Clean Air Plans; Base Year Emissions Inventories for the 2015 Ozone Standards; Arizona; Phoenix-Mesa and Yuma Nonattainment Areas, 58630-58635 [2021-22662]
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Federal Register / Vol. 86, No. 202 / Friday, October 22, 2021 / Proposed Rules
requirements of 1 CFR 51.5, the EPA is
proposing to incorporate by reference
Section 94014 and the associated
certification procedure and test
procedures as described in Table 1 of
this preamble, and proposing to remove
Section 94004 and Method 2–5 also as
described in Table 1 from the SIP. The
EPA has made, and will continue to
make, these materials available through
https://www.regulations.gov and at the
EPA Region IX Office (please contact the
person identified in the FOR FURTHER
INFORMATION CONTACT section of this
preamble for more information).
IV. Statutory and Executive Order
Reviews
Additional information about these
statutes and Executive Orders can be
found at https://www.epa.gov/lawsregulations/laws-and-executive-orders.
A. Executive Order 12866: Regulatory
Planning and Review and Executive
Order 13563: Improving Regulation and
Regulatory Review
This action is not a significant
regulatory action and was therefore not
submitted to the Office of Management
and Budget (OMB) for review.
B. Paperwork Reduction Act (PRA)
This action does not impose an
information collection burden under the
PRA because this action does not
impose additional requirements beyond
those imposed by state law.
C. Regulatory Flexibility Act (RFA)
I certify that this action will not have
a significant economic impact on a
substantial number of small entities
under the RFA. This action will not
impose any requirements on small
entities beyond those imposed by state
law.
D. Unfunded Mandates Reform Act
(UMRA)
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This action does not contain any
unfunded mandate as described in
UMRA, 2 U.S.C. 1531–1538, and does
not significantly or uniquely affect small
governments. This action does not
impose additional requirements beyond
those imposed by state law.
Accordingly, no additional costs to
state, local, or tribal governments, or to
the private sector, will result from this
action.
E. Executive Order 13132: Federalism
This action does not have federalism
implications. It will not have substantial
direct effects on the states, on the
relationship between the national
government and the states, or on the
distribution of power and
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responsibilities among the various
levels of government.
F. Executive Order 13175: Coordination
With Indian Tribal Governments
This action does not have tribal
implications, as specified in Executive
Order 13175, because 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, and will not impose
substantial direct costs on tribal
governments or preempt tribal law.
Thus, Executive Order 13175 does not
apply to this action.
G. Executive Order 13045: Protection of
Children From Environmental Health
Risks and Safety Risks
The EPA interprets Executive Order
13045 as applying only to those
regulatory actions that concern
environmental health or safety risks that
the EPA has reason to believe may
disproportionately affect children, per
the definition of ‘‘covered regulatory
action’’ in section 2–202 of the
Executive Order. This action is not
subject to Executive Order 13045
because it does not impose additional
requirements beyond those imposed by
state law.
H. Executive Order 13211: Actions That
Significantly Affect Energy Supply,
Distribution, or Use
This action is not subject to Executive
Order 13211, because it is not a
significant regulatory action under
Executive Order 12866.
I. National Technology Transfer and
Advancement Act (NTTAA)
Section 12(d) of the NTTAA directs
the EPA to use voluntary consensus
standards in its regulatory activities
unless to do so would be inconsistent
with applicable law or otherwise
impractical. The EPA believes that this
action is not subject to the requirements
of section 12(d) of the NTTAA because
application of those requirements would
be inconsistent with the CAA.
J. Executive Order 12898: Federal
Actions To Address Environmental
Justice in Minority Populations and
Low-Income Population
The EPA lacks the discretionary
authority to address environmental
justice in this rulemaking.
List of Subjects in 40 CFR Part 52
Environmental protection, Air
pollution control, Incorporation by
reference, Intergovernmental relations,
Reporting and recordkeeping
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requirements, Volatile organic
compounds.
Authority: 42 U.S.C. 7401 et seq.
Dated: October 13, 2021.
Deborah Jordan,
Acting Regional Administrator, Region IX.
[FR Doc. 2021–22716 Filed 10–21–21; 8:45 am]
BILLING CODE 6560–50–P
ENVIRONMENTAL PROTECTION
AGENCY
40 CFR Part 52
[EPA–R09–OAR–2021–0638; FRL–9101–01–
R9]
Clean Air Plans; Base Year Emissions
Inventories for the 2015 Ozone
Standards; Arizona; Phoenix-Mesa and
Yuma Nonattainment Areas
Environmental Protection
Agency (EPA).
ACTION: Proposed rule.
AGENCY:
The Environmental Protection
Agency (EPA) is proposing to approve,
under the Clean Air Act (CAA),
revisions to the Arizona State
Implementation Plan (SIP) concerning
the base year emissions inventory
requirements for the Phoenix-Mesa
ozone nonattainment area (‘‘PhoenixMesa’’) and Yuma ozone nonattainment
area (‘‘Yuma’’) for the 2015 ozone
national ambient air quality standards
(NAAQS or ‘‘standard’’).
DATES: Any comments must arrive by
November 22, 2021.
ADDRESSES: Submit your comments,
identified by Docket ID No. EPA–R09–
OAR–2021–0638 at https://
www.regulations.gov. For comments
submitted at Regulations.gov, follow the
online instructions for submitting
comments. Once submitted, comments
cannot be edited or removed from
Regulations.gov. The EPA may publish
any comment received to its public
docket. Do not submit electronically any
information you consider to be
Confidential Business Information (CBI)
or other information whose disclosure is
restricted by statute. Multimedia
submissions (audio, video, etc.) must be
accompanied by a written comment.
The written comment is considered the
official comment and should include
discussion of all points you wish to
make. The EPA will generally not
consider comments or comment
contents located outside of the primary
submission (i.e., on the web, cloud, or
other file sharing system). For
additional submission methods, please
contact the person identified in the FOR
FURTHER INFORMATION CONTACT section.
SUMMARY:
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For the full EPA public comment policy,
information about CBI or multimedia
submissions, and general guidance on
making effective comments, please visit
https://www.epa.gov/dockets/
commenting-epa-dockets. If you need
assistance in a language other than
English or if you are a person with
disabilities who needs a reasonable
accommodation at no cost to you, please
contact the person identified in the FOR
FURTHER INFORMATION CONTACT section.
FOR FURTHER INFORMATION CONTACT: Ben
Leers, Air Planning Office (AIR–2), EPA
Region IX, (415) 947–4279, Leers.Ben@
epa.gov.
SUPPLEMENTARY INFORMATION:
Throughout this document, ‘‘we,’’ ‘‘us,’’
and ‘‘our’’ refer to the EPA.
Table of Contents
I. Background
A. Emissions Inventories
B. State Submittals
C. Public Notice and Hearing Requirements
II. Arizona’s Emissions Inventories
A. Baseline Emissions Inventory for the
Phoenix-Mesa Nonattainment Area
B. Baseline Emissions Inventory for the
Yuma Nonattainment Area
III. EPA’s Evaluation
IV. Proposed Action and Request for Public
Comment
V. Statutory and Executive Order Reviews
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I. Background
On October 26, 2015, the EPA
promulgated a revised 8-hour ozone
NAAQS of 0.070 parts per million
(ppm).1 In accordance with section
107(d) of the CAA, the EPA must
designate an area ‘‘nonattainment’’ if it
is violating the NAAQS or if it is
contributing to a violation of the
NAAQS in a nearby area.
The EPA designated two areas in
Arizona as nonattainment for the 2015
ozone NAAQS on June 4, 2018, effective
August 3, 2018.2 The Phoenix-Mesa
nonattainment area (including Gila,
Maricopa, and Pinal counties) and
Yuma nonattainment area (including
Yuma County) were classified as
‘‘Marginal’’ ozone nonattainment.
A. Emissions Inventories
Sections 172(c)(3) and 182(a)(1) of the
CAA require states to develop and
submit, as a SIP revision, ‘‘base year’’
emissions inventories for all areas
designated as nonattainment for an
ozone NAAQS. The EPA finalized the
2015 ozone NAAQS SIP Requirements
Rule (SRR) on December 6, 2018. The
SRR established implementation
requirements for the 2015 ozone
NAAQS, including requirements for
1 80
2 83
FR 65292 (October 26, 2015).
FR 25776.
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base year emissions inventories under
CAA section 182(a)(1).3 The SRR for the
2015 ozone NAAQS is codified at 40
CFR part 51, subpart CC, and the
emissions inventory requirements are
codified at 40 CFR 51.1315.
An emissions inventory for ozone is
an estimation of actual emissions of air
pollutants that contribute to the
formation of ozone in an area. Ozone is
a gas that is formed by the reaction of
volatile organic compounds (VOC) and
oxides of nitrogen (NOX), referred to as
ozone precursors, in the atmosphere in
the presence of sunlight. Therefore, an
emissions inventory for ozone focuses
on the emissions of VOC and NOX. VOC
is emitted by many types of sources,
including power plants, industrial
sources, on-road and off-road mobile
sources, smaller stationary sources
collectively referred to as area sources,
and biogenic sources. NOX is primarily
emitted by combustion sources, both
stationary and mobile.
Emissions inventories provide
emissions data that inform a variety of
air quality planning tasks, including
establishing baseline emissions levels,
calculating emissions reduction targets
needed to attain the NAAQS and to
achieve reasonable further progress
(RFP) toward attainment of the ozone
standard,4 determining emissions inputs
for ozone air quality modeling analyses,
and tracking emissions over time to
determine progress toward achieving air
quality and emissions reduction goals.
For the 2015 ozone NAAQS, states are
required to submit ozone season day
emissions estimates for an inventory
calendar year to be consistent with the
baseline year for RFP plans as required
by 40 CFR 51.1310(b).5 Under 40 CFR
51.1310(b), for the 2015 ozone NAAQS,
the RFP baseline year is the most recent
calendar year for which a complete
triennial inventory is required to be
submitted to the EPA under 40 CFR 51
subpart A.6 States may use an
alternative baseline emissions inventory
provided that the year selected
corresponds with the year of the
effective date of designation as
nonattainment for that NAAQS. Ozone
season day emissions are defined in 40
CFR 51.1300(q) as the average day’s
3 83
FR 62998.
RFP requirements specified in CAA section
182(b)(1) apply to all areas classified as ‘‘Moderate’’
or higher ozone nonattainment. At the time of
submittal of the Phoenix-Mesa and Yuma base year
emissions inventory SIPs for the 2015 ozone
NAAQS, the Phoenix-Mesa and Yuma areas were
designated Marginal nonattainment for the 2015
ozone NAAQS and were therefore not required to
demonstrate RFP toward attainment of the 2015
ozone NAAQS.
5 40 CFR 51.1315(a).
6 83 FR 62998, 63034.
4 The
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emissions for a typical ozone season
work weekday. Under the definition in
40 CFR 51.1300(q), states are required to
select the months in the ozone season
and the days in the work week to be
represented. Per EPA’s 2017 guidance
on emissions inventory development,
the selected ozone season should be
representative of the conditions leading
to nonattainment.7
B. State Submittals
On July 8, 2020, the Arizona
Department of Environmental Quality
(ADEQ) submitted a revision to the
Arizona SIP titled ‘‘Maricopa
Association of Governments (MAG)
2020 Eight-Hour Ozone Plan’’ (‘‘2020
Phoenix-Mesa SIP Submittal’’). The
2020 Phoenix-Mesa SIP Submittal
includes a 2017 baseline emissions
inventory for Phoenix-Mesa developed
by the Maricopa Association of
Governments (MAG) and supporting
documentation regarding the
development of the baseline emissions
inventory.
On July 29, 2020, ADEQ submitted a
revision to the Arizona SIP titled
‘‘Marginal Ozone Plan for the Yuma
Nonattainment Area,’’ including a 2017
baseline emissions inventory for Yuma
and supporting documentation
regarding the development of the
emissions inventory. The July 29, 2020
submittal did not include final
amendments to the emissions statement
rule in Arizona Administrative Code
R18–2–327 and did not adequately
satisfy the public notice requirements
under 40 CFR 51.102. On December 22,
2020, ADEQ withdrew the July 29, 2020
submittal and submitted as a revision to
the Arizona SIP another plan, also titled
‘‘Marginal Ozone Plan for the Yuma
Nonattainment Area.’’ On July 1, 2021,
Arizona provided a technical
supplement to the Marginal Ozone Plan
for the Yuma Nonattainment Area
addressing comments and questions
raised by the EPA following receipt of
ADEQ’s prior submittals.8 Arizona’s
December 22, 2020 submittal and the
July 1, 2021 supplement are collectively
referred to herein as the ‘‘2020 Yuma
SIP Submittal.’’ Where specifically
7 EPA, ‘‘Emissions Inventory Guidance for
Implementation of Ozone and Particulate Matter
National Ambient Air Quality Standards (NAAQS)
and Regional Haze Regulations’’ (May 2017), 75.
8 Letter dated June 30, 2021, from Joseph Martini,
Manager, Air Quality Improvement Planning
Section, Air Quality Division, Arizona Department
of Environmental Quality, to Ben Leers, Air
Planning Office, Air Division, EPA Region IX.
Transmitted via email dated July 1, 2021, from
Farah Esmaeili, Environmental Senior Engineer,
Technical Analysis Unit, Air Quality Division,
Arizona Department of Environmental Quality to
Ben Leers.
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referring to information provided in
Arizona’s supplement to the 2020 Yuma
SIP Submittal, we refer to the July 1,
2021 supplement as the ‘‘2021 Yuma
SIP Supplement.’’
In this action, we are evaluating and
proposing action on the 2020 PhoenixMesa SIP Submittal and the 2020 Yuma
SIP Submittal.
address the emissions inventory
requirement in CAA section 182(a)(1).
Each submittal provides documentation
of a 2017 base year inventory of
emissions of NOX and VOC. The 2017
base year emissions inventory was the
most recent triennial emissions
inventory in the National Emissions
Inventory (NEI) at the time the
emissions inventories were prepared for
the Phoenix-Mesa and Yuma areas.
Each emissions inventory submittal
includes emissions estimates for the
following source categories: Point
sources, nonpoint sources, nonroad
mobile sources, onroad mobile sources,
and biogenic sources. Point sources are
generally large, stationary (i.e., nonmobile) sources of air pollutants. MAG’s
and ADEQ’s specific interpretations of
the point source definition are described
in sections II.A and II.B of this notice,
respectively. Nonpoint sources, also
referred to as ‘‘area’’ sources, are the
sources of air pollutants that are
typically too small or too numerous to
be categorized as point or mobile
sources, such as residential combustion
or consumer products. Nonroad mobile
sources, also referred to as ‘‘offhighway’’ mobile sources, include
nonroad engines and nonroad vehicles.
Onroad mobile sources, also referred to
as ‘‘highway mobile sources,’’ are motor
vehicles traveling on local highways
and roads. Biogenic sources emit
pollutants produced by natural sources
including vegetation and soils.
ADEQ and MAG each used a
combination of top-down estimation
techniques (i.e., allocation of regional
emissions estimates to a smaller,
defined geographic area) and bottom-up
estimation techniques (i.e., development
of source or source category emissions
estimates using emissions factors,
models, etc.) to develop the emissions
inventories in their respective SIP
submittals. Specific estimation
techniques for each source category are
described in sections II.A and II.B of
this notice.
C. Public Notice and Hearing
Requirements
CAA sections 110(a)(1) and 110(l) and
40 CFR 51.102 require states to provide
reasonable notice and an opportunity
for a public hearing prior to adoption of
SIP revisions. Section 110(k)(1)(B)
requires the EPA to determine whether
a SIP submittal is complete within 60
days of receipt. Any plan that the EPA
does not affirmatively determine to be
complete or incomplete will become
complete six months after the day of
submittal by operation of law. A finding
of completeness does not approve the
submittal as part of the SIP, nor does it
indicate that the submittal is
approvable. It does start a 12-month
clock for the EPA to act on the SIP
submittal (see CAA section 110(k)(2)).
The 2020 Phoenix-Mesa SIP Submittal
and 2020 Yuma SIP Submittal each
document the public review process
followed prior to their submittal to the
EPA as revisions to the SIP.
Appendix B of the 2020 PhoenixMesa SIP Submittal includes
documentation of notices of opportunity
for public hearing and comment on the
SIP submittal. The notices for
opportunity for public hearing and
comment on the SIP submittal were
posted in The Arizona Republic, sent by
email to interested parties, and posted
on MAG’s website. Also included in
Appendix B of the 2020 Phoenix-Mesa
SIP Submittal is a responsiveness
summary indicating that no comments
or requests for public hearing were
received during the 30-day public
review period.
Appendix B of the 2020 Yuma SIP
Submittal includes documentation of a
notice of public comment period and
hearing on the SIP submittal posted in
The Arizona Republic on October 9,
2020, and October 10, 2020. Appendix
B of the 2020 Yuma SIP Submittal also
contains documentation of the
November 12, 2020 public hearing on
the SIP submittal including a sign-in
sheet, transcript, signed certification
that the public hearing was held, and a
compilation of comments received and
ADEQ’s responses to comments.
The emissions inventory included in
the 2020 Phoenix-Mesa SIP Submittal
was developed by MAG. The PhoenixMesa area includes Maricopa County
and portions of Gila and Pinal
Counties.9 MAG selected the months of
June through August to estimate ozone
season day emissions of NOX and VOC
II. Arizona’s Emissions Inventories
The 2020 Phoenix-Mesa SIP Submittal
and 2020 Yuma SIP Submittal each
9 See 83 FR 25776, 25784–25785, for a detailed
description of the boundaries of the Phoenix-Mesa
nonattainment area for the 2015 ozone NAAQS.
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A. Baseline Emissions Inventory for the
Phoenix-Mesa Nonattainment Area
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from sources in the Phoenix-Mesa
area.10
In the 2020 Phoenix-Mesa SIP
Submittal, MAG defines point sources
consistent with the point source
definition put forth in EPA’s air
emissions reporting requirements
(AERR).11 MAG identified 19 stationary
sources meeting the point source
definition in the Phoenix-Mesa area. As
noted in the 2020 Phoenix-Mesa SIP
Submittal, while some stationary
sources in Maricopa County are
permitted by ADEQ, no ADEQpermitted facilities meet the point
source definition, and such sources are
instead categorized as area sources. All
point sources in the Phoenix-Mesa area
are located in Maricopa County and are
permitted by the Maricopa County Air
Quality District (MCAQD). MAG
identified point sources in the PhoenixMesa area via the MCAQD electronic
permit system database. MAG
calculated emissions from point sources
using annual source emissions reports,
MCAQD investigation reports, permit
files and logs, or telephone contacts
with sources. Point source emissions
calculations in the Phoenix-Mesa area
also considered ‘‘rule effectiveness,’’ a
factor that may be applied to emissions
inventory estimates to account for
regulatory programs which may be less
than 100 percent effective.
In the point source category, MAG
also accounted for actual and potential
voluntary emissions reductions at point
sources in the Phoenix-Mesa area. Major
new sources and major modifications in
the Phoenix-Mesa area must offset the
emissions of NOX and VOC generated by
the new source or modification as a
condition for approval of permit
applications. These emissions offsets are
generally obtained from existing sources
located in the vicinity of the proposed
source or modification in the form of
emissions reduction credits (ERCs). The
rules governing the generation and use
of ERCs in the Phoenix-Mesa area area
are outlined in MCAQD Rule 240. In the
2017 base year inventory, MAG
included certified ERCs available in the
Arizona Emissions Bank in the point
source category totals. MAG also
included potential (i.e., not yet certified)
sources of ERCs for NOX and VOC in the
10 A detailed justification for MAG’s selection of
months in the ozone season is provided in
Appendix F of the 2020 Phoenix-Mesa SIP
Submittal.
11 Under the AERR, a point source is a facility
that is a major source under 40 CFR part 70 for one
or more of the pollutants for which reporting is
required by CAA section 51.15(a)(1), but not with
regard to emissions of hazardous air pollutants. 80
FR 8787 (February 19, 2015). For major source
emissions thresholds by pollutant, see 40 CFR
51.30.
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base year inventory in order to maintain
the availability of these emissions in the
periodic inventory, provided that
sufficient documentation can be secured
to confirm the emissions reductions in
the future.
MAG estimated county-level
emissions from nonpoint sources using
a variety of tools, techniques, and
assumptions depending on each
nonpoint source subcategory. MAG’s
nonpoint source emissions estimates
were informed by EPA’s 2017 nonpoint
emissions methodology and operator
instructions, source-submitted annual
emissions reports, and scaling up via
the use of per-employee emissions
factors. For each nonpoint source
subcategory, county-level emissions
estimates were allocated to the PhoenixMesa area using one of five
representative variables: Employment,
population, land use, general aviation
operations, and location data. Each
nonpoint source emissions calculation
and allocation method is described in
detail in the 2020 Phoenix-Mesa SIP
Submittal.
Nonroad mobile source subcategories
in the Phoenix-Mesa emissions
inventory include agricultural
equipment (e.g., tractors, combines, and
balers), recreational equipment (e.g., allterrain vehicles and off-road
motorcycles), aircraft, and locomotives,
among others. For most nonroad mobile
source subcategories, MAG estimated
emissions using the latest available
version of EPA’s Motor Vehicle
Emission Simulator (MOVES2014b).
Inputs to MOVES2014b included
default model input files, National
Oceanic and Atmospheric
Administration (NOAA) National
Centers for Environmental Information
(NCEI) local climatological data, 2017
fuel specifications and vapor recovery
program effectiveness from the Arizona
Department of Agriculture Weights &
Measures Services Division, and local
data from a 2003 survey performed for
ADEQ by ENVIRON. For aircraft and
airport equipment, MAG estimated
emissions using the Federal Aviation
Administration (FAA) Aviation
Environmental Design Tool version 2d
(AEDT 2d). Inputs to AEDT 2d included
local aircraft activity data from the FAA
Operations Network, AirNav.com, and
base personnel at Luke Air Force Base.
Additionally, MAG utilized aircraft fleet
mix profiles from the FAA Traffic Flow
Management System Counts database,
verification of AirNav.com data using
the FAA 5010 Airport Master Records
database, and general aviation airport
survey data conducted by MAG in 2017.
Emissions from locomotives were
estimated using survey data from the
three railroad companies operating in
Maricopa County (i.e., Burlington
Northern Santa Fe, Union Pacific, and
Amtrak) and emissions factors
published by ENVIRON and the EPA.
Emissions from onroad mobile
sources in the Phoenix-Mesa area were
calculated using MOVES2014b. For
onroad mobile sources, MOVES2014b
requires local data inputs relating to
vehicle inspection and maintenance
programs, meteorological data, vehicle
populations, source type age
distributions, annual vehicle miles
traveled, and alternative vehicle and
fuel technologies, among others. MAG
cited numerous sources and
assumptions for local data inputs,
including vehicle registration data from
the Arizona Department of
Transportation, meteorological data
from the NOAA NCEI, and the MAG
Transportation Modeling Group.
Emissions from biogenic sources in
the Phoenix-Mesa area were calculated
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using the Model of Emissions of Gases
and Aerosols from Nature (MEGAN)
version 2.1. MEGAN requires inputs of
land cover and meteorological data.
MAG utilized 1-kilometer eight-day
average leaf area index from the
National Aeronautics and Space
Administration’s Moderate Resolution
Imaging Spectroradiometer satellite
observations, plant functional type
(PFT) data from the National Land
Cover Dataset, and emission factors
derived from PFT distributions. MAG
processed meteorological data from the
Weather Research and Forecasting
model version 3.9 with the MeteorologyChemistry Interface Processor (MCIP).
The model outputs from MCIP were
further processed using the MEGAN
component program called MET2MGN
for input to MEGAN.
MAG employed quality assurance and
quality control (QA/QC) measures
throughout the development of the
Phoenix-Mesa emissions inventory.
Point source emissions reports undergo
automated QA/QC upon submission to
MCAQD’s database as well as manual
QA/QC performed by air quality
planning staff. Area source emissions
calculations are peer-reviewed by air
quality planners to ensure calculations
can be reproduced. Other QA/QC
procedures performed by MAG include
review of files by personnel not
involved in the development of the
inventory as well as comparison of the
2017 inventory to 2014 and 2011
inventories. MAG’s QA/QC procedures
are described in detail in the 2020
Phoenix-Mesa SIP submittal.
Estimates of 2017 ozone season day
emissions of NOX and VOC in the
Phoenix-Mesa area are summarized in
Table 1 below.
TABLE 1—2017 OZONE SEASON DAY EMISSIONS
PHOENIX-MESA OZONE NONATTAINMENT AREA
Ozone season day emissions
(pounds per day)
Pollutant
Point
NOX ..........................................................
VOC .........................................................
24,277
8,625
Nonroad
mobile
Nonpoint
32,880
209,885
112,100
63,661
Onroad
mobile
140,154
112,746
Biogenic
5,896
1,283,539
Area total
315,307
1,678,457
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Source: 2020 Phoenix-Mesa SIP Submittal, Appendix A, 11.
B. Baseline Emissions Inventory for the
Yuma Nonattainment Area
The emissions inventory included in
the 2020 Yuma SIP Submittal was
developed by ADEQ. The Yuma area
consists of approximately 52 square
miles within Yuma County in and
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around the city of Yuma, Arizona.12
ADEQ selected the months of April
through October to estimate ozone
12 See 83 FR 25776, 25785 for a detailed
description of the boundaries of the Yuma
nonattainment area for the 2015 ozone NAAQS.
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season day emissions of NOX and VOC
from sources in the Yuma area.13
13 ADEQ’s selection of the months in the ozone
season is consistent with documentation provided
by ADEQ along with its initial nonattainment
boundary recommendations for the 2015 ozone
NAAQS. See the technical support document
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ADEQ obtained emissions estimates
for point sources in the Yuma area from
the 2017 NEI and from source-submitted
annual emissions inventory reports
required for all sources holding a minor
permit in Arizona. All point sources
listed in the 2017 NEI and
geographically located in the Yuma
ozone nonattainment area were
included in the point source category in
the 2020 Yuma SIP Submittal. ADEQ
also included minor point sources
holding permits in the Yuma ozone
nonattainment area in the point source
category.
Emissions from Yuma area nonpoint
sources (also referred to as ‘‘area
sources’’ in the 2020 Yuma SIP
Submittal) were estimated
predominantly using data from the 2017
NEI. The 2017 NEI includes emissions
estimates for numerous area source
subcategories on the county level. For
most nonpoint source subcategories,
ADEQ allocated county-level emissions
estimates from the 2017 NEI to the
Yuma area based on population,
industrial employment, land area, crop
land area, or railroad length. Emissions
calculation methods used for the
remaining nonpoint source
subcategories include per-person
emissions factors included in 2017 NEI
documentation, information from
permits, and information from sourcesubmitted annual reports.
ADEQ estimated emissions from
nonroad mobile sources in the Yuma
area by allocating emissions from 2017
NEI data using representative factors
including population, cropland area,
and railroad length. Nonroad mobile
source categories addressed in the 2020
Yuma SIP submittal include:
Agricultural equipment; commercial
equipment; construction and mining
equipment; industrial equipment; lawn
and garden equipment; logging
equipment; recreational equipment;
pleasure craft; and locomotives. Of the
eight private and public airports
identified by ADEQ in Yuma County,
none are located within the Yuma ozone
nonattainment area. Therefore, ADEQ
assumed zero nonroad mobile source
emissions from airports.
Emissions from onroad mobile
sources in the Yuma area were
calculated using MOVES2014b. In the
2020 Yuma SIP Submittal, ADEQ listed
MOVES2014b inputs for source type,
road type, fuel type, and process type.
ADEQ notes in the 2020 Yuma SIP
Submittal that the Yuma area is located
adjacent to a major trucking and travel
corridor, and freight haulers and tractor
trailers are primary producers of VOC
and NOX emissions in the Yuma area.
ADEQ estimated emissions from
biogenic sources in the Yuma area using
biogenic emissions data from the 2017
NEI. County-level biogenic emissions
from the 2017 NEI were allocated to the
Yuma area using the ratio of land area
in the Yuma ozone nonattainment area
to the land area within Yuma County.
As described in the 2020 Yuma SIP
Submittal, ozone season day biogenic
emissions were estimated by summing
the biogenic emissions in the Yuma area
for each month in the ozone season
(April through October) and dividing by
the number of days in the ozone season
(213 days).
ADEQ engaged numerous QA/QC
procedures in the development of the
2020 Yuma SIP Submittal. ADEQ
prepared an inventory preparation plan
(IPP) and incorporated feedback from
the EPA on the IPP to identify and
follow suitable estimation
methodologies. Procedures outlined in
ADEQ’s EPA-reviewed quality
assurance project plan were followed to
conduct QA/QC on emissions estimates
submitted by sources.14 In general,
ADEQ conducted peer and management
review of the technical support
document to the 2020 Yuma SIP
Submittal and underlying calculations.
A detailed description of ADEQ’s QA/
QC procedures is included in the 2020
Yuma SIP Submittal.
The 2021 Yuma SIP Supplement
provides clarification on emissions
inventory details including selection of
ozone season months, handling of
seasonal emissions distribution,
consideration of weekday emissions
schedules, and ADEQ’s QA/QC process.
Based on input from the EPA regarding
the consideration of weekday emissions
schedules and of the ozone season in
the Yuma nonattainment area, ADEQ
made corrections to some of its ozone
season day emissions estimates
compared to the values provided in the
original 2020 Yuma SIP Suibmittal. All
changes to estimations of ozone season
day emissions are described in detail in
the 2021 Yuma SIP Supplement.
Estimates of 2017 ozone season day
emissions of NOX and VOC in the Yuma
area are summarized in Table 2 below.
TABLE 2—2017 OZONE SEASON DAY EMISSIONS
YUMA OZONE NONATTAINMENT AREA
Ozone season day emissions
(pounds per day)
Pollutant
Point
NOX ..........................................................
VOC .........................................................
1,113
138
Nonroad
mobile
Nonpoint
1,275
15,007
2,158
2,737
Onroad mobile
10,402
5,527
Biogenic
38
2,849
Area total
14,986
26,259
Source: 2021 Yuma SIP Supplement, 6.
lotter on DSK11XQN23PROD with PROPOSALS1
III. EPA’s Evaluation
Based on the documentation included
in Arizona’s submittals, the EPA finds
that the submittals satisfy the
procedural requirements of sections
110(a)(1) and 110(l) of the Act requiring
states to provide reasonable notice and
an opportunity for public hearing prior
‘‘Phoenix-Mesa and Yuma Nonattainment Areas;
Intended Area Designations for the 2015 Ozone
National Ambient Air Quality Standards,’’ included
in the docket for EPA’s initial designations for the
VerDate Sep<11>2014
17:01 Oct 21, 2021
Jkt 256001
to adoption of SIP revisions. The 2020
Phoenix-Mesa SIP Submittal became
complete by operation of law on January
8, 2021, and the 2020 Yuma SIP
Submittal became complete by
operation of law on June 22, 2021,
pursuant to section 110(k)(1)(B).
The EPA has reviewed Arizona’s
submittals for consistency with CAA
sections 172(c)(3) and 182(a)(1) and the
requirements for emissions inventories
under the EPA’s implementing
regulations for the 2015 ozone NAAQS
at 40 CFR 51.1315. The 2017 baseline
emissions inventories represent the
2015 ozone NAAQS under docket ID EPA–HQ–
OAR–2017–0548.
14 ADEQ’s ‘‘Annual Permitted Source Emissions
Inventories Quality Assurance Project Plan’’
(October 2020) is included in the docket for this
rulemaking.
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Federal Register / Vol. 86, No. 202 / Friday, October 22, 2021 / Proposed Rules
most recent calendar year for which a
consistent and comprehensive statewide
inventory was available. The selection
of a 2017 baseline year for the PhoenixMesa and Yuma emissions inventories
is therefore consistent with the
requirement for selection of RFP
baseline years under 40 CFR 51.1310(b).
We find that the Phoenix-Mesa and
Yuma emissions inventories
appropriately estimated the average
day’s emissions for a typical weekday in
the ozone season, consistent with the
definition of ozone season day
emissions under 40 CFR 51.1300(q).
Arizona’s submittals document the
procedures used by MAG and ADEQ to
estimate ozone season day emissions for
each of the major source types.
Documentation of emissions estimation
procedures in the 2020 Phoenix-Mesa
SIP Submittal and 2020 Yuma SIP
Submittal demonstrate that MAG and
ADEQ followed acceptable procedures
to develop emissions estimates. The
2020 Phoenix-Mesa SIP Submittal and
2020 Yuma SIP Submittal each also
describe the specific QA/QC measures
implemented to ensure the accuracy and
integrity of data throughout the
development of each respective
emissions inventory.
Based upon the documentation of
emissions estimation techniques and
QA/QC procedures employed to
develop the emissions inventories in
each submittal, we find that the 2020
Phoenix-Mesa SIP Submittal and 2020
Yuma SIP Submittal contain
comprehensive, accurate, current
inventories of actual emissions from all
sources in the Phoenix-Mesa and Yuma
ozone nonattainment areas,
respectively. The EPA thereby proposes
to approve the baseline inventories of
NOX and VOC emissions for the
Phoenix-Mesa and Yuma ozone
nonattainment areas for the 2015 ozone
NAAQS submitted by Arizona pursuant
to 40 CFR 51.1315 and CAA sections
172(c)(3) and 182(b)(1) .
IV. Proposed Action and Request for
Public Comment
lotter on DSK11XQN23PROD with PROPOSALS1
We are proposing to approve the 2020
Phoenix-Mesa SIP Submittal and 2020
Yuma SIP Submittal as meeting the
ozone-related baseline emissions
inventory requirement for the PhoenixMesa and Yuma ozone nonattainment
VerDate Sep<11>2014
17:01 Oct 21, 2021
Jkt 256001
areas for the 2015 ozone NAAQS. The
emissions inventories we are proposing
to approve into the SIP are summarized
in tables 1 and 2 of this notice. We are
proposing to approve the emissions
inventories because they contain
comprehensive, accurate, and current
inventories of actual emissions for all
relevant sources in accordance with
CAA sections 172(c)(3) and 182(a). The
EPA is soliciting public comments on
the issues discussed in this proposed
rule. We will accept comments from the
public on this proposal for the next 30
days.
V. Statutory and Executive Order
Reviews
Under the Clean Air Act, the
Administrator is required to approve a
SIP submission that complies with the
provisions of the Act and applicable
federal regulations. 42 U.S.C. 7410(k);
40 CFR 52.02(a). Thus, in reviewing SIP
submissions, the EPA’s role is to
approve state choices, provided that
they meet the criteria of the Clean Air
Act. Accordingly, this proposed action
merely proposes to approve state plans
as meeting federal requirements and
does not impose additional
requirements beyond those imposed by
state law. For that reason, this proposed
action:
• Is not a ‘‘significant regulatory
action’’ subject to review by the Office
of Management and Budget under
Executive Orders 12866 (58 FR 51735,
October 4, 1993) and 13563 (76 FR 3821,
January 21, 2011);
• 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
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58635
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. The Fort
McDowell Yavapai Nation, the Gila
River Indian Community of the Gila
River Indian Reservation, the Tohono
O’odham Nation of Arizona, and the
Salt River Pima Maricopa Indian
Community of the Salt River
Reservation have areas of Indian
country located within the PhoenixMesa nonattainment area for the 2015
ozone NAAQS. The Cocopah Tribe of
Arizona and the Quechan Tribe of the
Fort Yuma Indian Reservation have
areas of Indian country located within
the Yuma nonattainment area for the
2015 ozone NAAQS. 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, Incorporation by
reference, Intergovernmental relations,
Ozone, Reporting and recordkeeping
requirements, Volatile organic
compounds.
Authority: 42 U.S.C. 7401 et seq.
Dated: October 9, 2021.
Deborah Jordan,
Acting Regional Administrator, Region IX.
[FR Doc. 2021–22662 Filed 10–21–21; 8:45 am]
BILLING CODE 6560–50–P
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]]>Agencies
[Federal Register Volume 86, Number 202 (Friday, October 22, 2021)]
[Proposed Rules]
[Pages 58630-58635]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2021-22662]
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ENVIRONMENTAL PROTECTION AGENCY
40 CFR Part 52
[EPA-R09-OAR-2021-0638; FRL-9101-01-R9]
Clean Air Plans; Base Year Emissions Inventories for the 2015
Ozone Standards; Arizona; Phoenix-Mesa and Yuma Nonattainment Areas
AGENCY: Environmental Protection Agency (EPA).
ACTION: Proposed rule.
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SUMMARY: The Environmental Protection Agency (EPA) is proposing to
approve, under the Clean Air Act (CAA), revisions to the Arizona State
Implementation Plan (SIP) concerning the base year emissions inventory
requirements for the Phoenix-Mesa ozone nonattainment area (``Phoenix-
Mesa'') and Yuma ozone nonattainment area (``Yuma'') for the 2015 ozone
national ambient air quality standards (NAAQS or ``standard'').
DATES: Any comments must arrive by November 22, 2021.
ADDRESSES: Submit your comments, identified by Docket ID No. EPA-R09-
OAR-2021-0638 at https://www.regulations.gov. For comments submitted at
Regulations.gov, follow the online instructions for submitting
comments. Once submitted, comments cannot be edited or removed from
Regulations.gov. The EPA may publish any comment received to its public
docket. Do not submit electronically any information you consider to be
Confidential Business Information (CBI) or other information whose
disclosure is restricted by statute. Multimedia submissions (audio,
video, etc.) must be accompanied by a written comment. The written
comment is considered the official comment and should include
discussion of all points you wish to make. The EPA will generally not
consider comments or comment contents located outside of the primary
submission (i.e., on the web, cloud, or other file sharing system). For
additional submission methods, please contact the person identified in
the FOR FURTHER INFORMATION CONTACT section.
[[Page 58631]]
For the full EPA public comment policy, information about CBI or
multimedia submissions, and general guidance on making effective
comments, please visit https://www.epa.gov/dockets/commenting-epa-dockets. If you need assistance in a language other than English or if
you are a person with disabilities who needs a reasonable accommodation
at no cost to you, please contact the person identified in the FOR
FURTHER INFORMATION CONTACT section.
FOR FURTHER INFORMATION CONTACT: Ben Leers, Air Planning Office (AIR-
2), EPA Region IX, (415) 947-4279, [email protected].
SUPPLEMENTARY INFORMATION: Throughout this document, ``we,'' ``us,''
and ``our'' refer to the EPA.
Table of Contents
I. Background
A. Emissions Inventories
B. State Submittals
C. Public Notice and Hearing Requirements
II. Arizona's Emissions Inventories
A. Baseline Emissions Inventory for the Phoenix-Mesa
Nonattainment Area
B. Baseline Emissions Inventory for the Yuma Nonattainment Area
III. EPA's Evaluation
IV. Proposed Action and Request for Public Comment
V. Statutory and Executive Order Reviews
I. Background
On October 26, 2015, the EPA promulgated a revised 8-hour ozone
NAAQS of 0.070 parts per million (ppm).\1\ In accordance with section
107(d) of the CAA, the EPA must designate an area ``nonattainment'' if
it is violating the NAAQS or if it is contributing to a violation of
the NAAQS in a nearby area.
---------------------------------------------------------------------------
\1\ 80 FR 65292 (October 26, 2015).
---------------------------------------------------------------------------
The EPA designated two areas in Arizona as nonattainment for the
2015 ozone NAAQS on June 4, 2018, effective August 3, 2018.\2\ The
Phoenix-Mesa nonattainment area (including Gila, Maricopa, and Pinal
counties) and Yuma nonattainment area (including Yuma County) were
classified as ``Marginal'' ozone nonattainment.
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\2\ 83 FR 25776.
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A. Emissions Inventories
Sections 172(c)(3) and 182(a)(1) of the CAA require states to
develop and submit, as a SIP revision, ``base year'' emissions
inventories for all areas designated as nonattainment for an ozone
NAAQS. The EPA finalized the 2015 ozone NAAQS SIP Requirements Rule
(SRR) on December 6, 2018. The SRR established implementation
requirements for the 2015 ozone NAAQS, including requirements for base
year emissions inventories under CAA section 182(a)(1).\3\ The SRR for
the 2015 ozone NAAQS is codified at 40 CFR part 51, subpart CC, and the
emissions inventory requirements are codified at 40 CFR 51.1315.
---------------------------------------------------------------------------
\3\ 83 FR 62998.
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An emissions inventory for ozone is an estimation of actual
emissions of air pollutants that contribute to the formation of ozone
in an area. Ozone is a gas that is formed by the reaction of volatile
organic compounds (VOC) and oxides of nitrogen (NOX),
referred to as ozone precursors, in the atmosphere in the presence of
sunlight. Therefore, an emissions inventory for ozone focuses on the
emissions of VOC and NOX. VOC is emitted by many types of
sources, including power plants, industrial sources, on-road and off-
road mobile sources, smaller stationary sources collectively referred
to as area sources, and biogenic sources. NOX is primarily
emitted by combustion sources, both stationary and mobile.
Emissions inventories provide emissions data that inform a variety
of air quality planning tasks, including establishing baseline
emissions levels, calculating emissions reduction targets needed to
attain the NAAQS and to achieve reasonable further progress (RFP)
toward attainment of the ozone standard,\4\ determining emissions
inputs for ozone air quality modeling analyses, and tracking emissions
over time to determine progress toward achieving air quality and
emissions reduction goals.
---------------------------------------------------------------------------
\4\ The RFP requirements specified in CAA section 182(b)(1)
apply to all areas classified as ``Moderate'' or higher ozone
nonattainment. At the time of submittal of the Phoenix-Mesa and Yuma
base year emissions inventory SIPs for the 2015 ozone NAAQS, the
Phoenix-Mesa and Yuma areas were designated Marginal nonattainment
for the 2015 ozone NAAQS and were therefore not required to
demonstrate RFP toward attainment of the 2015 ozone NAAQS.
---------------------------------------------------------------------------
For the 2015 ozone NAAQS, states are required to submit ozone
season day emissions estimates for an inventory calendar year to be
consistent with the baseline year for RFP plans as required by 40 CFR
51.1310(b).\5\ Under 40 CFR 51.1310(b), for the 2015 ozone NAAQS, the
RFP baseline year is the most recent calendar year for which a complete
triennial inventory is required to be submitted to the EPA under 40 CFR
51 subpart A.\6\ States may use an alternative baseline emissions
inventory provided that the year selected corresponds with the year of
the effective date of designation as nonattainment for that NAAQS.
Ozone season day emissions are defined in 40 CFR 51.1300(q) as the
average day's emissions for a typical ozone season work weekday. Under
the definition in 40 CFR 51.1300(q), states are required to select the
months in the ozone season and the days in the work week to be
represented. Per EPA's 2017 guidance on emissions inventory
development, the selected ozone season should be representative of the
conditions leading to nonattainment.\7\
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\5\ 40 CFR 51.1315(a).
\6\ 83 FR 62998, 63034.
\7\ EPA, ``Emissions Inventory Guidance for Implementation of
Ozone and Particulate Matter National Ambient Air Quality Standards
(NAAQS) and Regional Haze Regulations'' (May 2017), 75.
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B. State Submittals
On July 8, 2020, the Arizona Department of Environmental Quality
(ADEQ) submitted a revision to the Arizona SIP titled ``Maricopa
Association of Governments (MAG) 2020 Eight-Hour Ozone Plan'' (``2020
Phoenix-Mesa SIP Submittal''). The 2020 Phoenix-Mesa SIP Submittal
includes a 2017 baseline emissions inventory for Phoenix-Mesa developed
by the Maricopa Association of Governments (MAG) and supporting
documentation regarding the development of the baseline emissions
inventory.
On July 29, 2020, ADEQ submitted a revision to the Arizona SIP
titled ``Marginal Ozone Plan for the Yuma Nonattainment Area,''
including a 2017 baseline emissions inventory for Yuma and supporting
documentation regarding the development of the emissions inventory. The
July 29, 2020 submittal did not include final amendments to the
emissions statement rule in Arizona Administrative Code R18-2-327 and
did not adequately satisfy the public notice requirements under 40 CFR
51.102. On December 22, 2020, ADEQ withdrew the July 29, 2020 submittal
and submitted as a revision to the Arizona SIP another plan, also
titled ``Marginal Ozone Plan for the Yuma Nonattainment Area.'' On July
1, 2021, Arizona provided a technical supplement to the Marginal Ozone
Plan for the Yuma Nonattainment Area addressing comments and questions
raised by the EPA following receipt of ADEQ's prior submittals.\8\
Arizona's December 22, 2020 submittal and the July 1, 2021 supplement
are collectively referred to herein as the ``2020 Yuma SIP Submittal.''
Where specifically
[[Page 58632]]
referring to information provided in Arizona's supplement to the 2020
Yuma SIP Submittal, we refer to the July 1, 2021 supplement as the
``2021 Yuma SIP Supplement.''
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\8\ Letter dated June 30, 2021, from Joseph Martini, Manager,
Air Quality Improvement Planning Section, Air Quality Division,
Arizona Department of Environmental Quality, to Ben Leers, Air
Planning Office, Air Division, EPA Region IX. Transmitted via email
dated July 1, 2021, from Farah Esmaeili, Environmental Senior
Engineer, Technical Analysis Unit, Air Quality Division, Arizona
Department of Environmental Quality to Ben Leers.
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In this action, we are evaluating and proposing action on the 2020
Phoenix-Mesa SIP Submittal and the 2020 Yuma SIP Submittal.
C. Public Notice and Hearing Requirements
CAA sections 110(a)(1) and 110(l) and 40 CFR 51.102 require states
to provide reasonable notice and an opportunity for a public hearing
prior to adoption of SIP revisions. Section 110(k)(1)(B) requires the
EPA to determine whether a SIP submittal is complete within 60 days of
receipt. Any plan that the EPA does not affirmatively determine to be
complete or incomplete will become complete six months after the day of
submittal by operation of law. A finding of completeness does not
approve the submittal as part of the SIP, nor does it indicate that the
submittal is approvable. It does start a 12-month clock for the EPA to
act on the SIP submittal (see CAA section 110(k)(2)).
The 2020 Phoenix-Mesa SIP Submittal and 2020 Yuma SIP Submittal
each document the public review process followed prior to their
submittal to the EPA as revisions to the SIP.
Appendix B of the 2020 Phoenix-Mesa SIP Submittal includes
documentation of notices of opportunity for public hearing and comment
on the SIP submittal. The notices for opportunity for public hearing
and comment on the SIP submittal were posted in The Arizona Republic,
sent by email to interested parties, and posted on MAG's website. Also
included in Appendix B of the 2020 Phoenix-Mesa SIP Submittal is a
responsiveness summary indicating that no comments or requests for
public hearing were received during the 30-day public review period.
Appendix B of the 2020 Yuma SIP Submittal includes documentation of
a notice of public comment period and hearing on the SIP submittal
posted in The Arizona Republic on October 9, 2020, and October 10,
2020. Appendix B of the 2020 Yuma SIP Submittal also contains
documentation of the November 12, 2020 public hearing on the SIP
submittal including a sign-in sheet, transcript, signed certification
that the public hearing was held, and a compilation of comments
received and ADEQ's responses to comments.
II. Arizona's Emissions Inventories
The 2020 Phoenix-Mesa SIP Submittal and 2020 Yuma SIP Submittal
each address the emissions inventory requirement in CAA section
182(a)(1). Each submittal provides documentation of a 2017 base year
inventory of emissions of NOX and VOC. The 2017 base year
emissions inventory was the most recent triennial emissions inventory
in the National Emissions Inventory (NEI) at the time the emissions
inventories were prepared for the Phoenix-Mesa and Yuma areas.
Each emissions inventory submittal includes emissions estimates for
the following source categories: Point sources, nonpoint sources,
nonroad mobile sources, onroad mobile sources, and biogenic sources.
Point sources are generally large, stationary (i.e., non-mobile)
sources of air pollutants. MAG's and ADEQ's specific interpretations of
the point source definition are described in sections II.A and II.B of
this notice, respectively. Nonpoint sources, also referred to as
``area'' sources, are the sources of air pollutants that are typically
too small or too numerous to be categorized as point or mobile sources,
such as residential combustion or consumer products. Nonroad mobile
sources, also referred to as ``off-highway'' mobile sources, include
nonroad engines and nonroad vehicles. Onroad mobile sources, also
referred to as ``highway mobile sources,'' are motor vehicles traveling
on local highways and roads. Biogenic sources emit pollutants produced
by natural sources including vegetation and soils.
ADEQ and MAG each used a combination of top-down estimation
techniques (i.e., allocation of regional emissions estimates to a
smaller, defined geographic area) and bottom-up estimation techniques
(i.e., development of source or source category emissions estimates
using emissions factors, models, etc.) to develop the emissions
inventories in their respective SIP submittals. Specific estimation
techniques for each source category are described in sections II.A and
II.B of this notice.
A. Baseline Emissions Inventory for the Phoenix-Mesa Nonattainment Area
The emissions inventory included in the 2020 Phoenix-Mesa SIP
Submittal was developed by MAG. The Phoenix-Mesa area includes Maricopa
County and portions of Gila and Pinal Counties.\9\ MAG selected the
months of June through August to estimate ozone season day emissions of
NOX and VOC from sources in the Phoenix-Mesa area.\10\
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\9\ See 83 FR 25776, 25784-25785, for a detailed description of
the boundaries of the Phoenix-Mesa nonattainment area for the 2015
ozone NAAQS.
\10\ A detailed justification for MAG's selection of months in
the ozone season is provided in Appendix F of the 2020 Phoenix-Mesa
SIP Submittal.
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In the 2020 Phoenix-Mesa SIP Submittal, MAG defines point sources
consistent with the point source definition put forth in EPA's air
emissions reporting requirements (AERR).\11\ MAG identified 19
stationary sources meeting the point source definition in the Phoenix-
Mesa area. As noted in the 2020 Phoenix-Mesa SIP Submittal, while some
stationary sources in Maricopa County are permitted by ADEQ, no ADEQ-
permitted facilities meet the point source definition, and such sources
are instead categorized as area sources. All point sources in the
Phoenix-Mesa area are located in Maricopa County and are permitted by
the Maricopa County Air Quality District (MCAQD). MAG identified point
sources in the Phoenix-Mesa area via the MCAQD electronic permit system
database. MAG calculated emissions from point sources using annual
source emissions reports, MCAQD investigation reports, permit files and
logs, or telephone contacts with sources. Point source emissions
calculations in the Phoenix-Mesa area also considered ``rule
effectiveness,'' a factor that may be applied to emissions inventory
estimates to account for regulatory programs which may be less than 100
percent effective.
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\11\ Under the AERR, a point source is a facility that is a
major source under 40 CFR part 70 for one or more of the pollutants
for which reporting is required by CAA section 51.15(a)(1), but not
with regard to emissions of hazardous air pollutants. 80 FR 8787
(February 19, 2015). For major source emissions thresholds by
pollutant, see 40 CFR 51.30.
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In the point source category, MAG also accounted for actual and
potential voluntary emissions reductions at point sources in the
Phoenix-Mesa area. Major new sources and major modifications in the
Phoenix-Mesa area must offset the emissions of NOX and VOC
generated by the new source or modification as a condition for approval
of permit applications. These emissions offsets are generally obtained
from existing sources located in the vicinity of the proposed source or
modification in the form of emissions reduction credits (ERCs). The
rules governing the generation and use of ERCs in the Phoenix-Mesa area
area are outlined in MCAQD Rule 240. In the 2017 base year inventory,
MAG included certified ERCs available in the Arizona Emissions Bank in
the point source category totals. MAG also included potential (i.e.,
not yet certified) sources of ERCs for NOX and VOC in the
[[Page 58633]]
base year inventory in order to maintain the availability of these
emissions in the periodic inventory, provided that sufficient
documentation can be secured to confirm the emissions reductions in the
future.
MAG estimated county-level emissions from nonpoint sources using a
variety of tools, techniques, and assumptions depending on each
nonpoint source subcategory. MAG's nonpoint source emissions estimates
were informed by EPA's 2017 nonpoint emissions methodology and operator
instructions, source-submitted annual emissions reports, and scaling up
via the use of per-employee emissions factors. For each nonpoint source
subcategory, county-level emissions estimates were allocated to the
Phoenix-Mesa area using one of five representative variables:
Employment, population, land use, general aviation operations, and
location data. Each nonpoint source emissions calculation and
allocation method is described in detail in the 2020 Phoenix-Mesa SIP
Submittal.
Nonroad mobile source subcategories in the Phoenix-Mesa emissions
inventory include agricultural equipment (e.g., tractors, combines, and
balers), recreational equipment (e.g., all-terrain vehicles and off-
road motorcycles), aircraft, and locomotives, among others. For most
nonroad mobile source subcategories, MAG estimated emissions using the
latest available version of EPA's Motor Vehicle Emission Simulator
(MOVES2014b). Inputs to MOVES2014b included default model input files,
National Oceanic and Atmospheric Administration (NOAA) National Centers
for Environmental Information (NCEI) local climatological data, 2017
fuel specifications and vapor recovery program effectiveness from the
Arizona Department of Agriculture Weights & Measures Services Division,
and local data from a 2003 survey performed for ADEQ by ENVIRON. For
aircraft and airport equipment, MAG estimated emissions using the
Federal Aviation Administration (FAA) Aviation Environmental Design
Tool version 2d (AEDT 2d). Inputs to AEDT 2d included local aircraft
activity data from the FAA Operations Network, AirNav.com, and base
personnel at Luke Air Force Base. Additionally, MAG utilized aircraft
fleet mix profiles from the FAA Traffic Flow Management System Counts
database, verification of AirNav.com data using the FAA 5010 Airport
Master Records database, and general aviation airport survey data
conducted by MAG in 2017. Emissions from locomotives were estimated
using survey data from the three railroad companies operating in
Maricopa County (i.e., Burlington Northern Santa Fe, Union Pacific, and
Amtrak) and emissions factors published by ENVIRON and the EPA.
Emissions from onroad mobile sources in the Phoenix-Mesa area were
calculated using MOVES2014b. For onroad mobile sources, MOVES2014b
requires local data inputs relating to vehicle inspection and
maintenance programs, meteorological data, vehicle populations, source
type age distributions, annual vehicle miles traveled, and alternative
vehicle and fuel technologies, among others. MAG cited numerous sources
and assumptions for local data inputs, including vehicle registration
data from the Arizona Department of Transportation, meteorological data
from the NOAA NCEI, and the MAG Transportation Modeling Group.
Emissions from biogenic sources in the Phoenix-Mesa area were
calculated using the Model of Emissions of Gases and Aerosols from
Nature (MEGAN) version 2.1. MEGAN requires inputs of land cover and
meteorological data. MAG utilized 1-kilometer eight-day average leaf
area index from the National Aeronautics and Space Administration's
Moderate Resolution Imaging Spectroradiometer satellite observations,
plant functional type (PFT) data from the National Land Cover Dataset,
and emission factors derived from PFT distributions. MAG processed
meteorological data from the Weather Research and Forecasting model
version 3.9 with the Meteorology-Chemistry Interface Processor (MCIP).
The model outputs from MCIP were further processed using the MEGAN
component program called MET2MGN for input to MEGAN.
MAG employed quality assurance and quality control (QA/QC) measures
throughout the development of the Phoenix-Mesa emissions inventory.
Point source emissions reports undergo automated QA/QC upon submission
to MCAQD's database as well as manual QA/QC performed by air quality
planning staff. Area source emissions calculations are peer-reviewed by
air quality planners to ensure calculations can be reproduced. Other
QA/QC procedures performed by MAG include review of files by personnel
not involved in the development of the inventory as well as comparison
of the 2017 inventory to 2014 and 2011 inventories. MAG's QA/QC
procedures are described in detail in the 2020 Phoenix-Mesa SIP
submittal.
Estimates of 2017 ozone season day emissions of NOX and
VOC in the Phoenix-Mesa area are summarized in Table 1 below.
Table 1--2017 Ozone Season Day Emissions
Phoenix-Mesa Ozone Nonattainment Area
--------------------------------------------------------------------------------------------------------------------------------------------------------
Ozone season day emissions (pounds per day)
Pollutant -----------------------------------------------------------------------------------------------
Point Nonpoint Nonroad mobile Onroad mobile Biogenic Area total
--------------------------------------------------------------------------------------------------------------------------------------------------------
NOX..................................................... 24,277 32,880 112,100 140,154 5,896 315,307
VOC..................................................... 8,625 209,885 63,661 112,746 1,283,539 1,678,457
--------------------------------------------------------------------------------------------------------------------------------------------------------
Source: 2020 Phoenix-Mesa SIP Submittal, Appendix A, 11.
B. Baseline Emissions Inventory for the Yuma Nonattainment Area
The emissions inventory included in the 2020 Yuma SIP Submittal was
developed by ADEQ. The Yuma area consists of approximately 52 square
miles within Yuma County in and around the city of Yuma, Arizona.\12\
ADEQ selected the months of April through October to estimate ozone
season day emissions of NOX and VOC from sources in the Yuma
area.\13\
---------------------------------------------------------------------------
\12\ See 83 FR 25776, 25785 for a detailed description of the
boundaries of the Yuma nonattainment area for the 2015 ozone NAAQS.
\13\ ADEQ's selection of the months in the ozone season is
consistent with documentation provided by ADEQ along with its
initial nonattainment boundary recommendations for the 2015 ozone
NAAQS. See the technical support document ``Phoenix-Mesa and Yuma
Nonattainment Areas; Intended Area Designations for the 2015 Ozone
National Ambient Air Quality Standards,'' included in the docket for
EPA's initial designations for the 2015 ozone NAAQS under docket ID
EPA-HQ-OAR-2017-0548.
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[[Page 58634]]
ADEQ obtained emissions estimates for point sources in the Yuma
area from the 2017 NEI and from source-submitted annual emissions
inventory reports required for all sources holding a minor permit in
Arizona. All point sources listed in the 2017 NEI and geographically
located in the Yuma ozone nonattainment area were included in the point
source category in the 2020 Yuma SIP Submittal. ADEQ also included
minor point sources holding permits in the Yuma ozone nonattainment
area in the point source category.
Emissions from Yuma area nonpoint sources (also referred to as
``area sources'' in the 2020 Yuma SIP Submittal) were estimated
predominantly using data from the 2017 NEI. The 2017 NEI includes
emissions estimates for numerous area source subcategories on the
county level. For most nonpoint source subcategories, ADEQ allocated
county-level emissions estimates from the 2017 NEI to the Yuma area
based on population, industrial employment, land area, crop land area,
or railroad length. Emissions calculation methods used for the
remaining nonpoint source subcategories include per-person emissions
factors included in 2017 NEI documentation, information from permits,
and information from source-submitted annual reports.
ADEQ estimated emissions from nonroad mobile sources in the Yuma
area by allocating emissions from 2017 NEI data using representative
factors including population, cropland area, and railroad length.
Nonroad mobile source categories addressed in the 2020 Yuma SIP
submittal include: Agricultural equipment; commercial equipment;
construction and mining equipment; industrial equipment; lawn and
garden equipment; logging equipment; recreational equipment; pleasure
craft; and locomotives. Of the eight private and public airports
identified by ADEQ in Yuma County, none are located within the Yuma
ozone nonattainment area. Therefore, ADEQ assumed zero nonroad mobile
source emissions from airports.
Emissions from onroad mobile sources in the Yuma area were
calculated using MOVES2014b. In the 2020 Yuma SIP Submittal, ADEQ
listed MOVES2014b inputs for source type, road type, fuel type, and
process type. ADEQ notes in the 2020 Yuma SIP Submittal that the Yuma
area is located adjacent to a major trucking and travel corridor, and
freight haulers and tractor trailers are primary producers of VOC and
NOX emissions in the Yuma area.
ADEQ estimated emissions from biogenic sources in the Yuma area
using biogenic emissions data from the 2017 NEI. County-level biogenic
emissions from the 2017 NEI were allocated to the Yuma area using the
ratio of land area in the Yuma ozone nonattainment area to the land
area within Yuma County. As described in the 2020 Yuma SIP Submittal,
ozone season day biogenic emissions were estimated by summing the
biogenic emissions in the Yuma area for each month in the ozone season
(April through October) and dividing by the number of days in the ozone
season (213 days).
ADEQ engaged numerous QA/QC procedures in the development of the
2020 Yuma SIP Submittal. ADEQ prepared an inventory preparation plan
(IPP) and incorporated feedback from the EPA on the IPP to identify and
follow suitable estimation methodologies. Procedures outlined in ADEQ's
EPA-reviewed quality assurance project plan were followed to conduct
QA/QC on emissions estimates submitted by sources.\14\ In general, ADEQ
conducted peer and management review of the technical support document
to the 2020 Yuma SIP Submittal and underlying calculations. A detailed
description of ADEQ's QA/QC procedures is included in the 2020 Yuma SIP
Submittal.
---------------------------------------------------------------------------
\14\ ADEQ's ``Annual Permitted Source Emissions Inventories
Quality Assurance Project Plan'' (October 2020) is included in the
docket for this rulemaking.
---------------------------------------------------------------------------
The 2021 Yuma SIP Supplement provides clarification on emissions
inventory details including selection of ozone season months, handling
of seasonal emissions distribution, consideration of weekday emissions
schedules, and ADEQ's QA/QC process. Based on input from the EPA
regarding the consideration of weekday emissions schedules and of the
ozone season in the Yuma nonattainment area, ADEQ made corrections to
some of its ozone season day emissions estimates compared to the values
provided in the original 2020 Yuma SIP Suibmittal. All changes to
estimations of ozone season day emissions are described in detail in
the 2021 Yuma SIP Supplement.
Estimates of 2017 ozone season day emissions of NOX and
VOC in the Yuma area are summarized in Table 2 below.
Table 2--2017 Ozone Season Day Emissions
Yuma Ozone Nonattainment Area
--------------------------------------------------------------------------------------------------------------------------------------------------------
Ozone season day emissions (pounds per day)
Pollutant -----------------------------------------------------------------------------------------------
Point Nonpoint Nonroad mobile Onroad mobile Biogenic Area total
--------------------------------------------------------------------------------------------------------------------------------------------------------
NOX..................................................... 1,113 1,275 2,158 10,402 38 14,986
VOC..................................................... 138 15,007 2,737 5,527 2,849 26,259
--------------------------------------------------------------------------------------------------------------------------------------------------------
Source: 2021 Yuma SIP Supplement, 6.
III. EPA's Evaluation
Based on the documentation included in Arizona's submittals, the
EPA finds that the submittals satisfy the procedural requirements of
sections 110(a)(1) and 110(l) of the Act requiring states to provide
reasonable notice and an opportunity for public hearing prior to
adoption of SIP revisions. The 2020 Phoenix-Mesa SIP Submittal became
complete by operation of law on January 8, 2021, and the 2020 Yuma SIP
Submittal became complete by operation of law on June 22, 2021,
pursuant to section 110(k)(1)(B).
The EPA has reviewed Arizona's submittals for consistency with CAA
sections 172(c)(3) and 182(a)(1) and the requirements for emissions
inventories under the EPA's implementing regulations for the 2015 ozone
NAAQS at 40 CFR 51.1315. The 2017 baseline emissions inventories
represent the
[[Page 58635]]
most recent calendar year for which a consistent and comprehensive
statewide inventory was available. The selection of a 2017 baseline
year for the Phoenix-Mesa and Yuma emissions inventories is therefore
consistent with the requirement for selection of RFP baseline years
under 40 CFR 51.1310(b). We find that the Phoenix-Mesa and Yuma
emissions inventories appropriately estimated the average day's
emissions for a typical weekday in the ozone season, consistent with
the definition of ozone season day emissions under 40 CFR 51.1300(q).
Arizona's submittals document the procedures used by MAG and ADEQ
to estimate ozone season day emissions for each of the major source
types. Documentation of emissions estimation procedures in the 2020
Phoenix-Mesa SIP Submittal and 2020 Yuma SIP Submittal demonstrate that
MAG and ADEQ followed acceptable procedures to develop emissions
estimates. The 2020 Phoenix-Mesa SIP Submittal and 2020 Yuma SIP
Submittal each also describe the specific QA/QC measures implemented to
ensure the accuracy and integrity of data throughout the development of
each respective emissions inventory.
Based upon the documentation of emissions estimation techniques and
QA/QC procedures employed to develop the emissions inventories in each
submittal, we find that the 2020 Phoenix-Mesa SIP Submittal and 2020
Yuma SIP Submittal contain comprehensive, accurate, current inventories
of actual emissions from all sources in the Phoenix-Mesa and Yuma ozone
nonattainment areas, respectively. The EPA thereby proposes to approve
the baseline inventories of NOX and VOC emissions for the
Phoenix-Mesa and Yuma ozone nonattainment areas for the 2015 ozone
NAAQS submitted by Arizona pursuant to 40 CFR 51.1315 and CAA sections
172(c)(3) and 182(b)(1) .
IV. Proposed Action and Request for Public Comment
We are proposing to approve the 2020 Phoenix-Mesa SIP Submittal and
2020 Yuma SIP Submittal as meeting the ozone-related baseline emissions
inventory requirement for the Phoenix-Mesa and Yuma ozone nonattainment
areas for the 2015 ozone NAAQS. The emissions inventories we are
proposing to approve into the SIP are summarized in tables 1 and 2 of
this notice. We are proposing to approve the emissions inventories
because they contain comprehensive, accurate, and current inventories
of actual emissions for all relevant sources in accordance with CAA
sections 172(c)(3) and 182(a). The EPA is soliciting public comments on
the issues discussed in this proposed rule. We will accept comments
from the public on this proposal for the next 30 days.
V. Statutory and Executive Order Reviews
Under the Clean Air Act, the Administrator is required to approve a
SIP submission that complies with the provisions of the Act and
applicable federal regulations. 42 U.S.C. 7410(k); 40 CFR 52.02(a).
Thus, in reviewing SIP submissions, the EPA's role is to approve state
choices, provided that they meet the criteria of the Clean Air Act.
Accordingly, this proposed action merely proposes to approve state
plans as meeting federal requirements and does not impose additional
requirements beyond those imposed by state law. For that reason, this
proposed action:
Is not a ``significant regulatory action'' subject to
review by the Office of Management and Budget under Executive Orders
12866 (58 FR 51735, October 4, 1993) and 13563 (76 FR 3821, January 21,
2011);
Does not impose an information collection burden under the
provisions of the Paperwork Reduction Act (44 U.S.C. 3501 et seq.);
Is certified as not having a significant economic impact
on a substantial number of small entities under the Regulatory
Flexibility Act (5 U.S.C. 601 et seq.);
Does not contain any unfunded mandate or significantly or
uniquely affect small governments, as described in the Unfunded
Mandates Reform Act of 1995 (Pub. L. 104-4);
Does not have federalism implications as specified in
Executive Order 13132 (64 FR 43255, August 10, 1999);
Is not an economically significant regulatory action based
on health or safety risks subject to Executive Order 13045 (62 FR
19885, April 23, 1997);
Is not a significant regulatory action subject to
Executive Order 13211 (66 FR 28355, May 22, 2001);
Is not subject to requirements of Section 12(d) of the
National Technology Transfer and Advancement Act of 1995 (15 U.S.C. 272
note) because application of those requirements would be inconsistent
with the Clean Air Act; and
Does not provide 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. The Fort McDowell
Yavapai Nation, the Gila River Indian Community of the Gila River
Indian Reservation, the Tohono O'odham Nation of Arizona, and the Salt
River Pima Maricopa Indian Community of the Salt River Reservation have
areas of Indian country located within the Phoenix-Mesa nonattainment
area for the 2015 ozone NAAQS. The Cocopah Tribe of Arizona and the
Quechan Tribe of the Fort Yuma Indian Reservation have areas of Indian
country located within the Yuma nonattainment area for the 2015 ozone
NAAQS. 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, Incorporation by
reference, Intergovernmental relations, Ozone, Reporting and
recordkeeping requirements, Volatile organic compounds.
Authority: 42 U.S.C. 7401 et seq.
Dated: October 9, 2021.
Deborah Jordan,
Acting Regional Administrator, Region IX.
[FR Doc. 2021-22662 Filed 10-21-21; 8:45 am]
BILLING CODE 6560-50-P
