2031...................................... Mobile....................... ............ 326.67 3,306.67 20 3,357.78 191.11
2031...................................... Nonroad...................... ............ 108.89 1,157.78 ........... 2,284.44 ...........
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2031...................................... Total..................... 2.29 1,746.6 5,875.56 80 13,857.78 26,553.33
--------------------------------------------------------------------------------------------------------------------------------------------------------
Projected change (%).................. ............................. 25.2 -6.0 -46.3 -20 -18.0 -0.02
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Table 5--Entire Logan, UT-ID PM2.5 NAA; Actual Emissions From 2017 and Projected Emissions for 2026 and 2031
[Pounds per winter day]
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PM2.5 PM2.5
Year Source category condensable filterable NOX SO2 VOC NH3
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2017...................................... Area......................... 11.55 1,406.94 2,178.76 88.27 9,226.45 27,828.63
2017...................................... Mobile....................... ............ 587.3 8,477.7 41.94 5,821.24 213.76
2017...................................... Nonroad...................... ............ 242.48 1,866.57 0.76 5,569.08 0.66
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2017...................................... Total..................... 11.55 2,236.72 12,523.03 130.97 20,616.77 28,043.05
2026...................................... Area......................... 11.98 1,500.33 1,763.48 88.58 9,821.12 27,412.08
2026...................................... Mobile....................... ............ 369.36 3,461.84 22 3,313.12 192.55
2026...................................... Nonroad...................... ............ 151.19 1,482.79 0.77 3,316.4 0.66
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2026...................................... Total..................... 11.98 2,020.88 6,708.11 111.35 16,450.64 27,605.29
2031...................................... Area......................... 12.26 1,541.06 1,788.33 88.75 10,518.17 27,236.22
2031...................................... Mobile....................... ............ 437.21 3,603.94 22.05 3,754.04 204.32
2031...................................... Nonroad...................... ............ 138.73 1,464.52 .78 3,016.94 0.67
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2031...................................... Total..................... 12.26 2,117 6,856.79 111.58 17,289.15 27,441.21
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Projected change (%).................. ............................. 6.1 -5.4 -45.2 -14.8 -16.1 -2.1
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Based our review of the emissions inventories Idaho provided in its
September 13, 2019 submittal, shown in Tables 3 through 5 of this
document, we propose to find that Idaho prepared an adequate attainment
inventory for the Logan, UT-ID PM2.5 NAA.\17\
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\17\ ``Emissions Inventory Guidance for Implementation of Ozone
and Particulate Matter National Ambient Air Quality Standards
(NAAQS) and Regional Haze Regulations,'' May 2017.
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[[Page 9891]]
2. Maintenance Demonstration
CAA section 175A requires a state seeking redesignation to
attainment to submit a SIP revision to provide for the maintenance of
the NAAQS in the area ``for at least 10 years after the
redesignation.'' A state can make this demonstration by either showing
that future emissions of a pollutant or its precursors will not exceed
the level of the attainment inventory, or by modeling to show that the
future mix of sources and emissions rates will not cause a violation of
the NAAQS. See Calcagni Memo, pages 9-10. Idaho elected to demonstrate
maintenance of the 2006 PM2.5 NAAQS for at least ten years
following redesignation using the attainment inventory method.
IDEQ developed projected inventories, provided in Tables 3 through
5 of this document, to show that the Logan UT-ID area will remain in
attainment through the year 2031. These projected inventories, covering
an interim year of 2026 and a horizon year of 2031, show that future
emissions of NOX, SO2, VOCs, ammonia, and direct
PM2.5 throughout the NAA will remain at or below the 2017
attainment-level emissions for the 2006 24-hour PM2.5 NAAQS.
As these inventories show, emissions from NOX,
SO2, VOCs and NH3 are projected to decrease
between 2017 and 2031 (Table 5 of this document). The emissions of
direct filterable PM2.5 are projected to decline by 5.4% by
2031 (Table 5 of this document).
Although emissions from condensable PM2.5 increase by
6.1% by 2031, Idaho adequately demonstrated that this increase will not
prevent maintenance of the NAAQS through 2031. The condensable fraction
of PM2.5 is 0.6% of the total PM2.5-Primary
levels projected for 2031. As depicted in Table 5 of this document, the
total condensable PM2.5 emissions are projected to increase
by 0.71 pounds per winter day between 2017 and 2031, while total
filterable PM2.5 emissions are projected to decrease by
119.72 pounds per winter day over the same time period. Overall, total
PM2.5 (sum of filterable and condensable PM2.5)
is projected to decrease by 5.3% from 2017 to 2031.
EPA has reviewed the documentation provided by Idaho for developing
the 2026 and 2031 emissions inventories for the Logan UT-ID
PM2.5 NAA. Based on our review, EPA finds that the emissions
inventories were prepared in accordance with EPA requirements. These
inventories indicate a decrease in PM2.5 and precursor
emissions throughout the maintenance period, therefore EPA is proposing
to determine that the projected emissions inventories in the Idaho
maintenance plan sufficiently demonstrate that the Logan UT-ID
PM2.5 NAA will continue to maintain the 2006 24-hour
PM2.5 standard throughout the maintenance period.
3. Monitoring Network
Once a NAA has been redesignated to attainment, the state must
continue to operate an appropriate air quality monitoring network, in
accordance with 40 CFR part 58, to verify the attainment status of the
area.\18\ The maintenance plan should contain provisions for continued
operation of air quality monitors that will provide such verification.
In the maintenance plan, IDEQ noted that it currently operates a
regulatory monitor (the Preston monitor) in the Idaho portion of the
Logan, UT-ID PM2.5 NAA, and committed to continue operating
a regulatory monitoring network in Franklin County in order to verify
continued attainment of the PM2.5 NAAQS and track the
progress of the maintenance plan. IDEQ also stated that it will work
with EPA each year through the air monitoring network review process
(per 40 CFR part 58) to determine the adequacy of the monitoring
network.\19\ EPA proposes to determine that the maintenance plan
contains adequate provisions for continued operation of an air quality
monitoring network to verify maintenance of the 2006 PM2.5
NAAQS.
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\18\ As stated, Utah and Idaho signed an MOU to collectively
meet the monitoring requirements of 40 CFR part 58, Appendix D in
the Logan UT-ID MSA on September 1, 2020.
\19\ See EPA's November 9, 2020 approval of Idaho's 2020 Annual
Monitoring Network Plan, in the docket for this action.
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4. Verification of Continued Attainment
As stated in Section III.D.3 of this document, in its maintenance
plan, Idaho commits to continue to operate a regulatory monitoring
network in order to verify continued attainment of the PM2.5
NAAQS in the Idaho portion of the Logan UT-ID area. Idaho is also
required to periodically update the emissions inventory for Franklin
County in accordance with the Annual Air Emissions Reporting
Requirements Rule (AERR) during the maintenance plan period. This
includes developing annual inventories for major point sources and a
comprehensive periodic inventory covering all source categories every
three years.
5. Contingency Plan
CAA section 175A(d) requires that a maintenance plan also include
contingency provisions, as necessary, to promptly correct any violation
of the NAAQS that occurs after redesignation of the area to attainment.
For the purposes of CAA section 175A, a state is not required to have
fully adopted contingency measures that will take effect without
further action by the state in order for the maintenance plan to be
approved. However, the contingency plan is an enforceable part of the
SIP and should ensure that contingency measures are adopted
expeditiously once they are triggered. The plan should discuss the
measures to be adopted and a schedule and procedure for adoption and
implementation. The contingency plan must require that the state will
implement all measures contained in the Part D nonattainment plan for
the area prior to redesignation. The state should also identify the
specific indicators, or triggers, which will be used to determine when
the contingency plan will be implemented.
Idaho's maintenance plan outlines the procedures for the adoption
and implementation of contingency measures to further reduce emissions
should a violation occur. Idaho's contingency measures include a
warning level response and an action level response. An initial warning
level response is triggered for the 2006 24-hour PM2.5 NAAQS
when the 98th percentile 24-hour PM2.5 concentration for a
single calendar year reaches 35.5 [micro]g/m\3\ or greater within the
area. An action level response will be prompted by any one of the
following: (1) A two year average of the 98th percentile reaches 35.5
[micro]g/m\3\ or greater within the area; or (2) a violation of the
standard occurs in the area (i.e. a three-year average of the 98th
percentile reaches 35.5 [micro]g/m\3\ or greater).
Regardless of which level of response is triggered, the State will
evaluate all appropriate data including air quality data, evaluation of
wood smoke programs and information on wildfires or winter power
outages to determine the cause of the exceedance. IDEQ will perform
this evaluation within six months of the end of the year in which the
NAAQS is exceeded or violated. Should a warning level response be
triggered, and IDEQ determines that additional emissions reductions are
necessary, the State will adopt and implement contingency measures as
expeditiously as possible and no later than 18 months from the
determination of a single year exceedance based on quality assured
data. Should an action
[[Page 9892]]
level response be triggered, implementation of necessary control
measures will take place as expeditiously as possible, but in no event
later than 18 months after IDEQ determines, based on quality-assured
ambient data, that an action level trigger has been exceeded.
Idaho has identified the following potential contingency measures
for the maintenance plan:
Measures to address emissions from residential wood
combustion, including the potential implementation of a burn ban in the
maintenance area at a lower threshold than currently in place in the
ordinances for the six cities in the Idaho portion of the Logan UT-ID
PM2.5 NAA. The current ordinances trigger a burn ban when
the Air Quality Index (AQI) level reaches 75.
Additional measures to address other PM2.5
sources identified in the emissions inventory such as on-road and
nonroad vehicles, industrial sources, and dust.
Based on our analysis of Idaho's submittal, we propose to find that
the contingency measure provisions provided in Idaho's Logan, UT-ID
PM2.5 maintenance plan are sufficient and meet the
requirements of CAA section 175A(d).
E. Requirements for Transportation Conformity and Motor Vehicle
Emissions Budgets (MVEBs).
Transportation conformity is required by CAA section 176(c). EPA's
conformity rule at 40 CFR part 93, subpart A requires that
transportation plans, programs, and projects conform to SIPs and
establishes the criteria and procedures for determining whether or not
they conform. 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. Thus, EPA's
conformity rule requires a demonstration that emissions from a
Metropolitan Planning Organization's (MPO's) Regional Transportation
Plan and Transportation Improvement Program, involving Federal Highway
Administration (FHWA) or Federal Transit Administration (FTA) funding
or approval, are consistent with the MVEB(s) contained in a control
strategy SIP revision or maintenance plan (40 CFR 93.101, 93.118, and
93.124). A MVEB is the level of mobile source emissions of a pollutant
relied upon in the attainment or maintenance demonstration to attain or
maintain compliance with the NAAQS in the nonattainment or maintenance
area.
A PM2.5 maintenance plan should identify MVEBs for
direct PM2.5, NOX and all other PM2.5
precursors from on-road mobile source emissions that are determined to
significantly contribute to PM2.5 levels in the area.\20\ To
determine which precursor pollutants are required to have an MVEB, IDEQ
reviewed PM2.5 speciation at the Franklin monitor. Based on
PM2.5 speciation data and the local emissions inventory
composition for each pollutant, IDEQ determined that in addition to
NOX and direct PM2.5, the maintenance plan should
also include an MVEB for VOCs because they are important precursors to
secondary formation PM2.5. The State excluded direct
PM2.5 emissions from paved road dust from the MVEBs in
accordance with 40 CFR 93.102(b)(3), as these emissions made up only 1%
of total wintertime contributions at the Franklin monitor. Vehicle
emissions of SO2 and NH3 were also found to
contribute minimally to PM2.5 in the area and therefore the
maintenance plan does not include MVEBs for these precursors in
accordance with 40 CFR 93.102(b)(2)(v). See Section 6 of Idaho's
maintenance plan, in the docket for this action, for further analysis
of the pollutants and precursors and the decisions on whether or not
MVEBs were required for the individual pollutants and precursors.
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\20\ See 40 CFR 93.102(b)(2)(iv)-(v) and (b)(3).
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The MVEBs for 2031 are identical to the on-road mobile source
emissions inventory provided for direct PM2.5,
NOX and VOCs in Table 1 (in Section II.D.1 of this document)
of this proposed action for that year, except that the 2031 direct
PM2.5 budget does not include paved road dust. As stated in
that section, IDEQ used EPA's MOVES2014b model to develop vehicle
emissions estimates for 2031, which were recalculated into tons per day
(from lbs per day) for the 2031 MVEBs.
Based on its analysis, IDEQ set the mobile source emissions budgets
for 2031 provided in Table 6 of this proposed action, as part of the
September 13, 2019 maintenance plan submission. The previously approved
2017 MVEBs (see 85 FR 9664, February 20, 2020), are included in Table
6. According to EPA's conformity rule, the emissions budget acts as a
ceiling on emissions in the year for which it is defined or until a SIP
revision modifies the budget.\21\
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\21\ See 40 CFR 93.118.
Table 6--2017 and 2031 MVEBs for the Idaho Portion of the Logan UT-ID PM2.5 NAA
----------------------------------------------------------------------------------------------------------------
Motor vehicle emissions budget (tpd)
-----------------------------------------------
Year Direct PM2.5
NOX VOC
----------------------------------------------------------------------------------------------------------------
2017............................................................ .029 .544 .467
2031............................................................ .009 .149 .198
----------------------------------------------------------------------------------------------------------------
We propose to find that Idaho has evaluated the appropriate
pollutants and precursors and appropriately established MVEBs for
direct PM2.5, NOX and VOCs. Idaho used the most
up-to-date model (MOVES2014b) available at the time of submission in
order to appropriately calculate these budgets.\22\ The MVEBs are based
on the control measures in the maintenance plan and consistent with
maintaining the 2006 24-hour PM2.5 NAAQS. Based on our
review of Idaho's 2031 MVEBs, we are proposing to approve the budgets.
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\22\ See document titled ``EPA R10 MVEB and MOVES TSD'' in the
docket for this proposed action (EPA-R10-OAR-2020-0190) on
www.regulations.gov.
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IV. Proposed Action
EPA is proposing to redesignate the Idaho portion of the Logan UT-
ID PM2.5 NAA, and proposing to approve the associated
maintenance plan for the area. If this proposal is finalized, the
designation status of the Idaho portion of the Logan, UT-ID
PM2.5 NAA under 40 CFR part 81 will be revised to attainment
upon the effective date of that final action.
V. Statutory and Executive Order Reviews
Under the CAA, redesignation of an area to attainment and the
accompanying approval of a maintenance plan under section
[[Page 9893]]
107(d)(3)(E) are actions that affect the status of a geographical area
and do not impose any additional regulatory requirements on sources
beyond those imposed by state law. A redesignation to attainment does
not in and of itself create any new requirements, but rather results in
the applicability of requirements contained in the CAA for areas that
have been redesignated to attainment. Moreover, 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
already 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, this rule does not have tribal implications as specified by
Executive Order 13175 (65 FR 67249, November 9, 2000), because
redesignation is an action that affects the status of a geographical
area and does not impose any new regulatory requirements on tribes,
impact any existing sources of air pollution on tribal lands, nor
impair the maintenance of ozone national ambient air quality standards
in tribal lands.
List of Subjects
40 CFR Part 52
Environmental protection, Air pollution control, Incorporation by
reference, Intergovernmental relations, Lead, Nitrogen dioxide, Ozone,
Particulate matter, Reporting and recordkeeping requirements, Sulfur
oxides, Volatile organic compounds.
40 CFR Part 81
Environmental protection, Air pollution control, National parks,
Wilderness areas.
Authority: 42 U.S.C. 7401 et seq.
Dated: February 9, 2021.
Michelle L. Pirzadeh,
Acting Regional Administrator, Region 10.
[FR Doc. 2021-03031 Filed 2-16-21; 8:45 am]
BILLING CODE 6560-50-P
