Air Plan Approval; North Carolina; Revision to Approved Motor Vehicle Emissions Budgets, 32850-32856 [2021-13081]
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Federal Register / Vol. 86, No. 118 / Wednesday, June 23, 2021 / Proposed Rules
in the Unfunded Mandates Reform Act
of 1995 (Pub. L. 104–4);
• Does not have federalism
implications as specified in Executive
Order 13132 (64 FR 43255, August 10,
1999);
• Is not an economically significant
regulatory action based on health or
safety risks subject to Executive Order
13045 (62 FR 19885, April 23, 1997);
• Is not a significant regulatory action
subject to Executive Order 13211 (66 FR
28355, May 22, 2001);
• Is not subject to requirements of
Section 12(d) of the National
Technology Transfer and Advancement
Act of 1995 (15 U.S.C. 272 note) because
application of those requirements would
be inconsistent with the Clean Air Act;
and
• Does not provide the EPA with the
discretionary authority to address
disproportionate human health or
environmental effects with practical,
appropriate, 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 the EPA or
an Indian tribe has demonstrated that a
tribe has jurisdiction. In those areas of
Indian country, the proposed rule does
not have tribal implications and will not
impose substantial direct costs on tribal
governments or preempt tribal law as
specified by Executive Order 13175 (65
FR 67249, November 9, 2000).
List of Subjects in 40 CFR Part 52
Environmental protection, Air
pollution control, Carbon monoxide,
Incorporation by reference,
Intergovernmental relations, Lead,
Nitrogen dioxide, Ozone, Particulate
matter, Reporting and recordkeeping
requirements, Sulfur dioxide.
Authority: 42 U.S.C. 7401 et seq.
Dated: June 10, 2021.
Deborah Jordan,
Acting Regional Administrator, Region IX.
[FR Doc. 2021–12923 Filed 6–22–21; 8:45 am]
BILLING CODE 6560–50–P
ENVIRONMENTAL PROTECTION
AGENCY
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40 CFR Part 52
[EPA–R04–OAR–2020–0515; FRL–10024–
72–Region 4]
Air Plan Approval; North Carolina;
Revision to Approved Motor Vehicle
Emissions Budgets
Environmental Protection
Agency (EPA).
AGENCY:
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ACTION:
Proposed rule.
The Environmental Protection
Agency (EPA) is proposing to approve a
revision to the North Carolina State
Implementation Plan (SIP), submitted to
EPA on July 16, 2020, by the State of
North Carolina, through the North
Carolina Department of Environment
and Natural Resources, Division of Air
Quality (NCDAQ) for the purpose of
allocating a portion of the available
2026 safety margin in the 2008 8-hour
Ozone Maintenance Plan to the 2026
nitrogen oxides (NOX) and volatile
organic compounds (VOC) motor
vehicle emissions budgets (‘‘MVEBs’’ or
‘‘budgets’’) for the North Carolina
portion of the Charlotte-Rock Hill, NCSC bi-state Area (hereinafter referred to
as the ‘‘North Carolina portion of the
Charlotte Maintenance Area’’) to
account for uncertainty associated with
the mobile emissions model and
unanticipated growth in vehicle miles
traveled for the North Carolina portion
of the Charlotte Maintenance Area. This
SIP revision also revises the 2026
MVEBs which are used for
transportation conformity. NCDAQ’s
July 16, 2020 submission supplements
the revised 2008 8-hour Ozone
Maintenance Plan submitted by NCDAQ
on July 25, 2018, and approved by EPA
on September 11, 2019. EPA is
proposing to approve North Carolina’s
July 16, 2020 SIP revision and deem the
MVEBs adequate for transportation
conformity purposes because they meet
all the statutory and regulatory
requirements.
SUMMARY:
Comments must be received on
or before July 23, 2021.
ADDRESSES: Submit your comments,
identified by Docket ID No. EPA–R04–
OAR–2020–0515 at
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 submit
electronically any information you
consider to be Confidential Business
Information (CBI) or other information
whose disclosure is restricted by statute.
Multimedia submissions (audio, video,
etc.) must be accompanied by a written
comment. The written comment is
considered the official comment and
should include discussion of all points
you wish to make. EPA will generally
not consider comments or comment
contents located outside of the primary
submission (i.e., on the web, cloud, or
other file sharing system). For
additional submission methods, the full
EPA public comment policy,
DATES:
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information about CBI or multimedia
submissions, and general guidance on
making effective comments, please visit
www2.epa.gov/dockets/commentingepa-dockets.
FOR FURTHER INFORMATION CONTACT:
Dianna Myers, Air Regulatory
Management Section, Air Planning and
Implementation Branch, Air and
Radiation Division, U.S. Environmental
Protection Agency, Region 4, 61 Forsyth
Street SW, Atlanta, Georgia 30303–8960.
The telephone number is (404) 562–
9207. Ms. Myers can also be reached via
electronic mail at myers.dianna@
epa.gov.
SUPPLEMENTARY INFORMATION:
I. What action is EPA proposing?
EPA is proposing to approve
NCDAQ’s July 16, 2020, SIP revision to
allocate a portion of the available safety
margin to revise the 2026 NOX and VOC
budgets for the North Carolina portion
of Charlotte 2008 8-hour Ozone
Maintenance Area 1 for transportation
conformity purposes. NCDAQ requested
approval of the July 16, 2020 SIP
revision in order to account for
unanticipated changes in the travel
demand model, such as unanticipated
growth in vehicle miles traveled,
changes and uncertainty in vehicle mix
assumptions, and uncertainty associated
with mobile emissions modeling.
If EPA finalizes this proposed
approval, the revised 2026 budgets from
NCDAQ’s July 16, 2020, SIP revision
will replace the existing budgets in the
State’s 2008 8-hour Ozone Maintenance
Plan revision approved on September
11, 2019. See 84 FR 47889. If approved,
these newly revised 2026 budgets must
be used in future transportation
conformity analyses for the Area
according to the transportation
conformity rule. See 40 CFR 93.118.
Therefore, the September 11, 2019,
approved budgets would no longer be
applicable for transportation conformity
purposes.
In the State’s submission, all
emissions inventories (on-road, point,
area, and nonroad) from NCDAQ’s
September 11, 2019, SIP revision remain
the same. The submission only allocates
a portion of the available safety margin
to the 2026 NOX and VOC MVEBs.
Therefore, EPA is proposing to conclude
that North Carolina’s July 16, 2020, SIP
revision continues to demonstrate
1 The North Carolina portion of the Charlotte
Maintenance Area for the 2008 ozone NAAQS is
comprised of the following counties: Mecklenburg
in its entirety and portions of Cabarrus, Gaston,
Iredell, Lincoln, Rowan, and Union counties. See
section II.B. for more detail.
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maintenance for the Charlotte
Maintenance Area.
II. What is the background for this
action?
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A. SIP Budgets and Transportation
Conformity
Under the CAA, states are required to
submit, at various times, control strategy
SIP revisions and maintenance plans for
nonattainment and maintenance areas
for a given NAAQS. These emission
control strategy SIP revisions (e.g.,
reasonable further progress and
attainment demonstration SIP revisions)
and maintenance plans include budgets
of on-road mobile source emissions for
criteria pollutants and/or their
precursors to address pollution from
cars, trucks, and other on-road vehicles.
The MVEBs are the portion of the total
allowable emissions that are allocated to
on-road vehicle use that, together with
emissions from other sources in the
area, will provide for attainment or
maintenance. The MVEBs serve as a
ceiling on emissions from an area’s
planned transportation system.
Under section 176(c) of the CAA,
transportation plans, transportation
improvement programs (TIPs), and
transportation projects must ‘‘conform’’
to (i.e., be consistent with) the SIP
before they can be adopted or approved.
Conformity to the SIP means that
transportation activities will not cause
new air quality violations, worsen
existing air quality violations, or delay
timely attainment of the NAAQS or an
interim milestone. The transportation
conformity regulations can be found at
40 CFR parts 51 and 93.
Before budgets can be used in
conformity determinations, EPA must
affirmatively find the budgets adequate.
However, adequate budgets do not
supersede approved budgets for the
same CAA purpose. If the submitted SIP
budgets are meant to replace budgets for
the same CAA purpose and year(s)
addressed by a previously approved SIP
revision, as is the case with this SIP,
EPA can approve the revised SIP and
budgets and also affirm that the budgets
are adequate at the same time. Once
EPA approves the SIP with the
submitted budgets, the revised budgets
must be used by state and Federal
agencies in determining whether
transportation activities conform to the
SIP as required by section 176(c) of the
CAA. EPA’s substantive criteria for
determining the adequacy of budgets are
set out in 40 CFR 93.118(e)(4).
B. Prior Approval of Budgets
Effective July 20, 2012, EPA
designated the Charlotte-Rock Hill, NC-
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SC Area as Marginal nonattainment for
the 2008 8-hour ozone national ambient
air quality standard (hereinafter referred
to as NAAQS or standard). The North
Carolina portion of the Charlotte 2008
Maintenance Area includes
Mecklenburg in its entirety and portions
of Cabarrus, Gaston, Iredell, Lincoln,
Rowan, and Union counties. The
Charlotte Maintenance Area also
includes a portion of York County
located in Rock Hill, South Carolina.
See 77 FR 30088. The North Carolina
portion of the Charlotte Maintenance
Area is comprised of three metropolitan
planning organizations (MPOs): The
Charlotte Regional Transportation
Planning Organization (CRTPO) which
covers Iredell, Mecklenburg, and Union
counties; the Cabarrus-Rowan
Metropolitan Planning Organization
(CRMPO) which covers Cabarrus and
Rowan counties; and the GastonCleveland-Lincoln Metropolitan
Planning Organization (GCLMPO)
which covers Gaston, Cleveland, and
Lincoln counties. Although Cleveland
County is included in the GCLMPO
planning boundary, it was not included
in the North Carolina portion of the
Charlotte Maintenance Area. Each MPO
has its own budget referred to as a ‘‘subarea budget.’’ The York County, South
Carolina portion of this maintenance
area has a separate MPO and budgets.
The South Carolina portion of the
maintenance area implements
transportation conformity independent
of the North Carolina portion.
EPA approved the redesignation
request and maintenance plan for North
Carolina’s portion of the Charlotte 2008
8-hour ozone Area on July 28, 2015 (80
FR 44873) with 2014 and 2026 NOX and
VOC sub-area MVEBs.2 On August 17,
2015 (80 FR 49164), EPA approved
North Carolina’s section 110(l)
noninterference demonstration
requesting relaxation of the Federal Reid
Vapor Pressure from 7.8 pounds per
square inch (psi) to 9.0 psi and a
revision to the 2026 NOX and VOC subarea MVEBs for Mecklenburg and
Gaston Counties only. See 80 FR 44868.
Subsequently, on July 25, 2018,
NCDAQ submitted a revision to the
Charlotte 2008 8-hour ozone
maintenance plan to update the
emissions forecast and MVEBs for 2026
to account for the small increase in NOX
and VOC emissions associated with the
change in vehicle model year coverage
due to changes in the state of North
2 There are currently six ozone monitors located
throughout the North Carolina portion of the
Charlotte Maintenance Area and one monitor
located in York County, South Carolina. The
current design value for the Charlotte Maintenance
Area is 70 parts per billion.
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32851
Carolina’s inspection and maintenance
(I/M) program. On September 11, 2019
(84 FR 47889), EPA approved NCDAQ’s
July 25, 2018 SIP revision related to
North Carolina’s I/M Program. The
September 11, 2019, SIP approval
updated the on-road mobile source
inventory and revised the 2026 sub-area
VOC and NOX budgets for Cabarrus and
Rowan counties. The revised 2026
MVEBs became effective on October 11,
2019.
C. MOVES Emissions Model
The Motor Vehicle Emissions
Simulator (MOVES) model is designed
by EPA to estimate air pollution
emissions from mobile sources. MOVES
can be used to estimate exhaust and
evaporative emissions as well as brake
and tire wear emissions from all types
of on-road vehicles for any part of the
country, except California.3
MOVES2014 and its subsequent minor
updates, MOVES2014a and
MOVES2014b, added the capability to
estimate exhaust and evaporative
emissions from most types of nonroad
equipment. North Carolina’s July 16,
2020 SIP submittal contains mobile
source emissions estimates using
MOVES2014 with local inputs data to
more accurately represent local vehicle
fleets and emissions characteristics.4 See
MOVES2014, MOVES2014a, and
MOVES2014b Technical Guidance:
Using MOVES to Prepare Emission
Inventories for State Implementation
Plans and Transportation Conformity,
EPA–420–B–18–039, August 2018,
available at https://nepis.epa.gov/Exe/
ZyPURL.cgi?Dockey=P100V7EY.txt.
III. What is EPA’s analysis of North
Carolina’s submittal?
EPA’s analysis involves an emissions
comparison between the current SIPapproved MVEBs and the MVEBs that
North Carolina has requested EPA
approve in the July 16, 2020 SIP
submittal. Section III.A. provides
information regarding the current SIP3 In California, a different on-road emissions
model, EMFAC, is used for regulatory purposes
instead of MOVES.
4 On January 7, 2021 (86 FR 1106), EPA
announced the availability of the MOVES3 for
official purposes outside of California. MOVES3 is
the state of the science emission modeling system
that incorporates the latest emissions data and
estimates emissions from mobile sources at the
national, county, and project level for criteria air
pollutants, greenhouse gases, and air toxics. While
MOVES3 is available for use in SIPs and
transportation conformity analyses outside of
California, states and local agencies that had
completed a SIP revision with MOVES2014 at the
time of the release of MOVES3 could continue to
rely on MOVES2014 for that SIP submittal. NCDAQ
completed and submitted the SIP revision that is
the subject of this proposed action on July 16, 2020,
before MOVES3 was released.
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approved MVEBs and inventories, while
sections III.B. and III.C. contain
information and analysis regarding the
proposed revisions to the MVEBs and
safety margin, respectively. Section
III.D. contains EPA’s proposed analysis
of the adequacy of North Carolina’s
revised MVEBs pursuant to 40 CFR
93.118(e)(4).
As discussed further below, EPA’s
analysis of North Carolina’s July 16,
2020 SIP submittal indicates that
maintenance will continue to be
demonstrated after allocation of a
portion of the safety margin to the
MVEBs because the total level of
emissions from all source categories
remains equal to or less than the
attainment level of emissions. Thus,
EPA is proposing to approve North
Carolina’s July 16, 2020 SIP submittal.
A. Maintenance Demonstration and
Emissions Inventory
This section contains information
regarding the previous and current SIPapproved MVEBs and inventories. The
inventories are provided for illustrative
purposes only, as in this action, EPA is
not proposing any changes the
inventories.5
As discussed above, EPA originally
approved NCDAQ’s 2008 8-hour ozone
maintenance SIP for the North Carolina
portion of the Charlotte Maintenance
Area on July 28, 2015, with the
following inventories for NOX and VOC
emissions: Base year actual emissions
inventories for 2014; projected, future,
interim year inventories for 2015, 2018,
and 2022; and projected final year
emission inventory for 2026. On
September 11, 2019 (84 FR 47889), EPA
approved NCDAQ’s July 25, 2018 SIP,
which revised the MVEBs and the
inventories; these remain the current
SIP-approved MVEBs and inventories.
Maintenance for the Charlotte
Maintenance Area is demonstrated
when the emissions in the final year of
the maintenance plan (‘‘maintenance
year’’) are less than the baseline
attainment year. In the current SIPapproved inventories, the baseline year
is 2014 and the maintenance year is
2026. See 80 FR 29250. As shown in
Table 1, for NOX, emissions for all years
(interim years and maintenance year)
are under the baseline of 130.18 tons per
summer day (tons/day); in the
maintenance year of 2026, emissions are
projected to be 60.28 tons/day.
Additionally, as shown in Table 2, for
VOC, emissions for all years (interim
years and maintenance year) are under
the baseline of 113.12 tons/day; in the
maintenance year of 2026, emissions are
projected to be 95.99 tons/day. The
downward trend in NOX and VOC
emissions is shown in Table 3 below.
TABLE 1—TOTAL MAN-MADE NOX EMISSIONS FOR NORTH CAROLINA PORTION OF THE CHARLOTTE MAINTENANCE AREA
[tons/day]
County
2014
2015
2018
2022
2026
Cabarrus * ............................................................................
Gaston * ................................................................................
Iredell * .................................................................................
Lincoln * ................................................................................
Mecklenburg .........................................................................
Rowan * ................................................................................
Union * ..................................................................................
11.49
27.89
6.86
4.36
56.71
11.74
11.13
10.73
27.62
6.49
4.71
52.97
11.31
10.36
6.78
12.03
5.41
6.41
39.16
8.28
6.63
5.44
6.41
4.68
4.29
33.52
7.01
5.09
4.44
7.87
4.16
2.34
31.33
6.10
4.05
Total ..............................................................................
130.18
124.19
84.69
66.44
60.28
* Emissions for the portion of the county included in the maintenance area.
TABLE 2—TOTAL MAN-MADE VOC EMISSIONS FOR NORTH CAROLINA PORTION OF THE CHARLOTTE MAINTENANCE AREA
[tons/day]
County
2014
2015
2018
2022
2026
Cabarrus * ............................................................................
Gaston * ................................................................................
Iredell * .................................................................................
Lincoln * ................................................................................
Mecklenburg .........................................................................
Rowan * ................................................................................
Union * ..................................................................................
11.50
12.96
6.33
6.55
50.10
12.59
13.09
11.27
12.74
6.22
6.47
49.16
12.38
12.85
9.51
11.53
5.29
4.81
45.31
12.47
10.91
9.23
10.94
5.11
4.66
44.47
12.19
10.68
9.02
10.74
4.97
4.51
43.99
12.32
10.45
Total ..............................................................................
113.12
111.09
99.82
97.28
95.99
* Emissions for the portion of the county included in the maintenance area.
TABLE 3—MAINTENANCE DEMONSTRATION FOR NORTH CAROLINA PORTION OF THE CHARLOTTE MAINTENANCE AREA
NOX
(tons/summer
day)
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Year
2014
2015
2018
2022
.........................................................................................................................................................................
.........................................................................................................................................................................
.........................................................................................................................................................................
.........................................................................................................................................................................
5 As discussed above, if EPA approves NCDAQ’s
July 16, 2020 SIP submittal, all emissions
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inventories (on-road, point, area, and nonroad) from
NCDAQ’s September 11, 2019, SIP revision remain
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130.18
124.19
84.69
66.44
VOC
(tons/summer
day)
113.12
111.09
99.82
97.28
the same, while a portion of the safety margin will
be allocated to the MVEBs.
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TABLE 3—MAINTENANCE DEMONSTRATION FOR NORTH CAROLINA PORTION OF THE CHARLOTTE MAINTENANCE AREA—
Continued
NOX
(tons/summer
day)
Year
2026 .........................................................................................................................................................................
Reduction in emissions from 2014 to 2026 .............................................................................................................
60.28
69.90
95.99
17.13
were divided by 907.1847 to convert
them to units of tons/day. The resulting
values in tons/day were rounded to two
decimal places.
Maintenance Area. The emissions are
expressed in tons/day and in kg/day
because the MVEBs are expressed in
kilograms per day kg/day. The
MOVES2014 output emissions values
were rounded to the nearest kg/day and
The following table provides the NOX
and VOC on-road mobile emissions
inventory for the 2014 (base year) and
2026 (maintenance year) for the 2008 8hour ozone NAAQS for the North
Carolina portion of the Charlotte
VOC
(tons/summer
day)
TABLE 4—ON-ROAD MOBILE SOURCE NOX AND VOC SUMMER DAY EMISSIONS IN 2014 AND 2026 FOR THE NORTH
CAROLINA PORTION OF THE CHARLOTTE MAINTENANCE AREA
2014 NOX
2014 VOC
2026 NOX
2026 VOC
County
tons/day
kg/day
tons/day
kg/day
tons/day
kg/day
tons/day
kg/day
Cabarrus * ........................
Gaston ** ..........................
Iredell * .............................
Lincoln * ............................
Mecklenburg ** .................
Rowan * ............................
Union * ..............................
6.60
8.11
3.36
3.00
26.99
6.42
5.67
5,989
7,357
3,045
2,723
24,488
5,825
5,146
4.15
4.61
1.95
1.91
14.40
3.76
3.54
3,765
4,179
1,768
1,737
13,060
3,408
3,210
2.00
2.12
1.00
0.83
7.17
1.73
1.62
1,810
1,924
903
757
6,501
1,571
1,466
2.19
1.86
0.88
0.86
6.98
1.53
1.68
1,982
1,689
801
779
6,334
1,389
1,520
Total ..........................
60.15
54,572
34.32
31,127
16.47
14,932
15.98
14,494
* Emissions for the portion of the county included in the maintenance area.
** The 2014 base year NOX and VOC emissions for Gaston and Mecklenburg counties have been revised slightly to correct a transcription
error in the original maintenance plan.
A safety margin is the difference
between the attainment level of
emissions from all source categories
(i.e., point, area, on-road and nonroad)
(2014 in this case) and the projected
level of emissions from all source
categories in the maintenance year
(2026 in this case). The State may
choose to allocate some of the safety
margin to the MVEBs, for transportation
conformity purposes, so long as the total
level of emissions from all source
categories remains equal to or less than
the attainment level of emissions. North
Carolina previously chose to allocate a
portion of its NOX and VOC safety
margin to the MVEBs for the entire
North Carolina portion of the Charlotte
Maintenance Area for the year 2026. See
84 FR 22774 (May 20, 2019) and 84 FR
47889 (Sept. 11, 2019). The current SIPapproved safety margins, percent
increase allocated to the 2026 NOX and
VOC MVEBs from the safety margin for
each county, and resulting subarea
MVEBs in the North Carolina portion of
the Charlotte Maintenance Area are
listed in Tables 5 through 9 below.
TABLE 5—CURRENT SAFETY MARGINS FOR NORTH CAROLINA PORTION OF THE CHARLOTTE MAINTENANCE AREA
NOX
(tons/summer
day)
Year
2014
2015
2018
2022
2026
.........................................................................................................................................................................
.........................................................................................................................................................................
.........................................................................................................................................................................
.........................................................................................................................................................................
.........................................................................................................................................................................
N/A
¥5.99
¥45.49
¥63.74
¥66.60
VOC
(tons/summer
day)
N/A
¥2.03
¥13.30
¥15.84
¥13.92
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TABLE 6—CURRENT PERCENT INCREASE TO THE 2026 MOBILE VEHICLE EMISSIONS BUDGET
County
2026
Cabarrus ..............................................................................................................................................................................................
Gaston .................................................................................................................................................................................................
Iredell ...................................................................................................................................................................................................
Lincoln ..................................................................................................................................................................................................
Mecklenburg ........................................................................................................................................................................................
Rowan ..................................................................................................................................................................................................
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TABLE 6—CURRENT PERCENT INCREASE TO THE 2026 MOBILE VEHICLE EMISSIONS BUDGET—Continued
County
2026
Union ....................................................................................................................................................................................................
20
TABLE 7—CABARRUS ROWAN METROPOLITAN PLANNING ORGANIZATION (CRMPO) MVEBS IN 2014 AND 2026
[kg/day] *
Base On-road Emissions .................................................................................
Safety margin allocated to MVEB ...................................................................
Conformity MVEB ............................................................................................
2014 NOX
2014 VOC
11,814
........................
11,814
7,173
........................
7,173
2026 NOX
2026 VOC
3,381
846
4,227
3,371
843
4,214
* Includes the portion of Cabarrus and Rowan Counties in the maintenance area.
TABLE 8—GASTON-CLEVELAND-LINCOLN METROPOLITAN PLANNING ORGANIZATION (GCLMPO) MVEBS IN 2014 AND
2026
[kg/day] *
Base On-road Emissions .................................................................................
Safety margin allocated to MVEB ...................................................................
Conformity MVEB ............................................................................................
2014 NOX
2014 VOC
10,079
........................
10,079
5,916
........................
5,916
2026 NOX
2026 VOC
2,681
551
3,232
2,468
510
2,978
* Includes the portion of Gaston and Lincoln counties in the maintenance area. Although Cleveland County is included in the MPO, it is not included in the Charlotte ozone maintenance area.
TABLE 9—CHARLOTTE REGIONAL TRANSPORTATION PLANNING ORGANIZATION (CRTPO)—ROCKY RIVER RURAL
PLANNING ORGANIZATION (RRRPO) MVEBS IN 2014 AND 2026
[kg/day] *
Base On-road Emissions .................................................................................
Safety margin allocated to MVEB ...................................................................
Conformity MVEB ............................................................................................
2014 NOX
2014 VOC
32,679
........................
32,679
18,038
........................
18,038
2026 NOX
8,870
1,596
10,466
2026 VOC
8,655
1,557
10,212
*Includes all of Mecklenburg County and a portion of Iredell and Union Counties in the maintenance area.
B. Revised MVEBs
In the July 16, 2020 SIP revision,
North Carolina requested that EPA
approve revisions to the MVEBs for the
North Carolina portion of the Charlotte
2008 Ozone Maintenance Area by
allocating a portion of the remaining
safety margin to the MVEBs.6 7 The
MVEB revisions are proposed to
accommodate recent updates to the
travel demand model impacting vehicle
miles traveled, changes and uncertainty
in vehicle mix assumptions, and
uncertainty associated with mobile
modeling in the North Carolina portion
of the Charlotte Maintenance Area. The
cumulative percent increases—
including both the current SIP-approved
percent increases as shown in Table 6,
above, as well as the proposed 20
percent increase applied to all
counties—to the MVEBs for the North
Carolina counties in the Charlotte 2008
Ozone Maintenance Area are listed in
the Table 10 below.
TABLE 10—PROPOSED PERCENT INCREASE TO THE 2026 MOBILE VEHICLE EMISSIONS BUDGET
County
2026
jbell on DSKJLSW7X2PROD with PROPOSALS
Cabarrus ..............................................................................................................................................................................................
Gaston .................................................................................................................................................................................................
Iredell ...................................................................................................................................................................................................
Lincoln ..................................................................................................................................................................................................
Mecklenburg ........................................................................................................................................................................................
Rowan ..................................................................................................................................................................................................
Union ....................................................................................................................................................................................................
6 As with the original SIP approved on July 15,
2015, and the last revision approved on September
11, 2019, NCDAQ utilized a five-step approach for
determining a factor to use to calculate the amount
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of safety margin to apply to the MVEBs for 2026.
See Appendix A of the submittal for more detailed
information.
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40
42
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37
45
40
7 The proposed changes to the safety margins are
discussed in section III.C., below.
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Federal Register / Vol. 86, No. 118 / Wednesday, June 23, 2021 / Proposed Rules
The following tables provide the
proposed updated NOX and VOC subarea MVEBs with the proposed safety
margin allocations in kg/day for
transportation conformity purposes for
2026 (2014 is only shown for
illustration because no changes are
being made to the MVEBs for that year).
The amount of the proposed safety
margin allocation includes the current
32855
SIP-approved safety margin allocations
referenced in the tables above as well as
the proposed percentages in values.
TABLE 11—CABARRUS ROWAN METROPOLITAN PLANNING ORGANIZATION (CRMPO) MVEBS IN 2014 AND 2026
[kg/day] *
Base On-road Emissions .................................................................................
Safety margin allocated to MVEB ...................................................................
Conformity MVEB ............................................................................................
2014 NOX
2014 VOC
11,814
........................
11,814
7,173
........................
7,173
2026 NOX
3,381
1,522
4,903
2026 VOC
3,371
1,517
4,888
* Includes the portion of Cabarrus and Rowan Counties in the maintenance area. The allocation proposed in this action to the NOX MVEB is
676 kg/day and VOC is 674 kg/day.
TABLE 12—GASTON-CLEVELAND-LINCOLN METROPOLITAN PLANNING ORGANIZATION (GCLMPO) MVEBS IN 2014 AND
2026
[kg/day] *
2014 NOX
Base On-road Emissions .................................................................................
Safety margin allocated to MVEB ...................................................................
Conformity MVEB ............................................................................................
2014 VOC
10,079
10,079
5,916
5,916
2026 NOX
2,681
1,087
3,768
2026 VOC
2,468
1,004
3,472
* Includes the portion of Gaston and Lincoln counties in the maintenance area. Although Cleveland County is included in the MPO, it is not included in the Charlotte ozone maintenance area. The allocation proposed in this action to the NOX MVEB is 536 kg/day and VOC is 494 kg/day.
TABLE 13—CHARLOTTE REGIONAL TRANSPORTATION PLANNING ORGANIZATION (CRTPO)—ROCKY RIVER RURAL
PLANNING ORGANIZATION (RRRPO) MVEBS IN 2014 AND 2026
[kg/day] *
Base On-road Emissions .................................................................................
Safety margin allocated to MVEB ...................................................................
Conformity MVEB ............................................................................................
2014 NOX
2014 VOC
32,679
........................
32,679
18,038
........................
18,038
2026 NOX
8,870
3,371
12,241
2026 VOC
8,655
3,288
11,943
* Includes all of Mecklenburg County and a portion of Iredell and Union Counties in the maintenance area. The allocation proposed in this action to the NOX MVEB is 1,775 kg/day and VOC is 1,731 kg/day.
C. Revised Safety Margin
As mentioned before, a safety margin
is the difference between the attainment
level of emissions from all source
categories (i.e., point, area, on-road, and
nonroad) and the projected level of
emissions in the maintenance year from
all source categories. NCDAQ has
requested EPA approve allocation of
some of the available safety margin to
the 2026 MVEBs for transportation
conformity purposes. The total level of
emissions from all source categories
remains equal to or less than the
attainment level of emissions.
EPA is proposing to approve changes
to the MVEBs that result in additional
safety margin allocations to the 2026
MVEBs of 2,987 kg/day (3.29 tons/day)
of NOX and 2,899 kg/day (3.19 tons/day)
of VOC. This includes a proposed
allocation of 676 and 674 kg/day of NOX
and VOC, respectively for the CabarrusRowan MPO; 536 and 494 kg/day of
NOX and VOC, respectively for the
Gaston-Cleveland MPO; and 1,775 and
1,731 kg/day, respectively for the
Charlotte Regional TPO. Thus, if EPA’s
action is finalized as proposed, the
cumulative safety margin emissions
allocated to the 2026 MVEBs will be
5,980 kg/day (6.59 tons/day) of NOX and
5,809 kg/day (6.40 tons/day) of VOC.8
The proposed new safety margins
available for the North Carolina portion
of the Charlotte Maintenance Area are
listed below.
TABLE 14—NEW SAFETY MARGINS FOR THE NORTH CAROLINA PORTION OF THE CHARLOTTE MAINTENANCE AREA
NOX
(tons/day)
jbell on DSKJLSW7X2PROD with PROPOSALS
Year
2014
2015
2018
2022
2026
.........................................................................................................................................................................
.........................................................................................................................................................................
.........................................................................................................................................................................
.........................................................................................................................................................................
.........................................................................................................................................................................
8 The amount of the safety margin is a cumulative
total of the current safety margin allocations (shown
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in Tables 5 through 7) and the proposed safety
margin allocations (shown in Tables 11 through 13).
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N/A
¥5.99
¥45.49
¥63.74
¥63.31
VOC
(tons/day)
N/A
¥2.03
¥13.30
¥15.84
¥10.73
32856
Federal Register / Vol. 86, No. 118 / Wednesday, June 23, 2021 / Proposed Rules
D. Adequacy of the Budgets
EPA evaluated NCDAQ’s July 16,
2020 SIP revision allocating a portion of
the available safety margin to the 2026
MOVES2014 based budgets in the
revised 2008 8-hour ozone Charlotte
maintenance plan for use in
determining transportation conformity
in the North Carolina portion of the
Charlotte Maintenance Area. EPA is
proposing this action based on our
evaluation of these budgets using the
adequacy criteria found in 40 CFR
93.118(e)(4) and evaluation of NCDAQ’s
submittal and SIP requirements. EPA is
proposing to approve this SIP revision
because the SIP continues to serve its
intended purpose of maintenance of the
2008 8-hour ozone standard with the
newly revised MOVES2014 based
budgets and to deem the budgets
adequate for transportation conformity
purposes because they meet the
adequacy criteria in the conformity rule
at 40 CFR 93.118(e)(4). Specifically:
• NCDAQ’s SIP was endorsed by the
Governor’s designee and was subject to
a state public hearing ((e)(4)(i));
• Before NCDAQ submitted the SIP
revision to EPA, consultation among
federal, state, and local agencies
occurred and full documentation was
provided to EPA and EPA had no
concerns ((e)(4)(ii));
• The budgets are clearly identified
and precisely quantified ((e)(4)(iii));
• The budgets, when considered
together with all other emissions
sources, are consistent with applicable
requirements for reasonable further
progress, attainment, or maintenance
((e)(4)(iv));
• The budgets are consistent with and
clearly related to the emissions
inventory and control measures in the
SIP revision submitted July 16, 2020
((e)(4)(v)); and
• The July 16, 2020 SIP revision
explains and documents changes to the
previous budgets, impacts on point and
area source emissions, and changes to
established safety margins, and reasons
for the changes (including the basis for
any changes related to emission factors
or vehicle miles traveled) ((e)(4)(vi)).
jbell on DSKJLSW7X2PROD with PROPOSALS
IV. Proposed Action
EPA is proposing to approve
NCDAQ’s July 16, 2020 SIP revision,
requesting approval of a revision to the
Charlotte 2008 8-hr Ozone Maintenance
Plan in order to allocate a portion of the
available safety margin to revise the
2026 NOX and VOC MVEBs. The revised
MVEBs ensure continued attainment of
the 2008 8-hour ozone NAAQS through
the maintenance year 2026. In addition,
EPA is proposing to deem the MVEBs
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Jkt 253001
adequate for transportation conformity
purposes because the budgets meet the
adequacy criteria in the conformity rule
at 40 CFR 93.118(e)(4). If approved, the
newly revised 2026 budgets for NOX
and VOC identified in Tables 11
through 13 will be used by the MPOs in
future transportation conformity
determinations. The remaining safety
margin is 63.31 tons/day and 13.73
tons/day for NOX and VOC,
respectively. EPA has evaluated North
Carolina’s submittal and has determined
that it meets the applicable
requirements of the CAA and EPA
regulations, and is consistent with EPA
policy.
V. Statutory and Executive Order
Reviews
Under the CAA, the Administrator is
required to approve a SIP submittal that
complies with the provisions of the Act
and applicable federal regulations. See
42 U.S.C. 7410(k); 40 CFR 52.02(a).
Thus, in reviewing SIP submissions,
EPA’s role is to approve state choices,
provided that they meet the criteria of
the CAA. Accordingly, this proposed
action merely proposes to approve state
law as meeting Federal requirements
and does not propose to impose
additional requirements beyond those
imposed by state law. For that reason,
these proposed actions:
• Are not significant regulatory
actions 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);
• Do not impose information
collection burdens under the provisions
of the Paperwork Reduction Act (44
U.S.C. 3501 et seq.);
• Are certified as not having
significant economic impacts on a
substantial number of small entities
under the Regulatory Flexibility Act (5
U.S.C. 601 et seq.);
• Do 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);
• Do not have Federalism
implications as specified in Executive
Order 13132 (64 FR 43255, October 7,
1999);
• Are not economically significant
regulatory actions based on health or
safety risks subject to Executive Order
13045 (62 FR 19885, April 23, 1997);
• Are not significant regulatory
actions subject to Executive Order
13211 (66 FR 28355, May 22, 2001);
• Are not subject to requirements of
Section 12(d) of the National
Technology Transfer and Advancement
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Act of 1995 (15 U.S.C. 272 note) because
application of those requirements would
be inconsistent with the CAA; and
• Do not provide EPA with the
discretionary authority to address, as
appropriate, disproportionate human
health or environmental effects, using
practicable and legally permissible
methods, under Executive Order 12898
(59 FR 7629, February 16, 1994).
In addition, the SIP is not approved
to apply on any Indian reservation land
or in any other area where EPA or an
Indian tribe has demonstrated that a
tribe has jurisdiction. In those areas of
Indian country, the proposed rule does
not have tribal implications as specified
by Executive Order 13175 (65 FR 67249,
November 9, 2000) nor will it impose
substantial direct costs on tribal
governments or preempt tribal law.
List of Subjects in 40 CFR Part 52
Environmental protection, Air
pollution control, Incorporation by
reference, Intergovernmental relations,
Carbon monoxide, Nitrogen dioxide,
Ozone, Particulate matter, Reporting
and recordkeeping requirements and
Volatile organic compounds.
Authority: 42 U.S.C. 7401 et seq.
Dated: June 10, 2021.
John Blevins,
Acting Regional Administrator, Region 4.
[FR Doc. 2021–13081 Filed 6–22–21; 8:45 am]
BILLING CODE 6560–50–P
ENVIRONMENTAL PROTECTION
AGENCY
40 CFR Part 141
[EPA–HQ–OW–2021–0255; FRL–10024–80–
OW]
Lead and Copper Rule Revisions
(LCRR) Virtual Engagements
Environmental Protection
Agency (EPA).
ACTION: Extension of comment period.
AGENCY:
The U.S. Environmental
Protection Agency (EPA) is extending
the comment period for the Lead and
Copper Rule Revisions (LCRR) Virtual
Engagements. In order to provide the
public with opportunities to submit
additional comments to the LCRR
Virtual Engagements docket after
participating in or viewing the
community, tribal, and stakeholder
roundtables, EPA is extending the
comment period an additional 30 days,
from June 30, 2021 to July 30, 2021.
DATES: The comment period announced
in the document published on April 5,
2021 (86 FR 17571), is extended.
SUMMARY:
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]]>Agencies
[Federal Register Volume 86, Number 118 (Wednesday, June 23, 2021)]
[Proposed Rules]
[Pages 32850-32856]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2021-13081]
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ENVIRONMENTAL PROTECTION AGENCY
40 CFR Part 52
[EPA-R04-OAR-2020-0515; FRL-10024-72-Region 4]
Air Plan Approval; North Carolina; Revision to Approved Motor
Vehicle Emissions Budgets
AGENCY: Environmental Protection Agency (EPA).
ACTION: Proposed rule.
-----------------------------------------------------------------------
SUMMARY: The Environmental Protection Agency (EPA) is proposing to
approve a revision to the North Carolina State Implementation Plan
(SIP), submitted to EPA on July 16, 2020, by the State of North
Carolina, through the North Carolina Department of Environment and
Natural Resources, Division of Air Quality (NCDAQ) for the purpose of
allocating a portion of the available 2026 safety margin in the 2008 8-
hour Ozone Maintenance Plan to the 2026 nitrogen oxides
(NOX) and volatile organic compounds (VOC) motor vehicle
emissions budgets (``MVEBs'' or ``budgets'') for the North Carolina
portion of the Charlotte-Rock Hill, NC-SC bi-state Area (hereinafter
referred to as the ``North Carolina portion of the Charlotte
Maintenance Area'') to account for uncertainty associated with the
mobile emissions model and unanticipated growth in vehicle miles
traveled for the North Carolina portion of the Charlotte Maintenance
Area. This SIP revision also revises the 2026 MVEBs which are used for
transportation conformity. NCDAQ's July 16, 2020 submission supplements
the revised 2008 8-hour Ozone Maintenance Plan submitted by NCDAQ on
July 25, 2018, and approved by EPA on September 11, 2019. EPA is
proposing to approve North Carolina's July 16, 2020 SIP revision and
deem the MVEBs adequate for transportation conformity purposes because
they meet all the statutory and regulatory requirements.
DATES: Comments must be received on or before July 23, 2021.
ADDRESSES: Submit your comments, identified by Docket ID No. EPA-R04-
OAR-2020-0515 at 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 submit electronically any information you
consider to be Confidential Business Information (CBI) or other
information whose disclosure is restricted by statute. Multimedia
submissions (audio, video, etc.) must be accompanied by a written
comment. The written comment is considered the official comment and
should include discussion of all points you wish to make. EPA will
generally not consider comments or comment contents located outside of
the primary submission (i.e., on the web, cloud, or other file sharing
system). For additional submission methods, the full EPA public comment
policy, information about CBI or multimedia submissions, and general
guidance on making effective comments, please visit www2.epa.gov/dockets/commenting-epa-dockets.
FOR FURTHER INFORMATION CONTACT: Dianna Myers, Air Regulatory
Management Section, Air Planning and Implementation Branch, Air and
Radiation Division, U.S. Environmental Protection Agency, Region 4, 61
Forsyth Street SW, Atlanta, Georgia 30303-8960. The telephone number is
(404) 562-9207. Ms. Myers can also be reached via electronic mail at
[email protected].
SUPPLEMENTARY INFORMATION:
I. What action is EPA proposing?
EPA is proposing to approve NCDAQ's July 16, 2020, SIP revision to
allocate a portion of the available safety margin to revise the 2026
NOX and VOC budgets for the North Carolina portion of
Charlotte 2008 8-hour Ozone Maintenance Area \1\ for transportation
conformity purposes. NCDAQ requested approval of the July 16, 2020 SIP
revision in order to account for unanticipated changes in the travel
demand model, such as unanticipated growth in vehicle miles traveled,
changes and uncertainty in vehicle mix assumptions, and uncertainty
associated with mobile emissions modeling.
---------------------------------------------------------------------------
\1\ The North Carolina portion of the Charlotte Maintenance Area
for the 2008 ozone NAAQS is comprised of the following counties:
Mecklenburg in its entirety and portions of Cabarrus, Gaston,
Iredell, Lincoln, Rowan, and Union counties. See section II.B. for
more detail.
---------------------------------------------------------------------------
If EPA finalizes this proposed approval, the revised 2026 budgets
from NCDAQ's July 16, 2020, SIP revision will replace the existing
budgets in the State's 2008 8-hour Ozone Maintenance Plan revision
approved on September 11, 2019. See 84 FR 47889. If approved, these
newly revised 2026 budgets must be used in future transportation
conformity analyses for the Area according to the transportation
conformity rule. See 40 CFR 93.118. Therefore, the September 11, 2019,
approved budgets would no longer be applicable for transportation
conformity purposes.
In the State's submission, all emissions inventories (on-road,
point, area, and nonroad) from NCDAQ's September 11, 2019, SIP revision
remain the same. The submission only allocates a portion of the
available safety margin to the 2026 NOX and VOC MVEBs.
Therefore, EPA is proposing to conclude that North Carolina's July 16,
2020, SIP revision continues to demonstrate
[[Page 32851]]
maintenance for the Charlotte Maintenance Area.
II. What is the background for this action?
A. SIP Budgets and Transportation Conformity
Under the CAA, states are required to submit, at various times,
control strategy SIP revisions and maintenance plans for nonattainment
and maintenance areas for a given NAAQS. These emission control
strategy SIP revisions (e.g., reasonable further progress and
attainment demonstration SIP revisions) and maintenance plans include
budgets of on-road mobile source emissions for criteria pollutants and/
or their precursors to address pollution from cars, trucks, and other
on-road vehicles. The MVEBs are the portion of the total allowable
emissions that are allocated to on-road vehicle use that, together with
emissions from other sources in the area, will provide for attainment
or maintenance. The MVEBs serve as a ceiling on emissions from an
area's planned transportation system.
Under section 176(c) of the CAA, transportation plans,
transportation improvement programs (TIPs), and transportation projects
must ``conform'' to (i.e., be consistent with) the SIP before they can
be adopted or approved. Conformity to the SIP means that transportation
activities will not cause new air quality violations, worsen existing
air quality violations, or delay timely attainment of the NAAQS or an
interim milestone. The transportation conformity regulations can be
found at 40 CFR parts 51 and 93.
Before budgets can be used in conformity determinations, EPA must
affirmatively find the budgets adequate. However, adequate budgets do
not supersede approved budgets for the same CAA purpose. If the
submitted SIP budgets are meant to replace budgets for the same CAA
purpose and year(s) addressed by a previously approved SIP revision, as
is the case with this SIP, EPA can approve the revised SIP and budgets
and also affirm that the budgets are adequate at the same time. Once
EPA approves the SIP with the submitted budgets, the revised budgets
must be used by state and Federal agencies in determining whether
transportation activities conform to the SIP as required by section
176(c) of the CAA. EPA's substantive criteria for determining the
adequacy of budgets are set out in 40 CFR 93.118(e)(4).
B. Prior Approval of Budgets
Effective July 20, 2012, EPA designated the Charlotte-Rock Hill,
NC-SC Area as Marginal nonattainment for the 2008 8-hour ozone national
ambient air quality standard (hereinafter referred to as NAAQS or
standard). The North Carolina portion of the Charlotte 2008 Maintenance
Area includes Mecklenburg in its entirety and portions of Cabarrus,
Gaston, Iredell, Lincoln, Rowan, and Union counties. The Charlotte
Maintenance Area also includes a portion of York County located in Rock
Hill, South Carolina. See 77 FR 30088. The North Carolina portion of
the Charlotte Maintenance Area is comprised of three metropolitan
planning organizations (MPOs): The Charlotte Regional Transportation
Planning Organization (CRTPO) which covers Iredell, Mecklenburg, and
Union counties; the Cabarrus-Rowan Metropolitan Planning Organization
(CRMPO) which covers Cabarrus and Rowan counties; and the Gaston-
Cleveland-Lincoln Metropolitan Planning Organization (GCLMPO) which
covers Gaston, Cleveland, and Lincoln counties. Although Cleveland
County is included in the GCLMPO planning boundary, it was not included
in the North Carolina portion of the Charlotte Maintenance Area. Each
MPO has its own budget referred to as a ``sub-area budget.'' The York
County, South Carolina portion of this maintenance area has a separate
MPO and budgets. The South Carolina portion of the maintenance area
implements transportation conformity independent of the North Carolina
portion.
EPA approved the redesignation request and maintenance plan for
North Carolina's portion of the Charlotte 2008 8-hour ozone Area on
July 28, 2015 (80 FR 44873) with 2014 and 2026 NOX and VOC
sub-area MVEBs.\2\ On August 17, 2015 (80 FR 49164), EPA approved North
Carolina's section 110(l) noninterference demonstration requesting
relaxation of the Federal Reid Vapor Pressure from 7.8 pounds per
square inch (psi) to 9.0 psi and a revision to the 2026 NOX
and VOC sub-area MVEBs for Mecklenburg and Gaston Counties only. See 80
FR 44868.
---------------------------------------------------------------------------
\2\ There are currently six ozone monitors located throughout
the North Carolina portion of the Charlotte Maintenance Area and one
monitor located in York County, South Carolina. The current design
value for the Charlotte Maintenance Area is 70 parts per billion.
---------------------------------------------------------------------------
Subsequently, on July 25, 2018, NCDAQ submitted a revision to the
Charlotte 2008 8-hour ozone maintenance plan to update the emissions
forecast and MVEBs for 2026 to account for the small increase in
NOX and VOC emissions associated with the change in vehicle
model year coverage due to changes in the state of North Carolina's
inspection and maintenance (I/M) program. On September 11, 2019 (84 FR
47889), EPA approved NCDAQ's July 25, 2018 SIP revision related to
North Carolina's I/M Program. The September 11, 2019, SIP approval
updated the on-road mobile source inventory and revised the 2026 sub-
area VOC and NOX budgets for Cabarrus and Rowan counties.
The revised 2026 MVEBs became effective on October 11, 2019.
C. MOVES Emissions Model
The Motor Vehicle Emissions Simulator (MOVES) model is designed by
EPA to estimate air pollution emissions from mobile sources. MOVES can
be used to estimate exhaust and evaporative emissions as well as brake
and tire wear emissions from all types of on-road vehicles for any part
of the country, except California.\3\ MOVES2014 and its subsequent
minor updates, MOVES2014a and MOVES2014b, added the capability to
estimate exhaust and evaporative emissions from most types of nonroad
equipment. North Carolina's July 16, 2020 SIP submittal contains mobile
source emissions estimates using MOVES2014 with local inputs data to
more accurately represent local vehicle fleets and emissions
characteristics.\4\ See MOVES2014, MOVES2014a, and MOVES2014b Technical
Guidance: Using MOVES to Prepare Emission Inventories for State
Implementation Plans and Transportation Conformity, EPA-420-B-18-039,
August 2018, available at https://nepis.epa.gov/Exe/ZyPURL.cgi?Dockey=P100V7EY.txt.
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\3\ In California, a different on-road emissions model, EMFAC,
is used for regulatory purposes instead of MOVES.
\4\ On January 7, 2021 (86 FR 1106), EPA announced the
availability of the MOVES3 for official purposes outside of
California. MOVES3 is the state of the science emission modeling
system that incorporates the latest emissions data and estimates
emissions from mobile sources at the national, county, and project
level for criteria air pollutants, greenhouse gases, and air toxics.
While MOVES3 is available for use in SIPs and transportation
conformity analyses outside of California, states and local agencies
that had completed a SIP revision with MOVES2014 at the time of the
release of MOVES3 could continue to rely on MOVES2014 for that SIP
submittal. NCDAQ completed and submitted the SIP revision that is
the subject of this proposed action on July 16, 2020, before MOVES3
was released.
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III. What is EPA's analysis of North Carolina's submittal?
EPA's analysis involves an emissions comparison between the current
SIP-approved MVEBs and the MVEBs that North Carolina has requested EPA
approve in the July 16, 2020 SIP submittal. Section III.A. provides
information regarding the current SIP-
[[Page 32852]]
approved MVEBs and inventories, while sections III.B. and III.C.
contain information and analysis regarding the proposed revisions to
the MVEBs and safety margin, respectively. Section III.D. contains
EPA's proposed analysis of the adequacy of North Carolina's revised
MVEBs pursuant to 40 CFR 93.118(e)(4).
As discussed further below, EPA's analysis of North Carolina's July
16, 2020 SIP submittal indicates that maintenance will continue to be
demonstrated after allocation of a portion of the safety margin to the
MVEBs because the total level of emissions from all source categories
remains equal to or less than the attainment level of emissions. Thus,
EPA is proposing to approve North Carolina's July 16, 2020 SIP
submittal.
A. Maintenance Demonstration and Emissions Inventory
This section contains information regarding the previous and
current SIP-approved MVEBs and inventories. The inventories are
provided for illustrative purposes only, as in this action, EPA is not
proposing any changes the inventories.\5\
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\5\ As discussed above, if EPA approves NCDAQ's July 16, 2020
SIP submittal, all emissions inventories (on-road, point, area, and
nonroad) from NCDAQ's September 11, 2019, SIP revision remain the
same, while a portion of the safety margin will be allocated to the
MVEBs.
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As discussed above, EPA originally approved NCDAQ's 2008 8-hour
ozone maintenance SIP for the North Carolina portion of the Charlotte
Maintenance Area on July 28, 2015, with the following inventories for
NOX and VOC emissions: Base year actual emissions
inventories for 2014; projected, future, interim year inventories for
2015, 2018, and 2022; and projected final year emission inventory for
2026. On September 11, 2019 (84 FR 47889), EPA approved NCDAQ's July
25, 2018 SIP, which revised the MVEBs and the inventories; these remain
the current SIP-approved MVEBs and inventories.
Maintenance for the Charlotte Maintenance Area is demonstrated when
the emissions in the final year of the maintenance plan (``maintenance
year'') are less than the baseline attainment year. In the current SIP-
approved inventories, the baseline year is 2014 and the maintenance
year is 2026. See 80 FR 29250. As shown in Table 1, for NOX,
emissions for all years (interim years and maintenance year) are under
the baseline of 130.18 tons per summer day (tons/day); in the
maintenance year of 2026, emissions are projected to be 60.28 tons/day.
Additionally, as shown in Table 2, for VOC, emissions for all years
(interim years and maintenance year) are under the baseline of 113.12
tons/day; in the maintenance year of 2026, emissions are projected to
be 95.99 tons/day. The downward trend in NOX and VOC
emissions is shown in Table 3 below.
Table 1--Total Man-Made NOX Emissions for North Carolina Portion of the Charlotte Maintenance Area
[tons/day]
----------------------------------------------------------------------------------------------------------------
County 2014 2015 2018 2022 2026
----------------------------------------------------------------------------------------------------------------
Cabarrus *...................... 11.49 10.73 6.78 5.44 4.44
Gaston *........................ 27.89 27.62 12.03 6.41 7.87
Iredell *....................... 6.86 6.49 5.41 4.68 4.16
Lincoln *....................... 4.36 4.71 6.41 4.29 2.34
Mecklenburg..................... 56.71 52.97 39.16 33.52 31.33
Rowan *......................... 11.74 11.31 8.28 7.01 6.10
Union *......................... 11.13 10.36 6.63 5.09 4.05
-------------------------------------------------------------------------------
Total....................... 130.18 124.19 84.69 66.44 60.28
----------------------------------------------------------------------------------------------------------------
* Emissions for the portion of the county included in the maintenance area.
Table 2--Total Man-Made VOC Emissions for North Carolina Portion of the Charlotte Maintenance Area
[tons/day]
----------------------------------------------------------------------------------------------------------------
County 2014 2015 2018 2022 2026
----------------------------------------------------------------------------------------------------------------
Cabarrus *...................... 11.50 11.27 9.51 9.23 9.02
Gaston *........................ 12.96 12.74 11.53 10.94 10.74
Iredell *....................... 6.33 6.22 5.29 5.11 4.97
Lincoln *....................... 6.55 6.47 4.81 4.66 4.51
Mecklenburg..................... 50.10 49.16 45.31 44.47 43.99
Rowan *......................... 12.59 12.38 12.47 12.19 12.32
Union *......................... 13.09 12.85 10.91 10.68 10.45
-------------------------------------------------------------------------------
Total....................... 113.12 111.09 99.82 97.28 95.99
----------------------------------------------------------------------------------------------------------------
* Emissions for the portion of the county included in the maintenance area.
Table 3--Maintenance Demonstration for North Carolina Portion of the
Charlotte Maintenance Area
------------------------------------------------------------------------
NOX (tons/ VOC (tons/
Year summer day) summer day)
------------------------------------------------------------------------
2014.................................... 130.18 113.12
2015.................................... 124.19 111.09
2018.................................... 84.69 99.82
2022.................................... 66.44 97.28
[[Page 32853]]
2026.................................... 60.28 95.99
Reduction in emissions from 2014 to 2026 69.90 17.13
------------------------------------------------------------------------
The following table provides the NOX and VOC on-road
mobile emissions inventory for the 2014 (base year) and 2026
(maintenance year) for the 2008 8-hour ozone NAAQS for the North
Carolina portion of the Charlotte Maintenance Area. The emissions are
expressed in tons/day and in kg/day because the MVEBs are expressed in
kilograms per day kg/day. The MOVES2014 output emissions values were
rounded to the nearest kg/day and were divided by 907.1847 to convert
them to units of tons/day. The resulting values in tons/day were
rounded to two decimal places.
Table 4--On-Road Mobile Source NOX and VOC Summer Day Emissions in 2014 and 2026 for the North Carolina Portion of the Charlotte Maintenance Area
--------------------------------------------------------------------------------------------------------------------------------------------------------
2014 NOX 2014 VOC 2026 NOX 2026 VOC
County -------------------------------------------------------------------------------------------------------
tons/day kg/day tons/day kg/day tons/day kg/day tons/day kg/day
--------------------------------------------------------------------------------------------------------------------------------------------------------
Cabarrus *...................................... 6.60 5,989 4.15 3,765 2.00 1,810 2.19 1,982
Gaston **....................................... 8.11 7,357 4.61 4,179 2.12 1,924 1.86 1,689
Iredell *....................................... 3.36 3,045 1.95 1,768 1.00 903 0.88 801
Lincoln *....................................... 3.00 2,723 1.91 1,737 0.83 757 0.86 779
Mecklenburg **.................................. 26.99 24,488 14.40 13,060 7.17 6,501 6.98 6,334
Rowan *......................................... 6.42 5,825 3.76 3,408 1.73 1,571 1.53 1,389
Union *......................................... 5.67 5,146 3.54 3,210 1.62 1,466 1.68 1,520
-------------------------------------------------------------------------------------------------------
Total....................................... 60.15 54,572 34.32 31,127 16.47 14,932 15.98 14,494
--------------------------------------------------------------------------------------------------------------------------------------------------------
* Emissions for the portion of the county included in the maintenance area.
** The 2014 base year NOX and VOC emissions for Gaston and Mecklenburg counties have been revised slightly to correct a transcription error in the
original maintenance plan.
A safety margin is the difference between the attainment level of
emissions from all source categories (i.e., point, area, on-road and
nonroad) (2014 in this case) and the projected level of emissions from
all source categories in the maintenance year (2026 in this case). The
State may choose to allocate some of the safety margin to the MVEBs,
for transportation conformity purposes, so long as the total level of
emissions from all source categories remains equal to or less than the
attainment level of emissions. North Carolina previously chose to
allocate a portion of its NOX and VOC safety margin to the
MVEBs for the entire North Carolina portion of the Charlotte
Maintenance Area for the year 2026. See 84 FR 22774 (May 20, 2019) and
84 FR 47889 (Sept. 11, 2019). The current SIP-approved safety margins,
percent increase allocated to the 2026 NOX and VOC MVEBs
from the safety margin for each county, and resulting subarea MVEBs in
the North Carolina portion of the Charlotte Maintenance Area are listed
in Tables 5 through 9 below.
Table 5--Current Safety Margins for North Carolina Portion of the
Charlotte Maintenance Area
------------------------------------------------------------------------
NOX (tons/ VOC (tons/
Year summer day) summer day)
------------------------------------------------------------------------
2014.................................... N/A N/A
2015.................................... -5.99 -2.03
2018.................................... -45.49 -13.30
2022.................................... -63.74 -15.84
2026.................................... -66.60 -13.92
------------------------------------------------------------------------
Table 6--Current Percent Increase to the 2026 Mobile Vehicle Emissions
Budget
------------------------------------------------------------------------
County 2026
------------------------------------------------------------------------
Cabarrus................................................ 25
Gaston.................................................. 20
Iredell................................................. 22
Lincoln................................................. 22
Mecklenburg............................................. 17
Rowan................................................... 25
[[Page 32854]]
Union................................................... 20
------------------------------------------------------------------------
Table 7--Cabarrus Rowan Metropolitan Planning Organization (CRMPO) MVEBs in 2014 and 2026
[kg/day] *
----------------------------------------------------------------------------------------------------------------
2014 NOX 2014 VOC 2026 NOX 2026 VOC
----------------------------------------------------------------------------------------------------------------
Base On-road Emissions.......................... 11,814 7,173 3,381 3,371
Safety margin allocated to MVEB................. .............. .............. 846 843
Conformity MVEB................................. 11,814 7,173 4,227 4,214
----------------------------------------------------------------------------------------------------------------
* Includes the portion of Cabarrus and Rowan Counties in the maintenance area.
Table 8--Gaston-Cleveland-Lincoln Metropolitan Planning Organization (GCLMPO) MVEBs in 2014 and 2026
[kg/day] *
----------------------------------------------------------------------------------------------------------------
2014 NOX 2014 VOC 2026 NOX 2026 VOC
----------------------------------------------------------------------------------------------------------------
Base On-road Emissions.......................... 10,079 5,916 2,681 2,468
Safety margin allocated to MVEB................. .............. .............. 551 510
Conformity MVEB................................. 10,079 5,916 3,232 2,978
----------------------------------------------------------------------------------------------------------------
* Includes the portion of Gaston and Lincoln counties in the maintenance area. Although Cleveland County is
included in the MPO, it is not included in the Charlotte ozone maintenance area.
Table 9--Charlotte Regional Transportation Planning Organization (CRTPO)--Rocky River Rural Planning
Organization (RRRPO) MVEBs in 2014 and 2026
[kg/day] *
----------------------------------------------------------------------------------------------------------------
2014 NOX 2014 VOC 2026 NOX 2026 VOC
----------------------------------------------------------------------------------------------------------------
Base On-road Emissions.......................... 32,679 18,038 8,870 8,655
Safety margin allocated to MVEB................. .............. .............. 1,596 1,557
Conformity MVEB................................. 32,679 18,038 10,466 10,212
----------------------------------------------------------------------------------------------------------------
*Includes all of Mecklenburg County and a portion of Iredell and Union Counties in the maintenance area.
B. Revised MVEBs
In the July 16, 2020 SIP revision, North Carolina requested that
EPA approve revisions to the MVEBs for the North Carolina portion of
the Charlotte 2008 Ozone Maintenance Area by allocating a portion of
the remaining safety margin to the MVEBs.6 7 The MVEB
revisions are proposed to accommodate recent updates to the travel
demand model impacting vehicle miles traveled, changes and uncertainty
in vehicle mix assumptions, and uncertainty associated with mobile
modeling in the North Carolina portion of the Charlotte Maintenance
Area. The cumulative percent increases--including both the current SIP-
approved percent increases as shown in Table 6, above, as well as the
proposed 20 percent increase applied to all counties--to the MVEBs for
the North Carolina counties in the Charlotte 2008 Ozone Maintenance
Area are listed in the Table 10 below.
---------------------------------------------------------------------------
\6\ As with the original SIP approved on July 15, 2015, and the
last revision approved on September 11, 2019, NCDAQ utilized a five-
step approach for determining a factor to use to calculate the
amount of safety margin to apply to the MVEBs for 2026. See Appendix
A of the submittal for more detailed information.
\7\ The proposed changes to the safety margins are discussed in
section III.C., below.
Table 10--Proposed Percent Increase to the 2026 Mobile Vehicle Emissions
Budget
------------------------------------------------------------------------
County 2026
------------------------------------------------------------------------
Cabarrus................................................ 45
Gaston.................................................. 40
Iredell................................................. 42
Lincoln................................................. 42
Mecklenburg............................................. 37
Rowan................................................... 45
Union................................................... 40
------------------------------------------------------------------------
[[Page 32855]]
The following tables provide the proposed updated NOX
and VOC sub-area MVEBs with the proposed safety margin allocations in
kg/day for transportation conformity purposes for 2026 (2014 is only
shown for illustration because no changes are being made to the MVEBs
for that year). The amount of the proposed safety margin allocation
includes the current SIP-approved safety margin allocations referenced
in the tables above as well as the proposed percentages in values.
Table 11--Cabarrus Rowan Metropolitan Planning Organization (CRMPO) MVEBs in 2014 and 2026
[kg/day] *
----------------------------------------------------------------------------------------------------------------
2014 NOX 2014 VOC 2026 NOX 2026 VOC
----------------------------------------------------------------------------------------------------------------
Base On-road Emissions.......................... 11,814 7,173 3,381 3,371
Safety margin allocated to MVEB................. .............. .............. 1,522 1,517
Conformity MVEB................................. 11,814 7,173 4,903 4,888
----------------------------------------------------------------------------------------------------------------
* Includes the portion of Cabarrus and Rowan Counties in the maintenance area. The allocation proposed in this
action to the NOX MVEB is 676 kg/day and VOC is 674 kg/day.
Table 12--Gaston-Cleveland-Lincoln Metropolitan Planning Organization (GCLMPO) MVEBs in 2014 and 2026
[kg/day] *
----------------------------------------------------------------------------------------------------------------
2014 NOX 2014 VOC 2026 NOX 2026 VOC
----------------------------------------------------------------------------------------------------------------
Base On-road Emissions.......................... 10,079 5,916 2,681 2,468
Safety margin allocated to MVEB................. - - 1,087 1,004
Conformity MVEB................................. 10,079 5,916 3,768 3,472
----------------------------------------------------------------------------------------------------------------
* Includes the portion of Gaston and Lincoln counties in the maintenance area. Although Cleveland County is
included in the MPO, it is not included in the Charlotte ozone maintenance area. The allocation proposed in
this action to the NOX MVEB is 536 kg/day and VOC is 494 kg/day.
Table 13--Charlotte Regional Transportation Planning Organization (CRTPO)--Rocky River Rural Planning
Organization (RRRPO) MVEBs in 2014 and 2026
[kg/day] *
----------------------------------------------------------------------------------------------------------------
2014 NOX 2014 VOC 2026 NOX 2026 VOC
----------------------------------------------------------------------------------------------------------------
Base On-road Emissions.......................... 32,679 18,038 8,870 8,655
Safety margin allocated to MVEB................. .............. .............. 3,371 3,288
Conformity MVEB................................. 32,679 18,038 12,241 11,943
----------------------------------------------------------------------------------------------------------------
* Includes all of Mecklenburg County and a portion of Iredell and Union Counties in the maintenance area. The
allocation proposed in this action to the NOX MVEB is 1,775 kg/day and VOC is 1,731 kg/day.
C. Revised Safety Margin
As mentioned before, a safety margin is the difference between the
attainment level of emissions from all source categories (i.e., point,
area, on-road, and nonroad) and the projected level of emissions in the
maintenance year from all source categories. NCDAQ has requested EPA
approve allocation of some of the available safety margin to the 2026
MVEBs for transportation conformity purposes. The total level of
emissions from all source categories remains equal to or less than the
attainment level of emissions.
EPA is proposing to approve changes to the MVEBs that result in
additional safety margin allocations to the 2026 MVEBs of 2,987 kg/day
(3.29 tons/day) of NOX and 2,899 kg/day (3.19 tons/day) of
VOC. This includes a proposed allocation of 676 and 674 kg/day of
NOX and VOC, respectively for the Cabarrus-Rowan MPO; 536
and 494 kg/day of NOX and VOC, respectively for the Gaston-
Cleveland MPO; and 1,775 and 1,731 kg/day, respectively for the
Charlotte Regional TPO. Thus, if EPA's action is finalized as proposed,
the cumulative safety margin emissions allocated to the 2026 MVEBs will
be 5,980 kg/day (6.59 tons/day) of NOX and 5,809 kg/day
(6.40 tons/day) of VOC.\8\ The proposed new safety margins available
for the North Carolina portion of the Charlotte Maintenance Area are
listed below.
---------------------------------------------------------------------------
\8\ The amount of the safety margin is a cumulative total of the
current safety margin allocations (shown in Tables 5 through 7) and
the proposed safety margin allocations (shown in Tables 11 through
13).
Table 14--New Safety Margins for the North Carolina Portion of the
Charlotte Maintenance Area
------------------------------------------------------------------------
NOX (tons/ VOC (tons/
Year day) day)
------------------------------------------------------------------------
2014.................................... N/A N/A
2015.................................... -5.99 -2.03
2018.................................... -45.49 -13.30
2022.................................... -63.74 -15.84
2026.................................... -63.31 -10.73
------------------------------------------------------------------------
[[Page 32856]]
D. Adequacy of the Budgets
EPA evaluated NCDAQ's July 16, 2020 SIP revision allocating a
portion of the available safety margin to the 2026 MOVES2014 based
budgets in the revised 2008 8-hour ozone Charlotte maintenance plan for
use in determining transportation conformity in the North Carolina
portion of the Charlotte Maintenance Area. EPA is proposing this action
based on our evaluation of these budgets using the adequacy criteria
found in 40 CFR 93.118(e)(4) and evaluation of NCDAQ's submittal and
SIP requirements. EPA is proposing to approve this SIP revision because
the SIP continues to serve its intended purpose of maintenance of the
2008 8-hour ozone standard with the newly revised MOVES2014 based
budgets and to deem the budgets adequate for transportation conformity
purposes because they meet the adequacy criteria in the conformity rule
at 40 CFR 93.118(e)(4). Specifically:
NCDAQ's SIP was endorsed by the Governor's designee and
was subject to a state public hearing ((e)(4)(i));
Before NCDAQ submitted the SIP revision to EPA,
consultation among federal, state, and local agencies occurred and full
documentation was provided to EPA and EPA had no concerns ((e)(4)(ii));
The budgets are clearly identified and precisely
quantified ((e)(4)(iii));
The budgets, when considered together with all other
emissions sources, are consistent with applicable requirements for
reasonable further progress, attainment, or maintenance ((e)(4)(iv));
The budgets are consistent with and clearly related to the
emissions inventory and control measures in the SIP revision submitted
July 16, 2020 ((e)(4)(v)); and
The July 16, 2020 SIP revision explains and documents
changes to the previous budgets, impacts on point and area source
emissions, and changes to established safety margins, and reasons for
the changes (including the basis for any changes related to emission
factors or vehicle miles traveled) ((e)(4)(vi)).
IV. Proposed Action
EPA is proposing to approve NCDAQ's July 16, 2020 SIP revision,
requesting approval of a revision to the Charlotte 2008 8-hr Ozone
Maintenance Plan in order to allocate a portion of the available safety
margin to revise the 2026 NOX and VOC MVEBs. The revised
MVEBs ensure continued attainment of the 2008 8-hour ozone NAAQS
through the maintenance year 2026. In addition, EPA is proposing to
deem the MVEBs adequate for transportation conformity purposes because
the budgets meet the adequacy criteria in the conformity rule at 40 CFR
93.118(e)(4). If approved, the newly revised 2026 budgets for
NOX and VOC identified in Tables 11 through 13 will be used
by the MPOs in future transportation conformity determinations. The
remaining safety margin is 63.31 tons/day and 13.73 tons/day for
NOX and VOC, respectively. EPA has evaluated North
Carolina's submittal and has determined that it meets the applicable
requirements of the CAA and EPA regulations, and is consistent with EPA
policy.
V. Statutory and Executive Order Reviews
Under the CAA, the Administrator is required to approve a SIP
submittal that complies with the provisions of the Act and applicable
federal regulations. See 42 U.S.C. 7410(k); 40 CFR 52.02(a). Thus, in
reviewing SIP submissions, EPA's role is to approve state choices,
provided that they meet the criteria of the CAA. Accordingly, this
proposed action merely proposes to approve state law as meeting Federal
requirements and does not propose to impose additional requirements
beyond those imposed by state law. For that reason, these proposed
actions:
Are not significant regulatory actions 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);
Do not impose information collection burdens under the
provisions of the Paperwork Reduction Act (44 U.S.C. 3501 et seq.);
Are certified as not having significant economic impacts
on a substantial number of small entities under the Regulatory
Flexibility Act (5 U.S.C. 601 et seq.);
Do 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);
Do not have Federalism implications as specified in
Executive Order 13132 (64 FR 43255, October 7, 1999);
Are not economically significant regulatory actions based
on health or safety risks subject to Executive Order 13045 (62 FR
19885, April 23, 1997);
Are not significant regulatory actions subject to
Executive Order 13211 (66 FR 28355, May 22, 2001);
Are 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
Do not provide EPA with the discretionary authority to
address, as appropriate, disproportionate human health or environmental
effects, using practicable and legally permissible methods, under
Executive Order 12898 (59 FR 7629, February 16, 1994).
In addition, the SIP is not approved to apply on any Indian
reservation land or in any other area where EPA or an Indian tribe has
demonstrated that a tribe has jurisdiction. In those areas of Indian
country, the proposed rule does not have tribal implications as
specified by Executive Order 13175 (65 FR 67249, November 9, 2000) nor
will it impose substantial direct costs on tribal governments or
preempt tribal law.
List of Subjects in 40 CFR Part 52
Environmental protection, Air pollution control, Incorporation by
reference, Intergovernmental relations, Carbon monoxide, Nitrogen
dioxide, Ozone, Particulate matter, Reporting and recordkeeping
requirements and Volatile organic compounds.
Authority: 42 U.S.C. 7401 et seq.
Dated: June 10, 2021.
John Blevins,
Acting Regional Administrator, Region 4.
[FR Doc. 2021-13081 Filed 6-22-21; 8:45 am]
BILLING CODE 6560-50-P
