Thursday April 16, 1992

Part I l l

Environmental -

Protection Agency 40 CFR Part 52 State lmplementation Plans; General Preamble for the Implementation of Title I of the Clean Air Act Amendments of 1990; Proposed Rule

13498 Federal . ~ e ~ i s t e r 1 VoL 57. No. 74 1 Thmday. ApriI 18. IS92 1 k p c s e d .Rules

EH~RONMEHTAL P R O T E ~ O N AGENCY

40 CFR Part 52

[fFi1-4120-21

RIN 2066Ab12

State lmplernenbtlon Plans; ~eneral . ' Preamble for the lmplementatlon of ; Title I of the Clean Alr Act Amendments of 1990

AGEHCY: Environmentd Protection - Agency P A ) - Anorc General preamble for future .' proposed rulemakings.

SUMMARY: Title 1 of the Clean Air Act Amendments (CAAA] of 1990 revamped the requirements for areas that have not attained the national ambient air quality standards (NAAQS) for ozone. carbon - fnonoxide (CO). par t ida te matter (Ph- lo), sulfur doxide (SO..), nitrogen dioxide [Ha). and lead. In addition. title I made numerous changes in the . . requirements for State implementation plans (SIP'S) in general. including the provisions governing =A's pmcesssing of SIP revisions, as well as the repercussions of State failures to meet the various SIP requirements. Many of these requirements call for early action by the States. For example, under title I. States with pre-enactment ozone conattainment areas were to begin submittir-g SIP revisions e months after enactment (May 15,199l).

This General Preamble principally descibes EPA's preliminary views on how EPA should interyet various provisions of title I. piimady those concerring SIP revisions required for nonattainment areas. Although the General Preamble includes various s:a!ements that States must take certain ac:ions, these statements are made pc:suen: to =A's preli&arj in!eqreta!ions, arid thus do not bind the States azd the public as a matter of law. In the nezr hture. EPA wi!I begin to take rc:ion pursuant to notice-and-comment mlemakkg. on SIP revisions submitted by the States. snd issue rules, pursuant to notice-andtoment rulemaking, on vr:ious title I provisions. During the comment p e h d s for t!!ose subsequent actions, members of t!e public will have the opportmity to coxiiinent on the

- re!evant issues. This General Preamble is an advance notice of how EPA generally intends, in those subsequent ru!emakings. to take action on SIP submissions and to interpret various title I provisions. FOR N F ( T I ( E R INFORMATION COKTACT: hlr. Broc! Nicholson. Chief. Policy Development Section. OzoneyCO

Programs Branch -15) at (919) 511- ' I. Statutov b a b u n d 5517. for issuedrelated to ozone or .' . . z PrrSIP submittal activities carbon monoxide; hlr. Eric G i b q a t - 3.Tmmition ~~s (919) 5414877. Sulfur Dioxide/ - -. : F. h-en Dioxide Particulate Matter Programs Branch. I. Designationr

(MD-15). for issues related to nrlfur . ' ZPb 3. AWument deadLnu d a t a

dioxide. particulate matter, or lead; Mr.. . ,. Nonattrinment pmvisiou Gary McCutchen at (9191 5414592 :: . , G. N~~ so- &view pxa] Permits Progams B m c h WiD-15). for .i. .': ; . . N o m t e e n t permit Rtquirr=enb issues related to new source renew, : . - L Contrwtim baru . US. Envitonmental Protection Agency. .'. ::';.LZ Emtsiocu offsets R e s e d Triangle Pa& North Carolina -I:;? &editable emission reductioru fcr 2mZ N. Paula Van Lare at (202J . XW .. -, :;.' .netting . . SIS for issues related to mobile - - -:,-. 4. Growth allowmks'

S. Analysis of dteroatives sources. MI M S h e t SW.. Washington .. - Conhut technalw info-tior

, DC 20460. .- .. .- .. . . - . - - - '. 7. h o v a t i v e canhuh'for rocket eigine: SUPPLUIMARY INFORMATION: 2 - r y - - .. .

. :and rnoton h ' o k In accordance with 1 C ! 59(~]. this :. . g Excmptioru for stripper

. document is publihed in the Proposed Rules .- ;g ~ ~ t i ~ ~ ~ t ~ l she^ source catwry . . ' 7 . .. .. . - - -.... -. Applicability . .

A liit of cited references rue codtainid i;r' -:+, i a ~ r i b a l dpp]icadility the appendiw which an? available barn !he ' . 11. Stationary 80- defmition . public A 4 3 5 at EPK M Skeet. .. .. 12. Temporay dean coal technology S.W. Washingtop, D.C Appendices A -. - - . *.

. - : demonstration projects h u g h E will be published in a rubsequeh'i 1 ',I ? - l x Failure to submit NSR rules by sate redualReter- , . . - ... : .- - - . -

. . . . . . . . - - - . " .. ' deadlines' OUTUHE . . . . H General '

.; 1. Part D. subpart llsection 110 [to the ~ ' ~ u r ~ o s e . . : : : -; '. ;' : extent not covered under pollue~r.t- IL Background .. . .. .... . . .

A m t o r y . - " . .. . . . spedfic] . -

. .- . 2 Confornity . . B. Overview of title 101 199b 3. Planning requhmenb ir.dudicg sect

I. Designations/dassificatio~ ' . - . : 171 2 Pollutant-specific requirecerib . . i . - 3. G e n e d requiremenb 4. Economic incentives

4. Part D. subpart 1 5. Section 172(c](l) requireaent for all

5. hiiscellaaeoru Reasonably Available Control Xeas IruW @.Relationship between tides I a.;d U of

1990 CAAA 6. Redesignatioru

EL SIP Requirernenb 7. T m i t i o n issues A Ozone 8. General r a w dause I. Ceneral N. E?.+ Requkmenb 2 I4aqi.d areas A SIP Processing Requirements-. 3. Sfodezite areas '1. Campletenesr 4. Serious areas 2 Partial approva!~ 5 Severe areas B. Sanctions and O ~ 5 e r Saiepa* 6. Eltkrne areas 1. Background under 1 9 7 C4-A-4 7. Nonc!assifiable nonattai-z,e=: areas 2 Available measures mder 1W CL! 8. Tr jupor t areas 3. Application and Cnizg cf the seztio 9. hlulti-state ozone nonat!ei-=?=t areas Sanclions

Carbon Sfonoxide C. Federal Implerner.ta~ion P!az: YP: 1. bfoderate aress 11; p;n t . 6 te!ow V. hiiscellaneous 2 Moderate areas above 12.7 ;;= A. Relationship of Ti;!e 1 to Tii:e 'v'

3. Seriou areas I. Intmdsc5on 4. i';onclassifiable a x a s Z. P~rposes of a S D .5. Multi-state CO altairzec: a:?as 3. Fundamenla1 principles fo: SL"s/cc 8. h a s wilh sieificanl s!a';czrg~ source straterj

erissions 4. Satisfyira SIP principles 7. Guidance on waiven for ~ o b i e source 5. A p p r o a d e ~ to ensure t5at r;e.ri!s

measures properly support S P s - C Pxticula te Matter EL Tribal Implementation P l a x 1. Stetutory background ' C Section 1798 Requirements 2 De!er;nination of RACSIIFL4CT . VL Other Requiremenb 3:SFs.lhat demorutrate attailrent . A Executive Order 1 2 3 l 4. SlPs t!at dd not demonsta:e . . ' B. Rglulatory Flexibility Ac:

attainment D. Sulfur Dioxide L Purpose 1. Deigna tiona The prirary purpose of &is ~ r e a Z. C!assificatioiu 3. Plan submission deadl i~es . is to provide h e public wit!! advan1 4. Aitainrcent dates

- .notice of how EPA generally ir . tmd 5. h'onattainrr.ent plan provision - .. interpret various requirements and 0. Sources of SO, policy m d pidance . associated issues that have arisen E Lead title I of the C A i A The infomatio

3 -A - $3 . ,

Federal Register / VaL 57. No. 74 / Thwday. April 16. 1992 / proposed Rules 13199 5-y " . ..

provided in this preamble is therefore comply with the title I provisions. For early yean fo1Iowing the h'ove~ber is. intended to guide States and to help - quick refereoce. title I submittals and 1990 enactment of the 19~1 =.C are . ensure that they prepare and submit . other actions concerning ozone and CO . listed chnologically (by the date eac!!

? J' w & + ~ s or SIP revisions that adequately nozattainment areas required during the action is due) on Tame I. %.< . .

- T ~ E I.-UWR REAIRED S T A ~ E S U B M ~ M S *NO A m t i s

. . . . . . . ~ n w c h s s i k a b ( - & i t i o n . . . .. S u b r W I ~ -. .M MU( scmus ( 3 ~ n -

. . . . . . . . . . . . . . . 1 . ' ...... . . . . . . e r m l s 1mi(ia06yrh~.nrtm;lOfi: . . A ~ l # ~ l i n P m r d y b o v d u i u ( a r c P r a + ~ ~ :,.. :..: . . x : x X . . . ' . . . X . . . . . - .uut*rudaigmudanddrairiU~~rcucMunt~Ju4 . . . . . . . .

. . . . . . . . . . . . . . . . * - - ...... . X . . X . x . .. x x r . - ' X

. . . ( ~ ~ k r ~ ~ i ~ + r r u r r r i m ~ b r m o n . . . . . mmsnxfy). ......... . , . . . . . . . . I

~ r e q u e r t b f m a r , ~ b s h & y b a m h i 6 ~ k r r c r i a o + u l r f . ' - X X X . . ~ 1 h a t m s ~ t e d u d ~ a t 2 4 0 ~ a f l e r c r M m t . . (rrguemd (o k h ~ K A 15. 1991. ml ;h lcst &P Ar .- . . - t

r ~ i ~ ~ n . t ~ s r r . . .;. . .- - . . . ~ t b ~ S I P R v b ' i n b ~ I I M ~ C u . X . . x '

~ G m + w - m @ d p r o ~ n m ) ~ C t n m e b ~ . ~ ~ . , , : .

. . ofnv l#nt#rn) . . : . . . . ' -. .: ' ' . . . . .

. . . . . . . &mnbetd b .submit SIP mGsim b 'i&emnt bask ic. l1.U X '' .' . . . . . . . . . . ~ . n u ~ ~ ~ t b n < 2 0 0 . 0 0 0 ) - . .

- . . . . . . . . . . . ~ R A C T ~ x . " x ' X ' X ' .

. .

-.i . . . . . X X . . . x . -

. . I - . X ' ' X *

X X X x : X .

X X X '

. . . . . . Sthrd NSR nda X X X X .

- I i

.-;. x X X X X X X .

i i !

: . i - . _ . . X X X X x . i . . . X . . . .

S r r b n i ( W ~ ~ t i 0 n ax I

.- 'X ! X : X ! x

I

. . . . I K ! X

5&mil '15% S F 0.r. w r w shovr;ng 15% rekckcn in V O c b a s a h ) .

S~brrj( demomtnton re: &dri&al VCC. NO, r e x k r n as i ! neceswy lo main I Submil NSil prgram (CG] . - . .................-.....-..-., : X Subrril c=?nongerq meawes for faiiuea to meet cr.i!es:;.?es--..?

I 8~ N h a 15.19S4 (4 y w s r2er eacmot ] : Submil at!!menl do-aIkn (pmtoct.emical dhfei+n crcd. 1 i x

enqL Subrmt fiFP d e m l r a t & s b d q 3% average anc-ar ruluc-

aom c o r n m e w 6 pan afier e W m n L I ' i I Submit dearrhrd nM p r o E f a m - - - - - - . - - - - Submit S e e H prgm (a 'reflea cum+able mcasw~s'~ in

~ubrmt p h 10 .ixa-pxxe €?A'S em& dusrcs's.rukr (eslma!ed be).

p~ -- -- -- ~- '.CeMin wbmimlt~acjcnr may acuity be reqLired CQfcre lk err~ of the 6me period S,XCSSI. C%e& rn he~na:ive po r~n of UW Ct:C~mrt fw s=ec;rr

n.:rnru1 tiam sctwhks A*. Ww Pa. requiremeno 0 f . W SecIion 182(0 rriU be adCresseC h ngpkmnts lo tke Genzra Pmrak. 'See Preamble drscrnvcn regarding currsliarce ma scbmlral &la. 2 StbmiMI dates d l be delayed pudtog EPA ~ l m a k t q . . .

a &~Cm lo are1 r im dergn valum > 127 ppm * k ~piica:ia in rqa;e O ECe II requirerranls.

The FA 'S inteqreia~ion of lille I ' approval or disapproval of SIP preamble shou!d reflect the r;.zjority of provisions provided in the preamble will - submittals concerning NAAQS the SIP requirements uxider ti:!e I. also' provide a basis for subsequent EPA nonattainrnent areas. While this . . unique cinufnstances or as ye! - . -

. .

13500 - Federal Re$ster / Vol. 57. No. 74 / Thursday. April 16. 1992 / Proposed Rules .. - uriecognized issues are likely to cause case-by-case exceptiocs to arise. The EPA intends to provide the public with a formal opportunity to comment o n the provisions of this preamble. and other issues that may arise d w b g subsequent rulemakings that take action on SIP revisions submitted by t!e States under title I and that se t out EPA policy on various aspects of title I. This preamble is a General Preanble for those - subsequent actions.

This preambles focuses primarily on the SIP submissions required for nonattainment areas under part D of the amended Act. It discusses specific issues concerning the proper. inten:etation of the title I reauirements of a k a s designated nona:ta&ent (and. for s o n e pollutan!s. classified] under . part D. titie I. a s well a s the treatzient of nonattainrnent areas that fall outside of the classification sdierries. This preamble discusses requirements for the SIP.submissions reqrtired for ozone. CO. PSI-10. SOr, NQ. and lead nonattainment areas. In addition this preamble discusses kterpretation issues that have arisen concerning redesignations a t attainment. sorce g e ~ e r a l SIP requiiements. and EPA ac!ion on SIP submissions. a s well a s t ? e various types of possible State failures to meet certain require men:^ and the consequent sar.c!ions and Federal implementation plans (FLP's).

This preamble also se!s forth EP.4'3 in!crpreta:ion of the various provisions in the amended Clear f i r Act [Act) which change new s o s c e re\izw (KSR) reqzirenents for new acd modified sccrces in nonattainment areas. The 8:scussion includes E?A's intended i?!eq;etation of tke minimum changes a!! States must make in their SIP'S in crser to ~3rn;iy with ~ ! e amended SSR requirerner.1~ and t!e deadlines for c:akir.g these changes. States shou!d cse :>is Genera! Preamble 2s guidance for revision of their :;SR piograns and submiital of he i r NSR Sips. The Act rr.xda:ed deal!ines for NSR SIP sxbmii:als are: >lay 15. i9S2 for areas without approved S G SIP'S prior to enact:nent: Sorernber 15.1993 for all o:her S G nonattairnent areas lesignated prior to ecactrnent: May 15. IS91 for NOi; July 6.1993 for lead nonattainrnent areas designated January 6.1992: June SO. 1992 for PS1-10 r.osat!ainment areas; November 15.1992 for 0zor.e ncnattai~ment areas and transpor: regions: h'ovember 15.1993 for CO nonattainment areas with a design rpa!ce of 12.7 ppm or less: and Sovember 15.1992 for CO nonattainrnent areas with a design value above 11.7 ppm. For future designations. NSR SIP submittals

are dse within 13 months f r c n redesignation of all SQ. XO-,. Ph1-10 and lead nonattainrnent areas. and withii 2 years of redesipaticn for ozone and many CO nonattainrnent areas (within 3 years for CO ona attainment areas with design values less than 1 2 7 ppm).

Xote also fhatthese d a n g e s apply not only in designated nonattainment areas. but in ozone transport regions. certain tribal lands that'are either in nonattainment areas or ozone tanspor t regions. and to specified sources in the . Outer Continental Shelf (OCS) are& The EP.9 i ~ t e n d s to amend i b existing NSR . regulations (see 40 CFR 51.163.51.166. 5 a . and 5 2 2 1 to reflect t!!e changes

, mada!ed by the C A W . Certain changes to the NSR requirements of the prevention of significant delenoraeon (PSD] program part C title L will be addressed in a separate EPA proceeding and are not addressed in this preamble.

The timeframe, or scope. of this General Preamble covers the &year period following enactment The SIP submit:als for all affected areas are

'requiredJo be developed. submitted. and approved by EPA within this time period. Complete plan submittals are required for certain Phi-10 areas within 1 year o i enactment. For ozone and CO nonattaiment areas, regulations. ecission inventcries. ccntrol-ceasure st-ategies. and a t t a i n ~ e n t c k s o n s ~ a t i o n s are due a; varying da!es frcm 6 noriths to 5 years after enackent. Generally. t?e gciciance provided this d o c ~ m e n t is intended to g . ~ i l e nonattainment S;P deve!o~ment until hrthzr s:atu!ory requirement a:e issiled or EP.4 dete,?ines :bat rea.-isions ere zppropriate.

The scope of this General Preamble is !inited regardi~q several re-.Y p:o:,isions of :he 1990 C.14.4 conc:ming ezissions of t!!e oxides of nitrogen (SO,]. S;?ciEc.ll:;, the Genera! heer?.b!z does r.ct i;ic!cde a discassicr. o l t!e nc!v NO, ;?:9visic2s wilh respec! to t5e !cl:owing ic?ics: ;easoaa5ly avai!zt!e controi iec:?noiogy. new source reivierv. in:erac:ion of titles I and IV. ozone . trsnspor: region. section 1852 report. azd sec:io;l132(f). However. EP.4 iecongizes the Importance of providing tiziely guidance to the states ta he!? assure the deve1opmer.t add inplementation of cost-effective control measures to reduce ozone levels. Accordingly. EPA will issue guidance a s soor. as possible. a s in supplerr,ents to t5e General Preamble.

Six years is a signiiicant miiestone in the 1990 C A A X Within 6 years of enactment. ozone nonatjainrnent areas classil'led as moderate and above must

achieve a IS percent reducticn b volatile organic compound [VOC] - emissions. and moderate areas ==st attain the NAAQS. In addition. moderate CO nonattaimient arc- as mu also attain the NAAQS by DecrzEer : 1995. Sulfur dioxide. Phi-10, lead. acd NQ nonattainment m a s mtst also meet significant statutary mi1es:cnes within the &year period.

n e appropriate SIP components - necessary to meet these goals bj. the sixth year and to provide adeqcate plans (due tvivithin the first 6 years) for attaining the N W Q S by the appropr; te dates beyond the sixth year a x covei d in this General Preamble. To s3c.e extent this preamble also appEes to t e period beyond 6 years. For exe=~-,le. i includes much of the guidacce applicable to areas designated n o n a t t a b e n t for SQ. nf-10. aad !e ~d beyond the &year period. Other guidance that covers the period beyo 2- 6 years from enactment denocst-ati: g attainment of milestones or NAA.QS 3d future planning for cities with the mo : significant air pollution pmblezs, lvi be covered in future suppleme=:s to I :is General Preamble. a s necessLy.

This preamble is organized to n e e -- the needs of individuals wanting e i f !r -.-- a n overview of EPA's pre l i r r . i r~~j -+I

inlerpretation of the various prsvisic : 1 of title I of the 1990 C A L I o t a ie!ai e. i discussion of SIP submittal receirern 2:; --* for e specific NA4QS nonat!aLL4';1ez classification. An area wit!! a higher nonattainrr.ezt c!assiilcatio:: (i.e.. i: more greatly exceeds a NA\QS tha: do areas with lower nonattai-=e:: classifications for the sa-e S.',t.QS generally must adopt all rnezs2r.s reqgired of arees with !o;ver nona!tair.ment c!2csiiic2tio~~. gicr.; with specif c measures recpirzf for :.c higher classificaiion. There:o:t. :kc general in:x!uc!ory ma!e+l ;: :he beginzing of the prearnbl: a r t L-.? materizl describizg SIP r e q x i : ~ . ~ . ~ ~ : ::: al! those levels of S M Q S nor.a:taicxent equal to c: Ic-:;r: :.% : the classification prom~Igate6 izr 3 partic-~lar nonat:ainrr.e~t are:. z:e

'applicable to the area. The General Fiaamble inc!xtrs

citations to its own secticns 2z2 :O

sections cf varicus Aci [or CAA-A] versions. Citations usuaily c 3 ~ 7 1 y :i:5 the following conT;entions:

I. General Preamble ser : ixs Ses 9 with a roman numeral.

2. The Act is refrrenced by ser:ic 1 1

by title (I-V]. pzr: (A-D of title I. .A ti!le 111).

3. Earlier versions of the Ac: e x ! tke 1990 (or earlier) C W are ider,:~:? d by date or other specific reie:er.ce.

Federal Register I VO~. 57. bio. 74 I Thursday. April 16. 1992 I Proposed Rules 13501 - -

. A glossary listing the various acronyms used in this document is in appendix A The bibliography for and list of cited references in this preamble "fin appqndix B. .

. .. Background

's-& A. History - - The long history of the Clean Air Act

(Act) extends back before 1970. A . summary of significant events occuning during i b deveIopment is given in 52 FR

' 45094 (November 21.1981). That summary was part of EPA's

proposed Post-1987 Ozone and CO Poliey, which focused on requirements for areas that failed to attain the NAAQS by the statutory deadline of December 32 1987. These proposed requirements included correcting certbin SIP deficiencies and fully implementihg the 1982 SIPS. adopting enhanced '

inspection and maintenance (I/M) programs. and submitting revised SIP'S that demonstrated attainmen: over an expanded planning area as expeditiously as practicable by . achieving at least a 3 percent per year reduction in the base year emissions.

On May 28.1988 (in accordance with section llO(a)(2)IH)): EPA began issuing notices of SIP inadequacy (SIP calls) ccntained in letters to the Governors of States with areas that failed to atfain - be ozone and CO standards or that I~ntributed to violations of the

'Sta~dards (see 53 FR %5CO (September 7.1S88)). These letten called on Siates to coxplete "Phase I" of their SIP call response. Under that phase. the States were to correct the SIP where it failed to meet EPA's existing part D guidance re!ating to control of VOC and CO e~ i s s ioc s from s t a t i o n ~ y sources. saYsfy unirnplemented SIP commitments by adopting any missing control cezsures, and beai? updating the base year exissions inventory for future at:ail-r.ent plans.

Beyond the basic attairment p!a;liing requirements discussed k the proposed Post-1987 Ozone and CO Poiicy. t!e 1%; C;r-94 included preconstruc:ion penritting requirements for major new and modified sources under two piograms. PSD and nonattainment NSR (res~ectively, parts C and D of title I). Ln nonattainment areas. new or modified aources as part of a preconstnction review process must (among other Clings]: Obtain emissions oEsets. and adopt control technoIogy meethg a 1ow.est achievable emission rate (LAER) standard. In 1980. EPA adopted new

nal reaJ1ations detailing SIP jqcirenents to implement the NSR

Programs of parts C and D (see 45 FR 526761. The preamble to these ,

regulations shohd be consited for aa in-depth discussion of the history of the NSR provisions of title I as well as a detailed e-ylanation of program . requirenents prior to the 1990 CAA.4. B. overview of ~it le Iof ISXI CiAA

- One of the main goals of the 1990 W was to overhaul Act provisions that concerned planning for NA4QS attainmenL Although one of the &ef motivatiom for amending the Act wag the failure of areas to attain the ozone and CO standards, the process of amending the.statute provided an . opportunity to address on a .

- comprehengive basis the defects in . e x i s m law.

Title I of the CA (Provisions for Attainment and Maintenance of N.L\QS) for the most part amends and sapplenents title I of the Act (Air Pollution Prevention and Control).l In light of the massive sheep and com~lexity of title I (1990 GIAA). the reader may find it helpful to view the. Title as a collection of six sets of requireaents. The following discussion provides a brief o v e ~ e r v of bese six sets:

?his set of requirements amen& section 107 and the classification provisions in part D (Plan Reqlirenents for Attainment) of L!e Act. For ins!rr.ce. section 181 addresses ozone c!assiiications and section 186 add=esses_CO classifications. Speci5c requirernents. by classification a:e discussed in section ILI.A. and sec5on Ilia. of this notice.

Pcllutant-specific reqL-e-ec:s fcr desipz!ed ozcne: CO: P31-10: ad SG. K G . zhd lead nonattaiur.ent a;e.s are fau.2 ii pait D at subpar's 2.3.4. ~ ? d 5. respec:ively. Where a con5ict eks:s. t5e poliutant-specific requirezests over;i2e the re:v-socice permit r e q u i i e ~ e z ; ~ cI secson 173.

3. ~ i e r a l Requirements

The revised general requiremefits for all plan3 regardless of the attakaent demonstration required appear e=r!y in titlelof the CAAA.

Note f i e amendments modify n a e x u s sectiocs of the A c t Lnduding sections 10;. 110. acd 171 through 179. These general reqckernenb include procedures !or 9.4 review of SIP submittab [new Ac: aec-ion 110r.)): acYon on SIP revisioru [sec$oc

The C1U r h o amend oker tides for eun_ple. new recson 30; of the Ac: ad& proviriora regardirq hrhnent of Indian t ibes to liue m of h e AcL

llo(1)) and a revised list of requircr,ez& !or all plans (section lro(a)(z)).

4. Part D. subpart 1 This set incIudes general requirements

for all designated nonattainment ateas. especidy those designated under new and revised NMQS. In Subpart 1. Congress repealed the 1987 a t t a h e n t deadlines for ozone and CO. In sone cases. the pollutant-specific requirements contained in subpafa 2 5 of part D override subpart 1's general provisions. Subpart 1 also inc!udes a process governing sanctions for Siate failure to meet statutory requiresents. Beyond that it includes revised new- s o w permit requiremen's (section 172(c)(5) and section 173).

5. Miscellaneous

Other provisiors of the Ac: a d i ~ s s a variety of topics. Most of these . provisions appear toward the end of title I of the CAAA. For example. new Act section 193 (technically in a new subpart 6 of part D) sets forth a "General Savings Clause" goverha

. retention of certain types of preriocsly enacted or mandated requirements. The new Act section 3Ul(d) contains provisions re!ated to Indian Mbes. Tee miscellaneous provisiods also k d d e guidance on planning and . trznsportation-re1z:ed provisiocs.

6. Relationship Between Tit!es I ax! n oi 1990 C A M

~ i t l e I ger,e:ally addresses tAe nonattaiment SIP requirenen's ;;a title I1 deals wit!! conk01 oi rr,obCe source emissions. While tide Li principally deals with Federally implemented p r o g a s [e.g.. Feserzi klotor Vehicle Control P:ogiim PWCP) ] . requirements re!ated tc SPs . such as fuels pmgr3s and Reid vz3ci pressure RW). are a!so co~tr ine? i: the title. Therekre. g~idance o; implementing L,ese Frozracs :\<i! ::so be provided in this d o c ~ r ~ e z t .

ID. SXP requirements

A. Ozone

1. General

(a) ~ lnss~f icaf ions . '~ew subpz", 2 of part D (secticn 181) sets a celv classification structure for ozcce nonattainment areas based on the severity of the nonattainment pro5lez. For each area classified under tiis section. the ai:ainment date s t d De as expeditious as practicable but no later than the date in the following table. The classScation scheme is as fol!ows:

13502 Federal Register / .VoL 57: No. 74 ./ ~ h k d a y . April 18. 1992 / Propored:Rules . . , : I - . .

M e a t i o n Ppm . date

Eemne.....Q280md. . . ~ a u e & t & l ~ . . ...&Ye *. . . ,2010, , I , . .

. . . . . . . . - . .

~ d d i t i o n a l l ~ , a severe area with all986 to 1988 ozone design:value of 0.190 up to. but not including. 0280 paits per .- - million lppm) has 17 years (until .'. - . .. November 15.2007) to . . attain the' . ;

. -. . NWQS. , .p:::;..:..:: .?: . . - The designation/clas;ificacation process for ozone was described in 58 FR 56694

.... . . .,. (November 6.199l). :. . " . .. (I) Special classifications. In addition to the five air. quaty-based : - ? . : .. ;:. classifications, some nonat!ainment . . .. areas do not f i t igto the classification . . s&e&e of section 181(a]. The EPA has ;

classified these areas as transitional. . ' submarginal. or areas with incomplete data. Section m.A of this preamble describes the requirements for all areas (marginal to extreme and the specizl dassifications) in,much the same way as they are described in section 182

[c] Planni-qg. As provided in subpart 2. e~ i s s ion inventories, provisions for S:age II gasoline vapor recovery, motor vehicle IIhf. NSR stationuy-souce raasonab!~ available control technology (TUCTJ. and certain other p1annk.g or control rzeasures are reqcirad within 2 yexs alter enactment (Xovember 15. 1392] for most of the previously and newly designated nonattainment areas. For a very few nonattainment areas. fzal determination of the nonattainme~t erea boufibies may not occur until only a few months before several major rules (e.g.. Stage II.1IM. transportation control measures (Tmf s]. NS2. RACT] and the emission inventory must be submitted. These nonattairaent areas should not delay their adoption of rules or preparation of-inventories while the bouydary determinations are '

prcceeciing. Rather. these areas 'should be prepared to readily adopt rules and complete their emissior. kventories for the broadest area under consideration .

should EPA conclude that such broader area is appropriate. The 1990 CAAA . -

;equi& all submittals due within 2 years 2. Marginal Areas : . .. .. (~ovember 15,1992) to address thd :: entire n o n a t t a e e n t area: these submittals can not be delayed due to the final boundaries rulemaking under s e e o n lW(d). :- . . ':.-: . - .: . . ,

(d) ~nfoneabifity. The EPA has recently developed new model RACT rules (which supersede the previously issued model - rules) . - for controlling VOC . . .

- . . . . . . - . ... (a) Emission invenkvy. See a?pendi

B for pertinent guidance on emissions inventory requirements.': . :, : . . . . .

(1) Schedule. Section 1&2(a)(lj - -: ' requires all nonattainment aread to: ..- submit a final. comprehensivi ~c&a l and current inventory of actual ozone season, weekday emissions from all sources within 2 years of enachent ~.

emissioru h m sour+ categories . . -, .gqov& 15; 1992)..~e EPA =quest . covced by the Group L II. and III ... -. .. . .-that the. d a f t inventory be submitted . i ~ n b ~ l technique guidelink (CTG'?).:: ' : betyeen January ~ - h d Ma i l , 1392 i,i= . Thesemodel rules are intended to be . .-. .order to facilitate e=ly.=view and

' used by areal subject ti! RACT r h - u ~ " . ,allow !he submitt@.of an acce*tab!e requirements in correcting editing '.'. inventory in November 1992 1 . - --. - - . . RAm rules, as required by section -. . - (2) ~ ~ ~ " i ~ ~ ~ ~ ~ G . . . m s initial.: .I 182(a) [see section IIIA.2 marginal - inventory i s for calendrii ye& 'c. areas below), and by areas subject 10 . . - is denoted a j the base year inv&tory, [t RAm "catch up" requirements that are' includes both an&ropogenic and . : required to apply RACT measures in : '. biogenic sources of VOC N ~ x a i d Cc I. accordance'with iection 182(b)(2) of the The inventory is to addresiat3jal VC 2 Act (see section IILA.3,'moderate areas NO&-and CO emissions for the.~,sa below). The model RACT rules Lqclude during the peak ozone se'asori which ;

. . pmvisioxis for compliance cedficatioe . . generally the summer'months. A11 - . record!eeping. reporting, monitoring, stationary point sources and a k a ' '

and test methods and proced-as to sources. as well as highway and' -' enable EPA and the States to determine . nonhighway mobile.pounes within th I

coEpliance with the requirements of the .. nonattainment Gea, stationary sourc~ s , regulations. For a number of source . . . with eXIlisSi0ns of 100 t0hs Or pester er

categories. these compliacce provisions year *thin a @de buffer o f t have been added to the model R A ~ .designated nonattainment area. and i n:: .

rules to impmi& edorceability because OCS sources are to be inguded in tht the CTG's and previous guidance for compilation Including sources withir

25-mile.buffer is necessary to e"-sure mese sources did not include sue! ha; sources of .fleckg ; requi-ements. - quality within the nonattaiiment are

In general, for a SIP regulation to be are adequately for h edorceable. it must clearly spell out m o d e h g demonstratiom s*ete2 , which sources or source types a:e development. For nonattainmez! are; s subject to its requirements 2zd what its that are required to do photo&e;lia requirexents (work practices, emission grid modeling pursuant to seczc;l :c) l idts , etc.] are. The regdacon also - (2) (A) (see jections mA4.e. ~ 2 ~ 0 ~ s needs to s~ec i fy the time Eanes wit.!! areas, and IIIA.9, multi-State axas). k.e which t.!!ese requirements rus t be re!. mode!i~g domain will determiye t!!e

izust defir.iti.re1.j $!ate appropriate size of the area tht! F_XS be recorceeping and mori:oi.sg ir?ven:or'.ed for modeling pwcses. reqakeaents appropda!e to 5s t:;-,z oi As one of the first steps in de.;e!o!: r . p sources b e i q regulated. the base year i~ventory, the S:a:es a e recordkeeping and monitorkg . to prepare an inven:ory prepz:i?-ioa mizn req.&-ernents nust be sufficient to ai1cS.v (IPP), which is due in final for=-, to E .A deten;i-.ations on a conh&5ng basis by October I. 1991. The D? 3tcSd whet.!!e: sources a x compiying. h briefly stata how the State intezds ti edorceable regulation must also contain develop. docurcent. and s u b k t its test orocedures in order to determine inventory. Another early step the wheher sources are in complia~ce.

(e) S ~ ~ c l u r e of requiremen3. fcr m a s classified maqinal to extreme. virtually all requirements are additive (e.g.. a moderate area has to meet all maana l and moderate requirements, unless ot!!erwise specified.). The text below presentsths requireloents in the first applicable classificztioz'then repeated only if the requirements are diiierent for a higher classification .

inventory development process is preparation of the point source ;orti of the base year inventory. Gddanc~ preparing emission inventories was issued i i ~ May 1991 ("Pmcedum for Preparation of Emission 1nven:cees Carbon Monoxide and Precllrsc:s ol Ozone. Volume I"). B e e u e b e poi1 source portion of this guidance is . essentially the same as it was for th post-1987 S F s . States should have already begun gathering data on thc

In lo;

. - -: ~ e d e d ~ a g ~ t e r 7 V o l 57. NO. 74 I ~hudday; April 18; 1982 1 ~rdpoKd Rule;...; ; .;;.: 13503 .

. . Lrnis;icifi C s b a t e s m ~ t be developed -:' imiortahi hi kbdeling.' :., . - -.

. . by the States using the new . ' . . - ! . demonstrations fdi aka; da i s sed : . methodologies;?he new methodologies moderate and above'iiutside *port . . for -dcula ting 'emissiob for solvent .use ..-. regiohi. Guidapce-b-bhn de+eloped . .

itories,'. - ' are coiitained in the May 1S9l d o k e n t , t o aid S.tatei in prepZjnjS +iiiriod - . "Aodduies for'the Preparaticn of . -. . inventories for phot6zhemid grid Enission,.hventories for W o n ' : : . modeling (for seyioe -aha jbqveafeas . Monoxide.'and h e o n of Ozone. : -. . and pdti:Statti p v d q t e areits)'.:. . ': - .Volume.I";'+d.for +a& and h f t .: ("ProdureJfoi the hp&tionof ' - . .. in the July1991.hal hg chapten of :Emisdon I n 6 t o r i e i for.Ca&ci: :- ;-'. -.'.. - @jdo&idpt :p&+~ for h e ]:::'<.-: .. Mono&de +$ *dbE'bf&ne:.~ol.-. .

&p'*ho&'of Erhissioh Inveuto&.for j? - lLw. , .~y l+C'TJjl&l Apijli&tio+ =- . .- . -. -. .C&&@ Mdibjiidd Nw9br?'bf z'.T* * -.i. ' G u i b W . * d m g & $ & ~ d d = l ~ ~ &i ' : :- I ~ ~ ~ ~ ~ o l ~ e ' I V . ~ . ~ h e Sbtes will be: ..-,U&anTh~hedhio$&VbL 4.7 n e .- ='.- ' ..-..:. - - . . kqijred touietheie metho& when :<:-!;: reader should w i e f e j to:%e.; -r . : - .- -. .

i;;. prep- *'&a'&d off-highway. ; . - : z . diicit&ioi of a e e n t deIn.&~tioi ' - . ..:-' nobile source portions. of their emission . requirements for ?erioM'are'as [skction . -: inventories.:;, C: : :f ' - . .. ': ._ . _ . . . '- ... .' . : U 4 . ( e ) ) . Guidance on emission '

'

Tne EPA .do&nik~t-"~rocehures for . .. .inventory preparation foiEKMA {fir . '

. : 'Estiqating'and Applying Rule . -.. . . . ' . nonmulti-State'~der*.nas) is ' . . Etiectiveness iqPoht-1987 Base Year. ' . -. - described in "P rbddGs for Prejaration

: Emission Inventories for Ozone and - -..: .: of Emission'Inventori~fo~Carbon' : ' . ' Cirbon Monoxide-State hplementa tion -. Monosde and Precuriosof Ordne.' .: , ,:,.<.-.. .- .: Pla&:(June.'1989) should beconsulted '- - Volume L".May 1991..2r?y:;:< =;I:-'' - .

.:. foi'information on how to consider'rule .::. ' (b) ~ ~ ~ ~ o m & d o n S ~ ~ e c t i o n ':. '- '- effectiveness *en calculating - .--- . ' 182[a)(2)(A) vq-i dzpie' .i.'c;'- '- ' .

e*ssiqns frog stationarysources. One . nonattainment &s to subrhit .+thin 6 . . . ate mobile .:.;-:i.: hmdred percent rule effectiveness is the m b n b of dajsifi&tidri'all des '&d

er States'. .. .;. ..> ability o f a regulatory program to. ;' .-.;. :.; ; com'ctioru to ex is^ VOC RACT ides : tandards, they .- achieve a! the emisaion reductions that :: :that were'required under theR4CT. :.. -

.: could be achiev:ed by full compliance . ..-. provision, section'172fb](3) of the bld ..

. :with the appliebIe regulations at aU - - law (and related guidance).'IIhe F A sources at all times. For the'purpose of . . published a Federal Register (56 FR .

, 'jwould not correctly reflect emissions : , : base ye& inventories under the CAA. . . 1 545Mj notice describing this provision' . from-these States in the future. '-' - . ' EF'.% will require the use of an .?~3 . . and the success of States in meetkg the Howeyer. for the base year inventory. . - percent-effectiveness default value . .. correction deadline; and the readen and tintil new California cars are .: . exce?t as follows. The States are should refer to that notice:& explained introduced into an area, MOBILE4.1 encouraged to derive local category- in that notice, areas that were should be used. The majority of the . - specific d e effectiveness factors. designated nonattainment under section enbancements in the revised model are . . consistent with the tests and protocol 107 just prior to enactment of the 1990 internal to the model and do not require prescibed in the March 31. lsaa CAAA are the only areas dec ted by the States to make any special menorandurn from John S. Seitz this requirement because they are the - procedural adjustments when running Dimeor. Stationary Source Com3liance only areas that were then subject to the

. hlOBILE4.1. The EPAs "Mssion Di..ision. to Regional Air Dikision RACT requirements of section lZ(SJ. Inventory Requirements for Ozone State Di-eciors regarding "Imp1emen:ation of These areas were again designated Implementation Plans." should be Rule Effectiveness Studies." or conple!e attainment on the date of enackezt oi referred to for more infornation. The t!!e qnestiomaire procedure for all of t!!e 19%~ C M . ar.d were then States will also be required to develop the? source categ~ries as presc5bed in dassified under section 18l[a](l! by new 1%0 base year inventories for "P;ccedures for Estimating 2r.d opera:ion of law. Thus, those arers were highway mobile sources to account for . Appiying Rule Effectiveness in Post-1987 required to submit their R4Ci "5---sps" fleet turnover. newly opened-to-traffic Base Year Enission Inventories for as a SIP revision by hIay 15. I=. highway sections resulting in changes in 0zor.e and Carbon Monoxide State Newly designated nonattaiment

- ~ehicle miles traveled Wfil and W Inplenentation Plans." Finally. the areas are not subject to the RACT "f~x- - patterns. and changes in speed limits. ' reader should refer to section L r l 9 on ups" required by section 182(a)(Z)(A]

Slates are to'follow new guidance for mdti-State area requirements for because they were not subject to section . estimating VMT to be published in the ' . additional information related to base ' - ~;s(b] of the old law. This is &e case

Federal Register notice expected to be - - year inventories. - . . even if the State has already adopted ksued in IOMS to fd in]. By meeting the specific inventory . . rules for the area as part of statew:de

New methodologies have been . - . . requirements discussed above. the State RACT for purposes other than cez!ir.g developed to calculate emissions from will also satisfy the general inventory pre-1990 Act section 172(b]. For

-certain area.of off-highway mobile reqtirements of section 172(c](3]. nonattainment areas that will be Source categories. The categories are (3) Other uses. Many other inventoEes expanded to contain portions &at were solvent uses. railroads, and aircraft. T i e can be derived from the base year . . not designated nonattainment p ~ o r to

.,. mission factors for nonroad engines . . inventory. For example. areas may use . enactment the RACT corrections are And vehicles have not yet been changed. their base year inventory as part of . . - due irr 6 months (by hfay 15.19911 only but may be revised as the result of a . . . s:atewjde inventories for purposes of . for the original nonattainment area. -.

18tady required by the 1990 C a - - . . . regional modeling in transport areas. ' . Howevir. for moderate areas. the newly ,;lherefore. for these categories. new T '. ' : The base year inventory also plays an . .- designated porb'ons of a n ~ n a t t a ~ n e n t ..

- .

. .

13504 Federal Register / Vol. 57, No. 74 1 Thursday, AprJ 16. 1992 / Proposed Rules I -

area will be subject to the RACT "catch- EPA will be discussing those provisions 1931 and later model vehicles of 12 ups." As explained below in section in a subsequent Federal Register notice. percent CO and 220 parb per &Son *'

W, each moderate nona t t ahen t Refer to section NR for more . hydrocarbons (IiC] and a 20 petcent area (including the newly designated discussion on sanctions. Under set ion stringency for pte-1981 vehicles. A portion] is subject to the RACT "catch- 110(c). EPA also must prcmu1ga:e a FTP . compliance n t e of 100 pescent m d a 'up" requirements of section 182@](2). - no later than 2 years after finding a waiver rate of 0 percent are asswed.

. - which provide for SIP submittals by failure to submit -- States must demonstrate an emission November IS. 1992 The R4tX 'fuc-ups" On October 221991, EPA published d reduction for Qe I N program Bdudt f refer to corrections States are required notice (58 FR 54554) finding that nine ' in the SIP tha: b a t Ieast as great as tl st to make to RACT rules that are already . States and the District of Columbia produced by the %odel" basic ~ r o p n tn force and to adoption by States of failed to make a RACT fix-up submittal (or the progam already i n d u d d ia ti z

. d e s that were required by pre-1990 Act requind under section 182(a)(2)(A). The - SIP. whichever is greater], wing the section 112(b) to be in force. The RACT EPA d s o plans to publish a set of mode1 nost current available version of E N s "catch-up" refers to the application of Federal VOC regdations. 'The EPA will mobile source emission model The I/ .l

. ' MtX for all applicable sources listed in w e these model regulations as a s t a h g program are required in the u r M i f mection 182&)(2). regardless of what was point for Federal prordgation of - portions. as defined by theBureau of he previously required. For purposes of the . reg.slations uhder section f l qc ) as ' Censits in 1980. of the margiaal . RAm ':fix-ups" requirement areas that necessary, and will provide an . - nonattainment area. - were treated a s rural nonattainment opportunity for comment at that time. To The EPA e-xpects to issue the poli&

. areas under EPA policies implementing the extent practicable. EPA will for 1/M programs in the near future. the pre-amended Act must submit. . formulate any Federal regulations on the l a e n publisbed the policy wi!l state corrections only for previously required model regulations. Federal regulations . . the datewhen such propami are to 1 2

d e s (Group I and I1 CK; sources with will be promulgated if the Sta:es do not implemented. The EPA intends that t e maximum theoretical VOC emissions correct the regulations before the end of policy wiU allow all areas ample timc greater than '100 tons per year). Other the 2-year period commencing hum the after publication of the policy to ado1 t rules (Group IU CTG's and nonGTG finding. and submit basic or enhanced 1/11 rules) will be due by November 15,1992 The EPA hill also use the model programs andlor 1/M c o ~ t i o ~ ~ as as part of the catch-up for those regulations as the bask for Federal referenced in section 182(a)(2)(B). St; tes previously designated nual . - regulations to apply where EPA . that have both basic and enhanced 1 hi nonattainment areas that are classified disapproves any regulation that has p r o m may opt t o implemerit . as moderate or above upon enactment been submitted. Finally, EPA expects enhanced programs in all affected and are not otherwise designated a s States may want to use the model rules - urbanized areas. Stites which e-e'or y -- rural transport areas under the new A c t as a guideline for developing acceptable 'required to implement basicpmgmrr I J

(I) DefiniLion of corrections. A State'rules. ' . (under section 182(a)(2)(B) or the P

' deficiency- is any rule, or in some cases . (c) I/M Co;rections. Section requirements for m?d_erate ozcne a portion of a.rule.-that is less stringent 182(a)(2)@) requires States that coctah conattainment areas and certah CO ji than RACT as that requiremen! was marginal ozone n0nat taner . t areas nonattainment ireas, as discussed 1; t: interpreted in pre-1990 Act EPA - existing IIM programs. c: that were in ti!s notice] nust submit SIP re\isl 12s guidance (issued under sections 108 and required to k d e 6 e I/M programs in for I/hl prpgrams addressingany '

. 172(b) of the-old law). The EPA provided theii SIP'S by thepre-1990 Act to submit revised policy. The guida~ce w G

. a list of deficiencies for ea& area as to EP.4 inmediately upon (1% m 4 A ) address h e elements of the SI? re\<: on. . art of the ozone SIP call letters to each enactiient of any revisions necessary to As mandated by section =(=). d 1

State play-June 1 9 a and November provide for a program no !ess stringent Adnrinishtor will promdgate . 1969. notification published 53 FX 3 4 5 0 . kzn that required prior to enactment c: regulations requieng manufac:cre.-s o

September 7,1988 =d 35 FR 3CS73. july cozmit!ed to in the SIF in eiiec: at -ins:a!l diagnostic systems on a!! r.el.. 30,1990). The EPA also provided States enacaent whichever i.i more stringent light-d~ty vehic!es and ligit%u!y :!J :!sir. W~L'I eis5-i: guidance dccumenis and 2 e section also requi-es EPA to re\+ew. The purpose of these systems is ro zsked !.!!en: to review rdes rwiri.e, update. and rel~ublish ir~ C:e identify and back emissics-reiz:e< ir.dependent!y to de t e r ine consis:ency FeCeral Re$ster wit& 1 yeer oi system deterioration or malfc;;501 . w i h this pidance. c-ac!zaent. the guidacce fo: 1/51 According :o sec5on 202(n)(5). w!k n 2

(Z) Conseq;.ences of fciiuie !o make ~::gans required bjr the Act la:&:: yea- of P A ' S pronu!gahg re?::at ;ns cccections. Sectiocs 179 (a) and (51 and ir!a consideration the Ahdiist-utor's requkhg States to do so, all S!a:es i i8 1?0(m) provides for the inposition of . k-.-esYgatiocs ar.d audits of such 1/M ~rcgrarns mgst amecd tileii SiP o sacc5ons and section 110(:] prokides fcr p:cpcls. L? short. orcne nonattai-men! proride for ir.s~ec!ion oi these czbo .k pmmulgation of a FIF if EPA finds that a axeas must ziahtain existkg l/bl diagnostics systems. The EPA wtll i 3re

State failed to make a required p:rprns and must make cor=rc8ors to revised I/hl g?lidmcz whir21 adL-esg es scbmittal. Under section 179(a). EPA Licse ~rogrems to meet eisticg I/hi onbwrd diagnostic inspecsons. must impose a t least 0r.e of the two po!icy; when update6 poYcy is (dj Ferhdic inwntory. SecEos mandatory sancrions listed in secticn pshiished. these aie3.3 must submit la2(a](3)(A) requires the States tc 170(5) 18 months after EPA rsakes suc! re\<sicns to address any new gidance. submit pedc&c inventories s t a ~ k g he a finding. d e s s EPA Finds that h e >!ore specifically. sectio:: 182(a)(2)(9) third year after submission of k e b: se State has made a conplete submit:sl in reqqires Slates to meet tCe basic I/M year inventory required by secticn - Be interim to correct the d e s . The pefc-mance standard that has been i! 182(a)(l) (i.e, November 15.1995) a] d second of the two serctions must be effect skce 1977. Tnis standard is based everj 3 years hereafter mtil the ar inpcsed if t!!e deiiciezcy has not beer, on a "nodel" program design cnsisting redesignatcd to attainment H o w r ~ !, I corrected 6 months after the f~rst cf a centralized pxgram that anngally complete actual inventoEes wLA be ~ s e d sanction is imposed. Section,llO(m] 6lso tests tailpipe emissions on all lightduty to demonstiate whether ornot the indudcs previsions on sancsons. The vehicles. using emission standarch for milestone reqcired in sec5on I G g ) 32s

173[c][l), the new or modified M- may ob& offsets horn &e same 30- or other sources in the same ,-. .. . . Donattainment and In son= cases from =othei nona t t ahen t m a if t).,e 0th- =a has c q d or higher '. - . nona t t awen t dassificatioe a d the . '. emissiom from o&&) e a contribute to a'dolation d.the ambient standard in the wheie the or modified ,.,- .

. 80- is locawtins In additiod;prior.to . permit iss~ance~anderjection the . noriatt&jqent:pl+ provisfom must , : . ' de&a&bte ,Rash&ble,,furtpu p-ss m) byrequiring juffident edssion .

1 ~duc t i o ru to k&GioG w a s e s

@duding NSR provisions, that apply to 'marginal areas. It shouldbe noted that

. the NSR requirements applicable in o=one' bansport region3 [e-g- oEset3 at a 1:1.15 ratio and major VOC s o m e threshold of 50 tons per year] s u ~ e n e d e the rnaqinal requirements for RTA's. Li. however. a State's request that u ozoce nona t t aben t area be treated t s an

. RTA is denied, the area will be da33Eed a c c o w to its des ip value and all section 182 requiremeats for t?at

- dassifica tion will apply. Accordiq to section I*). k e dminisbator's decision to h a : an

ozone nona t t aken t area as z R?;! i s

bations measured witkh cr of the area. This showkg 3 upon whether ozone

ations within or downnGzd of

ation of "ovewhe!r:-2 found in "Criteria fcr e Role of Transpot-: of

13306 Federal Register / Vol. 57. No. 74 / Thursday. April 16. 1992 1 Proposed Rules

required SI?. These resdts must reasonably implicate an upwind atea as the source of the neaswed ozone concentrations. Alsa the area must demonstrate that its emissions are not causing a nonattainment problem in its domwind area.

Any RTA that fails to heet the marginal area attainiment deadlines is subject to burcpup to the appropriate h i i h u nonattainuent s t a b (discussed at section IILkZ(i) of this document). However. if the area still qualifies a s an RTA although the area wiU be subject to the attainment date for the higher classi!ca!ion it remains subject only to the submittal and implementation require men!^ for marginal areas. If it is found that the area no lonser q~al i f ie i as an RTA, the area will be treated a s the higher classified area for SIP requiremects as well.

State plans for RTA's located within 'the intenta!e ozone W s p o r t regions , established under section 'l&l must meet

. applicable provisions r e q u i d by rectioil'l&l (b) and (c). In particular. pmvisions of section l&l[b)(1)@] r e q u w g implementation of R4CT with respect to all sources of VOC covered .

by a CTG, and the section lN(b)(Z) requirements concerning implementation of vehicle refuelin2 contro!s identified by.the Administrator. must be implemenled in a State plan coveficg an RTA In additioa an RTA SiP must be revised to indude whatever additional control measures are '

recommended under sec'cion 183(c) and whatever best available air quality monitoring and modeling techiques are iden:ified tinder section l&i(d). These pl2n revisions mcs! be ap~roved by h e AGslinistcator. (k) Refomuloted gcsoii~e "opt-in. "

The Governor of any State with a n a d n a l , =oderate. serious. or severe - . czone nonattainment area may apply to t!!e Administrator to opt-i3 to the reiomulated gasoline progam established ur.der section 31(k). Refer to section UA.J.(o) for more discussion o! the program requirerr.er.ts. .

(i] Bump-up provisions. Although the prinarq. focus of this General Preamble is on the citeria EPA ~ $ 3 use in de!ennining the adequacy of the many SIP submittals that are required under - h e 1990 C M i: is useful to descibe the amended Act provisions regarding failutes to attain or to make emission reduction milestonen The EPA belicves

.that cer!ain areas (in particular. marginal ozone areas) face some important issues related to the

*

consequences of failures to attain by the applicable deadlinen I h e followkg disccssion describes the bask requirements a ~ d procedures for

deter-g and responding to failures to attain to m J e adequate progress and the specific implications for marginal ozone areas.

(1) Failure b attaih Section 181@)(2) of the Act requires a m q b a l moderate. cr serious ozone . nonattainment area to be rec!assSed to the hi&= of the next higher dasScat ion, or the dassification . assodated with the area'a d e s i e value . a t the time EPA determines that the area failed to meet the s t a c d a d by the applicabie aaainment date. The EPA uses the term "bumgup" to d e d b e this reclassification process. An area cannot be bumped up to the extreme classiication under this provision.

The EPA must determine within 8 monhs after the attainment date whether an area has attained In making this determination, EPA will w e the most recently available. quality-assured air qudity data covering the byear period up to and including the attainment date. For ozone, the average number of exceedances per year shall be used to determine whether the area has attained For marginal ozone . nonattainment areas, this meana that the air quality data for the period 1991 to 1% will be used to determire whelber the area has attained by November '15. 1993. (Areas that show attairslent prior

-to this period may be redesignated prior to November 1993 in accordance wilh section 107[d)(3).)

As provided in section lWjal(5) for ozone areas. up to hvo I-year extensions of the attainment date can be granted to the State if the State has met aH epplicable requirements. a3d if no more than one exceedaxe of the level of the N.%\QS h2s occurred a! any =onitor ir. the year h which the area was to have attaiced. Because D.4 wiil be ie-iiewing avaiiable data to determine the a t t a i r e c t status. the State shodd subzii its applica!ion for t!!s ex!e;lsion as soon as t!e necessay sir qaa.!ir] data a x available.

Lf zA de!ernines that an area t a s not a::a:,?ed. ETA will pubtish a notice, a3d h e area will be reclassified by operation of law. The A W s t r a t o r may adjust the submittal dates for the ~qu i r enen t s of the "new" classification (to "assure consistency among the required submissions" (section la( i ) . but Ihe at:aininent date will be the date odginally specified for that classification in Table 1 oCsec5on 1W[a]. For example, a marginal area has an attainment date of November 15. 1993. If the area does not attain by hen. the new attainment date will be November 15.1998 (the '.'originial" attainment date for moderate areas at enac-nt) or. if its air quality wculd

make it a higher d a s s i h a t i o ~ the later date associa:ed with t!!at classiiicatio~

Sta:es should be aware that if a3 2-ea voluptarily bumps up late in i b attainment period; the discretion granted by section lEU@)(l) for the Adminisbitor to adjust schedules for implementing SIP requiremenb associated with the next higher classi6cation may be seriously limited. In 0th- words, areas that wait until the end of their attainment period before requesting to bump up after already missing implementation requiremenls. falling behind on their 15 percent RF? (if applicable). and experiencing continuing deterioration in air quality. are likekt to have insuffiaent time for implemelting

' the more stringent requiremenb of tke next higher dassificatio'n The EPA therefore. encourages any area that believes that it will be unable to attain by its applicable deadline. to vo l~ ta r i ly bumpup early enough to maximize the available time for implementkg tho requirements of the next higher nonattainment level. Early b m p c p will help areas avoid sanceons andlor FIP implementation that could result born failure to meet S F submittal or Lmplementa tion requirements

Although section 182(a) specif idy excludes margkal =as from Ihe contingency requbremenb of sec'cicn 17P(c)(9). marginal areas should carefully consider the benefits oi contingent or advanced adoption ol certain measures that could be implemented quiddjr &odd tbe &-a nr : attain by the IS93 da:e. J.f a na.@al area fails to attain by Noveaber 15. 1993, it will become subject to Lye requirements for moderate areas. in particular the I I X I . RACT. and 15 percent reductions requkenents. Z e s t requirenects wculd have to be me! an( t5e standard achieved by Nover,'cet 1: 1S96. an extremely tig!!t time:m,-.e icr these accompUshrl..ents if no pric: plam-izg 2nd adoption acticns have occurred. If the M C T r ~ l e s camct be deveioped and implemented and C!e i percent requiremext carnot be ZE! by Novenber 15,1996. the area cou!d mis the attainiient date for modera!e s x a and w~ould face the even m0.R s5ngel t requirements for serious areas.

(2: Spec!al issues for mc.~:'nol crec . The retention of the rnodezte a x a attainment date for a margbal area 1: 3:

has been bumped up raises solce important issues for margicsl a z a s 1) 3' will have difficulty at:aizizg Sy k2 November lj.1993 deadlke. n e s e issues become even more sigrifiant '

the marginal area applies lor and receives one or two of the I-year

?. .*- -

7.

. .. . Federal Register / .VoL 57, No:74 / :?hkday. April 1 6 1992 / Proposed Rules .. . - 13507

- . . -. . . . . .. - ' :.. : . -. . . timeframe. In some Cat&, ~odel ing will .

. . . ' show G t I-s than a 15.pcrcent redukfioh would be required for --

at-t of.thist&dard. However, the pe-t m& of piolpcss .

req&medt is intended to be h e base - pro- &at moderate and above . '

-mmt - tmba%p&garn i s . . necessary to ensure a c a p r o m s . 'toward rttain-t in fa& of ' " ' . 'uncertainties laherent SIP planning. . 'h;u& ='&&on bentori& & d e b . - ,

and *jection of expedd'COnM-.z..' ' 'mearatj;&thh bajd . - would pmvide a-nce of ,': : .

rnainte.- of the standard ate: . : :- -att&ent':t;> .-:. -':I t.:2;... 1 .. :::.- ..,- . I

.In &;re'm&ehg sb&s that reductiolu lpeater than 15 percent are -necessary to a'ttagthe'siandard, the' area wiU be requited k$chieyk those" additional , imi~ion &uctiont;''' '. ' '

' ~ t i o n i 8 2 ( b ) ( l ] ~ ] a i d ID] debe- . . haselin'= emusiotu.m total amount

:. of a=m VOC o iNo ,*~~ i i s s ions bm all ,.an-~pogenic'sounes ~ during .

- the calendar yeai of Mactment" ' - - .

'excluding the emissionj that would be . e l i h t e d by FMVCP regulations :: ' - ' - promulgated by lanu-uy 1. lw, and . RVP regulations promulgated by November 15.1990, or required to be promulgated under section nl(h]. which

n in emks,-ons. section 182(b1(lj. .requires RVP no w a t e r than 9.0 pounds all ozone nonanainmen* areas . per square inch Ipsi) during the hi&

.

modemte and above to submit ozone season. T3e base year edssion inve~tory for cialendax year 1W cust be adjusted to remove the .

c .aforementioned emissions. as we9 as biogenic enirsio.m end any eraissions

15 from sources outside the designa:ed nonattainmeat boundary (e.8.. wit% the 25-mile zone around the n o 8 n a t t k e n t boundaries if induded in the emissions inventory]. T3e adjusted base yea: inven:ory [i-e.. baseline emissior.s) Susi contain only actual emissions occ~+so, in the base year, 19%. within tbe designated nonattairrment area boundades. 7 l e bzseline enks ic r - should not include pre-enac'ment banked emission credits since they were not actual emissions during the ca!endar year of enactnent . (1) Adjusted base year inventor/

cclcclation The a d j ~ t e d base yea: - invectory should be calculated ir. two

steps. The fmt step consists of '

' developing a 1990 inventory of non- mobile anthropogenic VOC emissiczs. 'rhe second step consists of de t e r z ing the mobile portion of the inventory af:er the FMVCP and RVP reduction progarn (promulgated by the data of enac3ent .

- . or required by section nl(h)) are .. .. . factored out . . . '. - . -. . .. .

- m e deteminationof the, bas&= w-ill require the use of MOBILEil.1 to mde! .

:: .

. .

13508 Federal Regster / Vol. 57. So. 74 1 T h ~ s d 2 ~ . A?ril 16. 1992 / Proposed Rules - - . h e effects of fleet turnover and RVP based on whether the area is at or 4. State regulations requbed :.-.?er A - c:?anges. For 1936. the baseline will be be!ow the 1986 target level of exissioas. section 182(aJ(Z)(B) subsi:tcd is c=ze determined by applying the 1950 VEclT to and cot whether the area has acIieved a deficiencies in existing I/hi FrcFa:s a hypothetical emission factor for 1996. certain actual reduction re!ative to .previously required Il5I progrzzs.

The hypothetical emission factor for having maintained the c x e n t conlrol However. all reallactuol :e2=c.'ons the 1990 baseline in 1996 is the 1996 strategy. Tae following fcrizdas regardless of origin. will ccc~-;'c~:e to emission factor determiaed by tunning descibe bow to calculate the target attainment even if they a-e 20: XiOBUE4.1 using 1996 as the evaluation level of emissions- creditable toward the 15 ~er tez : year and the same input parameters Fo.~u!zs: requiremerit. While emission i e t~c t i o .s csed to describe the FSiVC? and SIP 6En=lW Baseline hiss ior i rerslting hrn required coriecfc:~ to requirements in 1990. with the addition =I990 Nonmotor %.tClcte t,sissions voc RACT rules or I/M proccs ar

+(low wff X hypotheEca~116 of RVP at 9 psi Ior appropriate level for s,OBILU.l faslorl

not creditable toward the req.5-td 1s area). Multiplying this emission factor Tw=l s9s of CDJssiou percent reduction. any fuhue rz6zcYc :s by the 1990 VMT results 1990 motor C , , r ~ o n r = ~ ~ ~ ds and I,aI Pr3gram resulting from measures not rssccia:~ ? vehicle baseline emissions which cor;ectiom with the required correctioos w d d 1 E exclude the emissions redaqtions that &=SL x (a=) - conecSons creditable. For example. r~ducYor.s a e would be eliminated in 1!B6 as a result (2) Emission factor a~cscnents. creditable where tke Sta:e r~\+ses t! of nee t turnover under the pre- ,

Emission factors. a s well as inventory emission limit or changes the enactment M C P asd the section calculation methodologies. zre applicability threshold heyocc 2:e le e! n l ( ) R W requirements. The 1- conthually being improved. Lf ezission required previously for the c c z in Ei A motor vehicle baseline emissions for or ch2nge guidacce. and these r n a ~ c a 5 c ; l s :e cit 1996 are added lo the 1990 inventow of . sig2ifimntly, mA may advise ihe states in futher enissions reductiocs. 0th - non-motor vehicle anthro~ogenic 'OC to c-aect the base year enission examples of creditable redccYczs emission9 to c a m a t e b e 1990 total inventory to reflect such ch2r.ges. li include applying regulations !o ::le r. rv baseline emissions for 1996. This sigificant changes occur in e ~ s s i o n portions of a pre-enactment number is the adjusted base year factors or methodologies bekveen conattainment area not pret-'.czr!y inventory needed to cal~ulate the . esac'u?lent and November lj, 1 9 3 (due subject to the re~la t ions . 112 zecp' 2: a m o u t of emissions reductions needed date for lj percent demOnstraiion], EPA TChf's listed in section lG8jf) ket a: i

by lgg6* as as Ihe of msy rtqcire States to m&e cor;ectioils not already in the SIP. Re&~c';c-s emissions in 1996. to t ,e base year emission inventory, as 2chieved through rules adopied

(2) Calculation of taqgc! level of zs to the basekTe an J t+e pursuant to any new CTG 2:e cedi ' i j le emisskns. krter the adjusted base year 1 ~ ~ 5 target level of emissiacs- only to the extent &at t.e r2kc:ior , - inventory is deve!oped. t!!e I S 6 ta%et hclvever, changes occ.x he 15 were not required by a S F o; ?3 level of emissions would be calculated perc?nt demoEstration is subcit:ed but developed under the pre-ar.e:2ed . f , *! i by m u l t i ~ l w g the adius:ed base Year befo:e Xovember 15,1996, t+ea the For example, a non-CTG d e 3 a S 3. , f,

inventory by 0.85 and !!!en ~ ~ b t - a c t i n g Ste!es would not have to m L ~ 2 required to be included h s:k a Si ' froin this p:odcct the eaission cor;ec:ions for purposes of ;econciiicg prior to enactment. requi-er' ~ 1 8 1 :educ'Lions expected to result by IS90 a::ai~-ent oi the 13 perter,! xiles!oae. percent reduction LT VOC ezissioa . fiom corrections to RACT rules acd IiXI seeocs areas should also ref2- to c:e The SIP is then revised to k d c i c a ;cst- programs. ksc-ssion on the rate o i ~ : o s e s s enactment CTG which rec==ed a 9

Once the 1996 target level of c'e=..onst-ation (section lil..1..;[i)] for percent reduction in VOC ez:'srio,- . i:, ~ i s s i o n s is caIcu!a:ad. States must p:=r?ce on hat ocz-r the ex!er.t :hat a specitc sox:.

c?~e!op whatever control strategies a:e be:cie xovernber 1 ~ ~ 1 s ~ . 2-6 the achieves the SO perze?.! : c 2 . ~ < ~ . 5:; 9 needed to meet that target. Some air izsi:t on the post 6-ycar 3 ercer'.! rate pe rcc~ t would be crelitablc. L: e l , i:icr;. p!anr.ing agencies msy be used to oi -,:2g:ess demonst:a:icz. i i a S:ate was reqxired :o zit;: e I -2 .C

tL.in!!n3 in terns of tc.? exissions :;I Cteditcble err;ks;;-r; r-~c:~cas. I? mle for a particular source ::f cr : ?

reluc!icn required :e!aYve 10 a ccrxc! ie~:~!~ping the 1 j perter.! re,=2c:icn prs-axezded Act bo: falied :: 3 r .. . . coetiol st:a!e= projec:icr! (pa:ticu!ar!y C(;;';3] skategy requi;ea :, 52 adoption of a rule fc: t h t sex:? : z2.s for stationary sowces]. rafier than a c- -

scbait:ed as a SIP re.;isioc. S!ates .?lust 2 considered par: of t h ?-'?I-: ::: -=S. . . target level of emissions. Frojec:ians of in ;nind that the loso C>-A-+ I herefore. ar.y red:ctfo.?s =C.I:?YE '" .. IS96 emissions W O U ! ~ be used 10 *es-,iicitk disal!owed ce2;iz ;ed2c:ions ~ a c h a rule would Kot 'se cr?ii:hbi . ca!calat? the required emissions frcx ccunting toward fui;',l!ir.g Be 15 Pre-eriactnent SarAed t ~ : s i c r . reduction expressed on such a basis by 2e:cezt reduction in e~iss iozs reductions credits are zot ccC:zi 2 simply taking t!e diifeience between the :equi:enent. toward the 15 percen: i ~ ~ ~ i j

1995 projection inventory (without .+:I elission reductions f;oz State or requirement. However. for 2 ~ 7 0 s s of controls applied) and the 1996 target Fec'eral programs are creditable toward eqcity. EPA enccuages Stz:-.s :3 I!zi:v leve! of ernissiocs. However. States that t te 15 percent progess ie',uiiemer.t sources to use such ba&cd trJss 2r.s choose this approsch s5ould be aware exceat for the following: credits for offsets and nettiza. ?tr! :.:- &at the 1996 targe: leve! is dependent 1. The FMVCP tailpipe or evapcrati.;e Sta!es use such ban!!zd creE:s i3 only on the 1990 emissions inventory, stazdards promulgated prior 13 1GoO. . offse!~ and netting to t!!c ex!?;! whereas the calculation of an emission 2. Federal re,daticns on RVP ot!envise creditable mde: k c 3; t 9 reduction required relative to the current prsaulgated by November IS. loS9. or NSR r?gulations. these pre-e.-.zc!i er.: -- control strategy projection depends on required under section n~('n). emissions credits must be 2cs:zd the accuracy of the lSS6 projection. 3. State regulations required under growth. Consequently. h i s "-ov. which in turn depends on L.e estimate of sec:icn 182(a](2J(A) subrniited to correct must be accounted for. as is?.- c sr /'

future growth in activities,The deEciencies in existing VOC WCT with all other anticipated gc:vtb in assessment of whether an area has met regulations or previously required RACT order to ensure that it doe3 roc ir eriere t5e RFP requirement in 19Y6 will be r~!es. with the 15 percent rate o i p g e s

. . ... . . .. - ~d&l ' ~ e g k t 6 r / YoL, 57. &.,*74 ;/ :nuisday; April 16; i&2 1 ,-&poi& Rhies '.

. . within 8 ~ o n h - ~ f t w ap'Pfiable -. ath-int d=,i ,deth&. be 'area ii '-- a t t h e d he stand& by'that date; :.,' a beqf he most ;. .

recent 3 of air quality &ta pdor 10 that d a k By,dehying ,the 7': :. .: -. ' imp,emen~tiop of.*eBg&--~r;n'& .i& and thus delaying .the r/esulting-' :- .-: .. : . .

reductions, moderate areas . - - may' be'redassified a@~ru'&as ' , , , ,. becake e+ssioi tepuctiolu.d pot be achieved en,jii&.to alfed he; . air &d to 'att& *;:om& . - - . -

fa'&, ~ i & d ~ ~ ~ ; i j -:r__ required to m;et"*e, greatet' &,&i 15 -:.'; percedt bfpropsi &i-ment to . ' . attain the NMQS ' : - '

mitted with the control strategy by . ?5, 1993, peibe requkmenl

baseline emissions. The baseline . emissions are d e h e d to be all . .reductions needed to attain' the N;Cfi.QS

emissions "in the area." (less required due by November 15,1993. : : . '

adjustments] which EPA interprets to A moderate nonattainment &a can mean emissions emanating h m the achieve less h a n the 15 percent designated nonattainment area. All required reduc!ions under certah rather emissions reductiods must therefore restrictive cirtumstances. The State cone h j t b , t h e desipated . must demonstrate that the area has an nonattzhment area Of course. NSR program equivalent to the err;issio= reduction strate@e:.es applied to ' 'equirements in extreme areas (sec20n sources just outside the nonattaiment 182(e))* except &at "major sou-" Gust areanayhaveabeceficialeffecton&e ~ c l u d e a n Y s o u r c e t h a t e ~ t s * o r ~ a s ~ e

potential to emit 5 tonslyear. Additionally, all major sources (doxi to 5 tons per year] in the area mus: be

ded to required to have RAm-level cockls. ,US: be - n e plan must abo include all measiLss

that can be fevibly hplemented b the area, in light of technological achievability. The term "technological achievability" refers to measures that can be successhdly implemented in

t ac!ual practice. not measures ba t merely appear feasible in a r e s e ~ e

. setting, for example. The EPA will . consider on an area-by-area basis *at

these measures may be. with no presumption beyond that specificaily

. given in the last sentence of section 182(b](l)(A](i]. whi.ch statesto qualify for a less than 15 percent re3uction. the State must at least ilernond.mte that the

. SIP for the a r=i indudisSall m ' e a ; ~ ~ ~ . .

. achieved in prictic'e' by-so+s .the . . , same sake category irinonattakent

13510 Federal Re&ter / Vol. 57. No. 74 / Thursday. April 16. 1992 / Proposed Rules

areas of the next higher classificatiou. The tenn "a&ieved in practice" is . intended to include those measures that have been successfully iolplixnented in one or more nonattainment area of the next higher category. The waiver for the 1s percent piogress requirement does not, under section 182[e),. apply to nonattainment areas classified as extreme.

- All multidtate ozone nonattainment areas should refer to section (mA9) for further instructions on coordhating SIP revisions and on developing the . . attainment demonstration. . . . .

By meeting the specific 15 percent reduction requirement discussed above. the State will also satisfy the general RT requirements of section 172(c)[Zj for the time period discussed. -

(b) Attainment demonstmtion. ~e= t ion 182(b](l](A] requires a SIP for a . moderate 0:or.e nosattainment area to provide for specific annual reductions i? VOC and NO, emissions "as necessary to attain the national primary.amt)ient-- air quality standard for ozone." This requirement can be met through .

applying EPA-approved modeling techiniques described in the m n t version of EPA's "Guideline on Air . . Quality Models [Revised]." The Urban Airshed Model. a photcchemical grid model. is recommended for modeling applications involving enti-e urban . areas. In addition, for modera!e area's contained solely in one Sta:?, the . empirical model, city-specific Empirical Kinetic Modeling Approach (ERMA]. may be an acceptable modeling techm-que. The State should consult with ETA prior to selection of a modeling technique. If mlA is used. the attaimect demonstration is due by November 1S93.

In other cases. a Sta:e aigh: choose to utilize a photochemical grid model instead cf EKMA. Grid ~ o d e i i n ~ wiil generzlly proride a better .tccl for decision aakers and the necessary additional time nay. therehre, be jcstified. In such cases. Staies should consult with 9 A on a cse-by-czse basis on an acceptable approach to meeting the section 182(b)(l)(A) ' ,

requiremen: throughan interim SIP submittal by November 1993 and a completed attainment demonstration by FJovember 1994. The interim submittal wodd include. at a minimum. evidence that grid modeling is well under way and a commitment, with schedule. to comple!e the mode!ing and submit it as a SLP revision by November 1994. The completed attainment demonstration would include any additional controls needed for attainment. Separate attainment demonstration reqbirements

apply to multi-State moderate areas. as described in section mA9.

When projecting motor vehicle emissions for the attainment demonstration, States should use the same procedutes as given in EPA t%lT forecasting and tracking guidance for moderate CO nonattainment areas-The 'use of this guidance is limited to projecting motor vehicle emissions. and the idomation on the reporting requirements for moderate CO areas is .

not applicable. - . . The EPA realizes that some cases

"'certain demonstrations will be - '

complicated by the impact of ozone and . precursor transport and by the RFP . requirements and attainment deadlines that apply to areas of different classifications. For example. a moderate area located within the transport region is still subject to the &year attainment deadline and to the secfion la2@](2](A] requkenent t o provide amual emissions reductions in its plan to attain by the deadline. However. this area is (at least. . presumptively) being affected by transport from another area(s] and is. zs well. possibly affecting other areas

. itself. If the "other" area that are . affecting air quality levels in this moderate area are classified as serious or severe, those areas will be reducing t!!eir emissions over a longer Limefiane in order to attain the standaid. Th'at is, these "other" areas could s5ll be ha-ring significant effects on the moderate a:ea at the time when the moderate area must demonsbate attainment. This sane phecomenon can also arise in areas that may be impacted by transport but zre not yet in a transport region es:abiisled ucder section 176A or section 184.

The EPA believes that these situadons are scnewhat ana!ogous to ~!e situatio~s addressed in sec!ior. l a l ( h ) for iUi2.1 trSnsport areas al;d ir: sec:icn 182Gj for mclti-State ozone nona:t&inment areas. Sec'cion lE:(?) reccgnizes that the ozone pro'cien in a rdra! kzcsport area is almost esiire!y a t ~ b u t a b l e to emissions in 2r. up:vir.d area. Therefore. the only reqcirezens for the r s a l area are t!!e minin;al reqriiements specified for maana l aiezs. t!!e assumption being that t!e controls in the upwind area :vill solve

. the problem in the rural transport azea as we!l. In a similar way, sec!ion 182(j)(2) for multiState nonattaiment areas 2nd section 179B for international areas recognize that an area in ose State may not be able to demonstrate attainrnemt if other States or area(s) in another country do not meet similar requirements under section 182 In such cases, even though the area would not be able to demonstrate attainment the

sanction provisions o i section 1;9 shall not apply.

In the above cases. here is 3 . recognition in the ChAA that at scme . point an area being affected by - . emissions h m another ama(s] may rot i be able to achieve sufficient emissions reductions on its own to demorutrate attainment. In these cases the arca is relieved from certain requiremeats in the W which would require - additional controls. There is no explicit recognition in the CAAA of this occurring Ln other situations. The D.4 believes. however. that other similar situations (as discussed above) are likely to arise. and that a reasonable approach is needed to ensure equi!able treatment of the areas and expeditious attainment of the standard.

In particular. there are two situations in which an area might be subject to additional emissions reductions . requirements related to the demonstration of attainment. In the firs situation. an area might be receiving such high levels of tmnsport that even i it reduced i b emissions dranaticziy (e.8, totally eliminated ih own emissions). the incoming ozone ar.d precursors would be high enough to continue to cause violations of the standard beyond the applicable -%. attainment dzte. In the second si:cla!io P the area might be able to adieve

t% + ) ) additional reductions (beyond those already required under section I=). Even where those additional red~c!ior i could be achieved to denonskate attainment. the question arises whetht - it is equitable to require those reductions or to allow more time ior tl ?

reductions in the "upwind" area to ta: place. As described above. howe*:e:. I .e statute provides no express re!iei fci these situa:ions. ?he area does to-ie t e option of requesticg to be c!2ssized tc the next higher classi5cation. Thss. where fie dernonst-aticn c i a::abzze: : is coapiicatid by eEiXpOit beween two areas of different classiiizatio;,s. 5 2 State is still responsible for tie..-ekpir ; 2nd submitting denonstratioris ;vkict show t!!at the standard wi!l be a:!ain ~ by the applicable date. In 0&2i word . the State must provide for stdicicat emissions reductions on a shedale i t will ensure attainment in its noderat area, for example. within 6 years aft: enactment. The EPA believes t?at th( wording in section 182(b)(l)(A)(i) requires the State to develop a plan providing such emissions reductions -

(c) Contingency measures. The general requirements for nonat:aiii . , plans under section 172(c)(9) specify '/

that each plan must contain additior 11

measures that will take efiect wit?ol t

.- :

. ~ e d e r d . R c & t e * / VOL 57:No. 74 ./.Thu~sday. ~pri l 16. 1992 / Proposed ~ u l e ; .. . -: .13511 . . .

- . G e r action by the State or EPA if an needid. 1herefore;EPA will interpret at a later date in the SIPIFor L-ple: a -:. .. area either fails to make RFP or to attain the Act to require Statej'with moderate State couId indude-as a contingency :- standard by the applicable date. : . and above ozone nonattainment areas measure. the r e&emenb !hat measures e piovisionsdo m t apply to ; . . to include sufficient contingency :' - .' which would take place later yea- if

ozone nonattainment -as . ' . mea?ures in the November 1993 . . . - the area met its RFP +ge t oiattainnent on 182(a]]. This important issue for 5ubXdttal.so tha t Upon implementation . dea&i would take effect e&er if the .

m d areas is discussed hrrther - -. 'of such measutes. additional emissions area not hcet i b RFP w e t or : - . .

under the section on bumpups L-: . . - ' ~ ~ c t i o ~ of UP to 3 Pertent of the - a t w e n t dei&e. Within 1 )ru of (md.ssibbtions upon f d u r e to attain -.:...emissions in the adjusted base year :., -2.. the ~ g a + ~ f i m n w ~ q e*

- . . the atandard]. A d d @ o n a l e n :;inv-toV ' (or P-ntage - -; the ~ l r l y ~ ~ p l e & ~ F t a t i < j Of control . :. -. .. ppvWons are t iduded in s f i o n .:' :4.4 :@t.mll cure the identifi.ed failure] - ... :- .: ee*sms, the sbte;ii( <Ubmi! : . . . ,- .- . ,. , ,; .would be achievedin the ye& following : s*ioiat,j the SIP con&* ~ b & ~ ~ - - *

182(c](9] for serious ozone i: i:S.-::-- - .-' . . - . . : .. ' n o n a ~ ~ e n t - & a 5 -and in 9 : ;- tth. year in whisqthe failuri has been ;:,' i d d i d i d nddd to : , ... - - ~Q(.)(J) fof-co n & a t h & t &is);; .': id.eht@ed..Shk Ldditiond: redudon : .:: b g . a the SIP ~~&6]a&m;;t .. 1- : 7 - : '. . ;': e&, d e s i p ~ ~ ~ u ~ s S ~ b ~ v e w ~pm~i::~:.~?. .' w0dd ehS!h . h t P-SI toward : : m;aP,ires t,jiire-.pY ev;entud s h o & j . . -, These latter pmvisions tire similai to the' : a t m e n t oc* at ak l te similar to.:-:. .that *; lhernatof the 1- . .

... - -

' section i72(c~(91'requiremem &hpt. ,. . -'. that.specified under the : .;:' ::: - . .. . early use of,.thecontingen j me'asik. .-. :- . that the foclu section 182 (ozone: i t . . . .requiriments for moderite areas (i.e, 3 . . . is bn meeting e~ssiofis. .q t , . -.I: . ' percent per year), and tkat the State will .

If EPA no&&Xn'&ei'&at'a shortfall

. .. . . reductions milesionej (sbction I-));.; .{ achieve these ~ d ~ ~ t i 0 X . l ~ while i .-' . . . -: eiists. .end that the shortfall is'lesi than r ; . 3 perwit, .the State may~choose~whic! ' . .

and k f o - in section 187 (CO ireas) , :. ~ ~ $ p ~ ~ d ~ ~ ? $ l ~ ; $ ~ g ; ; ~ - , . b e G ~ i s . h iiIntilPl . . ,- 2t: 5... . is on.consistency between preyiously

projected and actud ?ubseque~tly.. nicessary to correct.the in . . - pe ' ceh t l . b?me ty plan fd bplement

5 - projected VMT-levt$s, as well as'failure emissions reductions.?r to adopt newly to meet the shortfall. ', .!. 1: ...: ,;:..'. . .. F =. .to.attain by the required required m e a ~ ~ s ~ r t y u l t i n g from the . :.. . . l?pe EPA beliivesithai a3-'pe&iC-: .. :<. F.;. -

contingepcy for sips, as ..; :: bumpup t0.a higher cjassiFic$tion % i :c - - - contingency will be .adequate for.mos-t ' .

¶*.

.T.. . required under the supersede . : . Under this a p p ~ a & t h e ~ t a t e wouId ..: areas;however. ,there is'thipossibility :

. - the iontingen j requitem&& coitained . .h8ve 1 year t a modify its S m d take -;...that in Some cases3 percent nay be ' I. the 1982 ozone and CO SIP guidance, -'.other corrective action needed to e q q *. inadequate espeGaPy ifcorr+ive: ;:.- .

k. - - v . K- +.. . . . :a FR n82.(Jan& n, 1981);-.; ,.:: ,. that milestones;a.re achieved and that - .: action is not 4 t i e t e d . b a . h e l y i;.. : : ;- ' . .. .ozd<e;&e&5~ssifiedas Ldehtd'br.' tow* a!tainment continues;. -. -,;- m-er prior to a milestone.date;?-.:. .: ; +.$.-- . . above must in their sub&ttals. :;; 'However.'if a State can show that 'its .. - . To addrtiis'&is possible ;hortfall (i.e:. - ; 4:.

are due b j November 15,1993 as SIP c=n befeV@d to correct My . mok than a %percent shortfd), EP.4 . . . .

it by .D.4 under section 1?2(b). : posslble fa~lure m less t h e 1 year, then will require moderate,aid above -as . . . &6ntingency measires to be - - . proportionally less than 3 percent nay . to submit both contingency measures

implemented if RFp is not a&eved or if' be co~idered . In the case of moderate ' providing for a bpercent reduction.and . .:. . ;

the standard is not attained by the areas. contingency measures would be an enforceable commitment to subnit ;.- applicable date. This contingency needed when the.area fails to attain the an annual tradcing program descibing -. submittal date Is appropriate since standard by the attainment date (or, for the degree to which it had ac?ievd its - States must demonstrate attainment of serious and above areas. if the area fails projected annual emissions reduction ti the 15 percent milestone at this time. to meet the rate-of-progress (see 'Trading P!an Im~lementatioa" - The 1W CAAA do not specify how . .- re9ui~menta'for any Jdestone 0ker section DlA3(d)). In that amual re7oC.

many contingency measures are needed &an one falling on an attair~nent Year. the State must describe what-actiocs i t or the magnitude of emissio~s e-g-. the 15 Fercent required by the exd will take to make up for any sSortfall reduc?ions that must be pro\ided by of 1CC6). If the area fails to aitair.. i t before the next milestone. e.g.. adopt 1 these measurer. Assuming Wat all of the wozld be UP to the serious and impleclent additional measures State measures may fail to produce their ~ ! a ~ = i s ~ a t i o i ~ ' and become subject to (aside from the contingency ~ e a s u m s ) expected reductions. one interpretation thflequirenents that apply to tL..at so as to prevent failure to meet the of he ~ 2 . 9 ~ is that a state would haye c!assL5cation. Therefore, t!!e milestone and therefore not Liggeri~g to adopt sufficient contingency conti~genc- measures would be the 3-percent contingency mezsures.

-

.

rneasures in this lu'ovember 15.1993 plan im~!eaented the State developed Aternatively. the States mus: pro\%e to make up for this entire shortfall. . and adopted the new measures for additional contingency ceasures

. - other words, the State would have to , associated with the serious sufficient to cover the additional . adopt "double" the measures needed to classscation. shoFtfall expected due to the Llilestke

satisfy the applicable emissions - . . One that c 0 n a e n c y measures failure. Within 1 year from &e s u b ~ t t a l . reduction requirements. The EP.4 codd meet this requirement is by of such report the State must s c b d t . believes that this would be an r e q e 4 implementation of whatever measures will be 3- - :-. weasonable requirement given the measures sc!eduled for implemeatation Tleeded to cure shortfall. ~ h ~ ~ f ~ ~ ; - -.: difficulty many States will already have " ' . . more .than the "3 percenr' of . -.. . . . in identifying and adopting suificient a Z e s e e=isrion ~ d u c ~ i o n , would be il addition contingency measures could be .E ~ e a s u r e s to meet RFP and other lo L!ow *a1 wem a 1 m . d ~ ldeduled lo o c ~ in available as a reserve even though s.4 -. - ... . ..i requirements. accoda=ce wilh h e plan lor Ihe area.

.%e adjua~ed b a ~ year inventory is kat ' would only require sufficient ' .. . 7 1, The EPA believes'ihat the contingency hventory ~ p e c i h d by the provisiorA under SPc:ion contingency measures to be : -

easures should, at a minimum. ensure W@)(~I;~I. . . implemented to compensate for t!e &at an appropriate level of emissions . . 'nemoderaieamawould a ~ u a l l ~ b ~ ~ e d .. degree of failure. In olher woids, a .

progress to be made .UP to e i h h e next higher darsificatiou (i.e- reriow or reverr amas u & o l be bumped up lo shortfall of 2 percent would reqliire . '

if attainment of RFP is not adzieved a n d r, l a i l m a attain^ gju$aned he air implementation of sulfident mearums to additional pla*@g by the, State is ' --. .. : quality levels (the de,i(pl value) ,,I &e Lime. * . . : . make up for the 2 percent, not the estire

I . 13512 Federd Register 1 Vol. 57, KO. 74 1 Thursday. P.pril 16. 1992 1 Proposed Rules

! ' 1

3 pe&ent [or possibly mo:e. dae to the , reducrions are needed to atiaii) by q u i r e d lo attain the standard. The EP> '

i . a3ove piocedure]. Novesrber 15,1998. . . is required to adopt 11 n G ' s befoie 1 Sections 1~z[c](9]. 182(c][9]. and The primary means of demonstrating . November 15. IS3 [section i83].

lk[a][3) specify that h e contingency . mte of progress will be throng!! the Although EPA has not yet issued Cese . ne.anrres .shall "take effect kithout periodic inventories (i-e, complete. .. : 11 CTG'r EPA has issued a CTG

M e r action by the State or the . . actual hventories) submitted every 3 docllment h which it Iists the 11 m s - ASninis3ator." The EPA interprets this . yean. At this time. EPA intends to rely that the Agency plans to issue in .

requirement to be that no further on existiq reporting requirements such accordacce with section 183. a d rulemaking activities by the State or . as emissions statements. compliance - establishes the time tables for su'czittai

. . EPA would be needed to i ap l eamt the ce&-cations. periodic inventories. and of RACT rules applicabie to the sources contingency measures. The EPA the u m d AIRS update. rather than covered by those CTC'a This docmen1

. recagnites that certain actions, su& a s . hposing additional reporting . - .. is locited in appendix E notification of souxis, modffication of requirements on the States. Under the second set of RACT

. permits. etc. would probably be needed. (e) Majorsslotionary~ource definition. requirements [subparagraph (B]). &e : .. before a measyre could be hpleinented For ozone nonattainment areas . . State must adopt provisions appllGhg

effectively. States must sbow that their classified as moderate arees. the term RACT requirements to all VOC.rource9 contingency measures can be . "major stationary source." for purposes . covered by any CTG issued befox the

- . implemented with minimal furthei . .of the NSR program and [as discussed .. . . date of enactment of the new law. even . action on their, part and with no '. below] the M C T requirements for . if the.CTG was not preliously

additional rulemaking actions such 8s . major non-(XG sources. means any appliable in the area under the .

. public hearings or legislative review. In stationary source that emits or has the . previous law. Under the requirements general. EPA will expect all actions potential to emit 100 tons per year or ' . established for implementing the Act needed to affect full implenentation of . more. - . . - prior to the 1Wl CAAA. some - . the measures to occur within 80 days . (i) RACT "ccfch-upso*-41) nonattainment areas were not r e q h d

. .after EPA notifies the State of its failure. Applicability. The 1990 W A require to apply RACT to all sources for which [d) 324ckingplan lin.plementotion. . moderate aress to adopt M C T .

'

there were CK;'s. These include axas Section 182(b)(l][A] of the Ad requires . .standards for three types of sources or - that originally projected attainment by

. States with ozone nona t t ahen t areas . source categories. This requkement is in . 1982 and that were not subject to a latc : . classified as moderate or higher to addition to the MCT '.'fix-up" - . . ' EPA call letter for SIP revisions. m.ese

. submit plans that contain certain - - requirement of section 182(a](2j(A], . areas had to apply RACT for the s o w : 'spediic.annual reductions in,ernissicns discussed in section IIIA2(b] above. . . categories covered by the Group I and 1

. . of volatile organic compounds and The RACT catch-up req.Jirement is -. CTG's that had been issued before the oxides of nitrogen as necessary to attain meant to ensure that all moderate and - . 1982 attainnent date: however:&ey the national primary ambient air quality above nona:tainment areas. regardless - were not reqdred to apply EMm to t s t a r a d d for.oione by the attainment . . of time of designation. have in place all categories covered by the Gmup.m

. da:eappkcable under this Act." RACT for source categories covered by n G ' s , whic! were issued after t!!. 1% 2 Even though' the CMA coctain the CTG's and for major sources that are attainment date. Thus, for exampic. t!:

nore specifications for evaluating ' - n ~ t scbject to a n G . Stated differeztiy. new law requires any nonanainment whe5er b e equired emissions . it requires moderate and above . areas not previously subject to all the redcctioru have been a&eved than the ' r.cr.at:aiment aress that previously CTG3 :o "n:ch up" and apply R + n o Actpzviously did, EPA believes that - ' w . ~ ex:xpt from certain (c; aUj R4CT all s o m e s covered by all .he CTG

ti; - 4 ... . additiocal actions =..needed to assess req*li'er;lents, to."catch u-," to L ~ O S ~ . docments. Nona:!ainment areas cot ;I: . "interim' State p r o p s s iq achieving t!!e nor.a!tairaent areas that were subject previousijr required to app!y RACi to . , . ;:.. . . n2es:o~es. whi& ockw (for serious sr.d to t?ose.reqchnents du;ir\.g that es:lier .sources co*.%red by Group IE CTG's M i! . 5 -. ;z 1 . ., . above &=as] 6 years after enachen: per'.c$. have to do so i? fie S D re\<sicns. 1.7

: . . ==d eWrery 3 years therizfter [as i?ll States shccld scbmit r.e;a?ve addi5oc. areas previously consi5tr c a i . discussed in section U 4 . ( i ) ) . dec!araticns for those scurce c~!ego+es conattainment area;, which had 19

.*. Fu;*e.mo:e. secticns 171[1) and for :vkick they are not a d c ~ t h g CTG apply ?ACT ody to certair, mzjcr . .!

, . - 17?(c](?) provide that a3 S P s must kared re~:!atior.s @pc,a~se k e y have ;lo sources in certain LCrS catc~orie: unc ::

1:. rsqui-e annual incrementzl emissions s r , ~ x e s sbore b e CTG recox?.=;'cndsd pkcr polity. will Eeve to revise i+ir - . . i ndudions as needez to e:!ain by &e tk~shc ld j :egard!~ss of w5eC:er suc:~ SIP'S to apply W C T to a!l cour;zs. : I - zppEcable date. ~ < ~ z : i v e le=!arations were =adz h: a;l including nonrr.ajor sources ths! 2:.

.:I To mee! the section la(b!!,l)(A] earEer 5:a!e irnplerner,!a:ion plan. This covered by er;:; CTG. Tcls reqaL=.s-e: !

..{ req.Avments, the State plans for, i3 cecessai- since there may ncw be doe2 cct appiy, however. :c STXa th : moderate and above ozor.e areas n ~ s t s o c e s i? the sonattaim.er: area that sa:isiy secticn 1223) as d isc~sse i in -3; ~ m j e c t the a,mual p m p s s (i.e.. the . pi,e\fou~!y did not exist. or L? areas sectior. Iil.A2.(g).

;# k.~lexentation of measures with the wnex tke boundaries of the In t23e k k d case (9l;bpar;graph [C] , .' : . I ' appmpriaie schedules m.d the expected ncr.at:aL.ent ares have expanded. Sta:es are to ado^! p!mS L!at a ~ $ y .I.' . @ erriissiozs reductions] that will result t!!e:e x z y be souices in the n ~ w pcrt;on . !blG tc aY other cajor s:atir,a~y $1 from their co~trol~strategies. (See . of Lye nona!tainment area w%h shodd source3 of VOC's in t!e xez,. aye:: if :;

disccssicn under section IIIA..3.(a). not be ove:!ooked. 3

CTG has been issce2 Ey lZ.4 wit? .! ;1

~ q u i r ~ r n e n : for 15 percent reduction in Unler the fvst ca!egcry or respect to that source. T'ce t z d e r . fa 2 e5zsions.) These projections must be requl-ements in section 132(k1:(2) cn t!!e Stale to 2ete-dne kdi\<;.d:al

" t ? . coctaiaed in the State submittal due by (szbgaraprrph [A]). nona!!aimen! -. RACT rules for each of the sorucez c . : . Sovenber 15.1993, and nust . areas are required to adopt R4CT for all "catch-all" RACT r d e &ct won!d co, e: -71 de~onstrate that the area will achieve a VCC souices covered by any CTG major non-CTG sources. In t??e p2s!.

15 percent net reduction in VOC d o m e n t issued by the A.dministrator only certain nonattain-nent are23 :ue e emissions jplus whatever additional afier enactment and before the area is required to adopt such "ncn-CTG"

?

.

I . . . : .

- . . ' . . : Federal ~ e g t t e ' r VoL 57. No. .74 1 Thursday. April 16. 1992.1 Proposed Rules ' 13513 - h [C]. all make the 90 percent reduction prior to . . ' (4) Guidance. Under sektion 183. EPA

proposal of the MACT standard and . ' . is to issue several forms of guid=ce that " by actually achfeves the 9q percent - . - should help the States meet the . - r '.. - . reduction prior !o January 1.1994:For ' ',- reqliiremenb of section 182(b)[2).The .. .

later standards. the applicant must , . - ';." EPA k ieq&d to issue CfC'r for VOC - - ': - demonstrate that the aO percd t . i "-:' . ' - emtssioqj b6m 11-categories'of . :

s :". reduction has been aihieved prior to ' - ' :' stationaq soimis foi which C I C s have . proposal of the applicable'MACI' - - -;- ..- not previously been heed. hhddition.

in a post- . - .. standard. Thetefore. within the next few f. EPA m&t k$te CT+ to ' G h l VOC -The EPA has .. m o n u ' t h e udurced'that +'&ected by - - emissions froni debspa& cdabgs and. ' ent CK; ..:'I.;. r.;;i the h n t phasi'of MACT s tandids may' -'.: solvents and !o t%dtml'6inis~ioas from .. -

Ei.;.-'.--.: begin to g$;~a~l*~r , - yT'- - -.- i.= p&,& . & , * ~ j , ' ~ ~ j,jl&,t?j&ii-, ': . ' . ._. .... ,the.l? ::..-) ::; cornmitmeiits for.th6 ii$q+c$ ! :-:.shipbuilding operations aiid ship &pair.. : d be .::...?;;*-?.:: p m ~ ~ ~ ~ . ~ ~ ~ ~ ~ ~ f ~ ~ . ~ t + -Y.P:?.-- :: -: ;'Le.*.

-:..zf-.;.-. --: All of .- - these . doqenti';;Lii'diie-%thin 3 :.% In.s;~~s&~&z&$~~8~-&~t el&&,: years of ma*ent.TheFP~ must also - . -I:- io'~a;tiap~f{~'inthii~~~l~ie;a"&.;d~:j: z'i.: konduca study of.V,OC emi3sions'hm. ' '.'I ilsi, b&-j,bjgCi to a future . :: consumer or..ko,mme*al pridu~!s iind '

RACT Rq-ment under settion 182 :, . submit a,&pbft to C~r i&t?s~ not ldter . . . : .- s 6 k e j mdy'bk h&i!kt id &icifiate. ' ;. th" 3 ye^ after enadl6ent he'd on

in the-e& Gdu+ons'iG- becabse.; thestudy a$ rk'port is ~q*d to . .

of eCunertainty future, as, . , , regulate categories of consuni'er s d . : . ,:. yet nnspiaed ~ ( J T &quitements. T~ ..: copqerdal.pmd~cts, *m the , h e , : .- . .

about certain RACT , . h e jet forth ~aection'l83(e](3)(~). '.

.. :In additiou.the CAA Kq;ir'e EP4\ to' .

requi remenb, .~her6~ $o- is not : -.-, .-.. : . . . .. .. . ._ . _ _ _ _ subject to a R A ~ fequiAment (state is :.: rec'omniend i ~ t e m a t i ~ e " c 0 n b ~ . - '.: . '

-- not yet obligated to adopt under the -,... techniques [ACTS] for a~ '&te~o&'of m u ] at th$ time it submits an . stationary sourcei of .vOC'bd SOX . reductioM plan but subsequently . . , that emit or have the potential to einit 25

.

becomes subject to a requirement: .. tom per year Or Ih0~ .0 f S d l pollutant . =A believe; that it,is reasonable to - : ::: These documents aie als01due \-,thin 3 .

consider the early hductidns program in ,:.yeam of enachen t m e these - --;:' . .

; ...its of what R A ~ is for that . . . . documenis will not cont* pyuriptive dtherword$;when the state . : ma. they will contain mudl ol the

ides for sources covered by a pre-. . '.' -. does submit a revision with new . - -, . background inforination on .wnkcl .

*enactment CTG and for major sources - 5 ' . ~ C T bat wbuld be . . .technologies; costs, etc.. whi15 GCI be . not subject t0.a pre-enactment CTG or ' applicable to a-source that elected to . used by the States in supporthg EUCT

. . covered by the CTG document in . -' p a ~ c i p a t e in the early reductions , determinations for major non-CTG '

. . Appendix E in the form of a SIP revision p r o p m , consider the . sources. . . . . request. within 2 years of e3actment reducljons made t b u & the p m p a as Finally, within 1 of enac3ea t

.. - : (i.e.. by November IS, 1992). This . a factor in determining if the s o w e has EPA is to issue guidance on evdzating submittal should also identify sources' . bplemented a R A ~ level of conhi . the relative cost efiectiveness 6i vuious that are major but which are subject to a ne =A mticipates that the fact that a control options for controlla e5 s io r . s post-enactment CTG docunent. The SLP has made a 90 percent redoction from existing stationary sources *at revisions must provide for the in overall voc emissions horn spedfied contribute to nonattainment In a l s t i o - implementation of the RACT measures emissions points ,,,ill be a major . .

under section 108(h). EPA is to es:zblis;7 . .

'

. as expeditiously as practicable, but no consideration in establishing RA(JT for a central data base to make Eor,atior; later than May 31.1995. . .&ose eassions points.6 ms issue will - available concerning emissio~s czn'~.ol

(3) Inferface with early reductions. .be &cussed in more detail in he technology, inc~udi?g idomiiec- A. Zcm - . The EPA is required to promulgate rulenakung on the early reduc5o;l.s SIP'S requiring perzzi ts.

ma-ximum achievable control technology progam. . . (g) Gosolice vcpor rE,-oye.F;. (S tzg e I! (MAGI) standards under section 112 for ~ g , general de, EPA will cct re\isit Vapor Recovery Systems). SecScn

.

- - - - - .

' '

. -

. sozlrces which emit hazardous air the RACT issue once the defermest of . 182(b](3) mandates that States subnit a pollutants (at a minimum, the 189 conpfiglce with a MA^ standard has : revised S P by November 15.192 5 a t

. pollutants listed In section 112(b)(l)). eo~ed- most cases, be rwCT requires owners or operators of grsoBce These standerds will be promulgated by C 0 3 ~ l S should bemore shingent than dispensing systems toinstall ard Kovember 15,2000 (section 112(el). The -the reductions achieved h u g h the operate gasoline vehicle r e h e k g yapoi

.. FPA must promulgate the first set of early reductions progTam. recovery ("Staae II") systems in ozone . . M4CT standards by November 15.1992. once ~ W C T is in place, voc emissions nonattainment areas designated as - Seciion 112 also provides a mechanism Should not in=ease. moderate and above. hivate f c ehg - . wherebysources may elect to defer facilities (such as government ar?a

. compliance with an appljcable standard . . . . . ' TSeae principles ue based on the aaau-, company fleet fueling facilities) as we!l

--tion by achieving an early 90 percent (95 .. h,, ,, hrUrdolLI as retai1en:are subject to ,be Stag? II - , Qercent for particulate matter] reductibn p o ~ ~ u ~ a by rrplrdng them ,,,.jth n3nh-~ou requirements., Stage II is requkd a:

.n emissions of hazardous air pollutants v m r h u e EPA r ~ l i s rr r IQ.WI~ gasoline dispensing facilities that - . - st specified units (section llz(i)(S)). For . s , s p e n s e more than l 0 .W gallons cf . -L sources subject to the first round of . . ., , fa,o,, eslrbli~hineIUCrfor ii,t , . ..- . I ; . I '. gasoline per month (or 50.- gallom per . : . W C T standards, a source can obtain . -doe, rcQen hy + ductlorn o f ~ ~ C . . month for the "indepen'dent sqall ;?;; $;: extension if it to . .. .. . .-wiou -. '. . -1-:, .. .... --. . . .. . - - .. . . - .

. . - - ..-business marketers" defined =der - .--- -:

13514 ~tdanl ~egistm. I VOL- 57. No. 74 I -Thursday; ~ p r i l 16. 1982 1 ~opored R U ~ ~ S .

. section 3 ~ ) ' . Stat- must require Stage II . Admistismtor pursiant to section - - : id agaii conditionally appmve SIP . . to be efiective under a a p e d i d phase- ' 182(b)(3)(A). : . ' ," :'.I . . .- - .: re~isiocs based upon commitments - - .

- . tn schedule pf 8 m p q h after the State .. . Additional ~ tagc~~brovis ions . : - . . - . . snbmiaed promptly after designstion,to - adopts the-requtnd regulation far :-:7. '- contained in section #12[a)(6) concorn .. adopt I/M programs witbin I year of

rtatiois constmeed after November IS..: 3 o n b o d (on-thavehidel vehicle :; -. . . : condiiio;ral plan approval. or consistent - . 199Q 1 year aRer the adoption date for . -. refueling coab1 ~ t a a d a r d r which are to wlttr EPA guidance, whichever fs sooner

stations dispensing a t least 10~000, - : .:. : . be developed a f k c q d . p t i o n with the . in any areas newly subject to IN : .- '

gallons p& month, based on the 2-year .- Secretary of ?'-portation regarding - .. requiremints by virtue of the boundary . . period beidre the adoptjon Qte; qnd.2 ;;4 .the safety of o n b w v s t e m s Under , ..,; change. :. . :. . - - , . . . . .... .. __ . : . . . . years after !hi adoption date for a4 .:;+-- this rection.%tates, are not req&d to ;:, n e =A -a to sMue. fie policy

,- -. o thk facilities k q u t e d to 4rslpll--,:. . : : ,.apply the Stage ? H e $ of ..: . . .. - : for I/M -a in the near future Wbco . -

. . . . a n t & ~ . - ' ~ l s c ii a p p r o p ~ t e , shaU . ,:section . 182@1(3E.ga*e vapor .._... ,. . - : ._. . --. . :. published, the paucy for I/M program . . . : . istx-guidaick' ~nkeniing the .,:,? ,$,: :; ;;=.., recovery, to fadllties hcib?d in :. -.r .:;.- MU state the date such -s . -.. . . :'efie&eness of Stage' n . a y s t ~ + . .i.*::<:,f =-mode.tde d k e m a d @=A . :. . ,: .., to be implement;& S t a t e Eave'

. - Stage I1 systeirij'.have been b@led, --: promulgates onboard refueling cdiih;ol, . - bo& basic and enhanced I/M areas miy : -: . ind operated hi Qlilgmia farover 10 -; I., standards. The?e pro yis-ions yill be '. - .. opt to p+ in . - years ,md @ aolqe'o@er portion of !he. :. ;:' addres3d.m a sep+ate Fcdeal Regist&'.,. afficted rnbanized areais stata . .. .. . .. ..i ...'. -. .- -. - - . . .. . : - country,for.$ shofler p e r i d - f i a i w i t h .. notice.'. - : '-.-.-. - - ." " ' - ' ., ' . ' . - 2

‘ .-0: :. -: which are only required to implemert . . . u3stiug Stage II programs have been'lT:; (h) Boric IM. SCktionlB(b)(~)-~ -; : .:;.basis pmm ,,,bmll sIP .. irnplemen,ting their programs usiug the I :. requires moderate ozbne nonattainment ' revisions for .

same appnjach'used In W o d a . The :. ' areas to implement basic I/M pmgmmr ': any iwised policy. ne guidancg will CaIifornia & s o ~ d Board (CARB) . . a t least as striPgent as. :@ose r q i k e d in 1 cover the elvents of &e SIP re~s ioh

- . ; has be& t6stiq i j d ~m byst,& : :' section !@(a)(2l(B) h e d i a t e l y upon - , b.he event thai a m o d e a ~ arone , ,

. . for at least 95 p ~ ? n t v a p o ~ r e - c o v e -.: enactment regardlesd of wbethei an IIM ,,onatt-ent area anah * , .. : . wing esQblished test proiedaqp and . . , pro- was ~ ~ v i ~ ~ l ~ . ~ ~ . " . ' - . . - shdard by the aPplicable . . :. metho&. Once a Sys!em.hBs be*.. -.. ..:-: Therefore'. all moderate areas mast . deadline or ext-ended deadline. and b

'certBed'a b t a t i on ,~ in s t a l l ?he name . , either continue d s t i n g Ill4 programs ': . .redarssed to serious or wane, an -. : . . :. Stage II systkmde$gn,$&&! qee'ding . : and make correctiom to p g p s ' .

. , to t u t fbr 95 pe-t t g n m l - '-. . - ::, . required by e r l s t b policy or to : . hbanced 'IM p m v be .. .'

..implemented, if the population criteria , . . .-. eflectiveii&&. T6ens& that they ark '' ' ' p r o w committed to in the SIP in --. .. . (an urbaizized area M defined by the - . : .properly . imtaUed ind'mainphed.: :'; :': effect at enaciment.whichever is more ':- j Bureau the Censw h.198Q with a syiteui.9 are teited with l o w ~ s t v a p o r . : ahingeut or develop basic I/M : :

: - . population pater than . . . - p r o p s consl tmt with EPA guidance. : mA uiU. undu lwil,. , ' leakage 'and blockage tests at ' , . . . - h t d a t i o n and then'subjected to . . . - . ' .These areas must a130 submit revisions

require a SIP revision to provide for an periodic d o n e m e n t inspections. ' ' ' addressing revised basic l/&f program enhmrrd . . The EPA &ten& to require all States ' policy for new and existing program3 . . '. the reclassification. Aa mandated by " ,

to adopt a bimihr Stage P program , - once revised policy is published. Tbe I/ section Z02(ml, the Adminisbator will approach.Tbat is. States would be ' . M prugmms are required in the .

. r g h d to prescribe the use of Stage II urbanized area portions of the . pmmulgate regulations requiring systems that achieve at least 95 p e y n t nonattainment area. . . manufacturen to install diapostic contml of VOCs and that are properly . The statute requires these plans systems on a11 new lightduty vehicles installed aqd opefated ' . . 'imediately" after enactment r;en . and light duty trucks. The purpose of

an alternative to test% each though in a few cases such areas may be . these 'ystems is identify and hck .

station for 85 percent control subject to his requirement for he first emission-related systems delexiorason - effediveness, States may require time, ~h~ EPA would n o m a ~ y pmvide or malfunction. According to section

icstalled Stage II systems to becertified a t least 1 year for an area newly subject 202(m1(31. years - '

to achieve at least 95 percent either by to such requirements to adopt ar.d prorndgating qula t ions requiring Ck98 or by using CARB !e~t implement an I/M program. me , n ~ Slates to do SO. all Slates ~ + t h 1/5f procedures and methods or equivalent wiil cse its authoiity under h e new programs must anend their S P to

provide for inspection of these onba r i : .' test pncedures and methods developed eection IlO(k)(lr) to conditionally

. by the State and submitted as a SIP approve basic I/hf programs in e s e diagnostics systems- The will issl e $ revision In addition. Slates must require of moderete ozone areas that were revised I/M gidance which addresse . Y

the installed systems to be tested for newly subject to this requiresnegt at the 0nbo";d diagnostic inspections- # . pmper installation and must perform all time of enactment, based upan h e - (i) IVSR--(I) NSR o m t mtio. For t.! necessary enforcement; ' State's commitment to develop a . purpose ofsatisfying the emissions

1 - < Supporting and background material program wihin 1 ye& from co~ditiocal : offset reduction requirements of&. n 1: - . for developing. implementing, and . plan approval. or by the'date r'173(a](l)(A), the emissions offset ratic is

enforcing this type of pro- is .

established EPA'e guidance, wschever the ratio of total actual emissions pmvided in technical ('Technical Is sooner. . reductions to the total allowable Guidance-Stage I1 Vapor Recover] The EPA wilL under section 1~ :4 . emissions haease s of ?u& pallutazl

" Systems for Control of Vehjde Refueling require SIP revisions to pro\ide for a f x m the new source. For ozone : Emissions at Gasoline Dispensing . ' basic 1lh.f program within 1 year iq - . . . nonattaiiierrt areas classified as

- Faalities--Volume 1." November 1991) . areas newly subject to basic 1/51 I moderate, the emissions oiiset ra5o i at . and enforcement r'Enfonement requirements in the future as a result of least 1.15 to 1. . . . Guidance for State I1 Vehide Refueling redesignation or reclassification to - . .- (i) Bumpup requimnenls. As - Contml Programs," December 19911 . moderate ozone nonattainment. Where .discussed in section l l I M ( i ) margin 1.

- . guidance that the Agency has issued. -L!e boundaries of a nonattainment erea - - moderzte. and serious areas will be : Tbe Agency now notifies the public that are changed any time after enactment - : bumped up if they fail to attain. Wht 1 a . .

. h i s ia guidance . . issued by the . .: '- pursuant to section lW(d)(.I](A]. EP.4 - moderate &a is bumped up to se-ic 13. . -.

- . . . -. . . - , * ' - . . ' .-. m s : ..... ..I; r+aed ..- -. ,R~te_r:/~~,olr-~7~.~i~g=.,~4i/~~tpsday~~~pfl . :&:. 39.i~g2i/:Prd~d&d.~de'i:i "i': :.i. : _ . - . . - . . .

-.. . . ..-. . . . . . , .. -. . . .. : ..; . . , ;:i .; .-*. - _._.. , -i -. --. . .- --- - ..- . - - ' . - -. . . . - .

. . 8 ~ d d f o r 9zoqe.:.(seition.,.-. :. ..+; t..; .:- . - d e ~ ~ 1 0 ~ i n g *1900 ,h~en t0e 01 * , I - . . -: ..' &d~ctib& th.tw6dd h i v ~ o & u m d '-. .- ' ' .. .18@)(1)(A))1 To 'dele*e:the ':':..:<.: :-..; mobile apthrdpbgenic. V0.C emissions. . .. .. under thepr&enactment FMVGP and - - ..

'. . ~ n ~ e s < i $ : e ~ ~ s s i o . b . r6dlict ionsa ,:..:..'The i-nd step.coOrUists of.determinig . section n l @ ) RVP requirements . -' .' - - ' a t ~ i n ~ e n t ~ ~ e ~ o n s h . t i o n isgenerally .. - the rnobife poition of the inventory after between 19% and 1999 a; a ~ s d t of" .

1 . ' Eg@eaby N .6~1bg l993 ,~ i f i:,'...:.: :.; :.the IXWCP ayd RVP nduction, :: ,:-i fleet turnover (assuming that dl I&( . . '*hotbihemical @model is.iio[+<i&:, -.... p i d d (promulgated by the date of -.; . defidenue; have been fixedj. This - .

~eiio~'i:(+id &h$k) +- a$howe~r.:.: ...- . e x k b k n t pr.requirird by gection nl(h)) ' .cbrrectidn fador is simply the dinereace - - must com$le!e p h p ! @ i d d grid ... . ,.; . . .a '.." : 'i- & faciored but. Sinkelhe effect of the ;. between the' 1990 total bas&e - - -

. . . .modeling analyses'* , h i e longer _. -,. .. . .p I 'ky$eht q r ~ l i t FhfvCP as a '. 'emissiom for 1998 b d the.1990 total . - . .- attaiee$aq~&eY.'~nk&ideatio,n; .?+ .mpul+fi~ereducpon from lw levels -.:: b a i e h e ernissidns for/999. ne 1%. .

, . . -. . . . . _ . ..bf t h e p d . & ~ o @ - ~ & ~ S ' i ~ t o . ( ~ ~ : i ~ .. .. . - : ..icrease?.Ca+ year.because of fleet .-. taqet.leie1 of drnissionr i i thekfoE 1. .. . ,:sathe<da~a~!_o,sgppprt aqd)o perform a'.?; +OV&* thete fl a c w ~ be a -I:. j . calculated by qubtriciing thii fleet .- : :' -.. @d'mode,ling @fsis;'_~ongreis, :.:::.: .. repa+!& 19190 baselee applikble to : . '.. tumov&'~oriection factoi; and 9 pefient .

:" pmedtjd'ah additiogal ye& Foi seri03d. -?I :Zach evaluation yeis specified (e.8. ',.'.of the 19% total b a s e h e i sss iom for .' . . ... . .*- - ' :.. -. - ...... 5 . &@er!iey to,iljb~t+&~-'ttt:~:;~- ... . . , .. . . ....-.. et~.].!~; :Gj;:~.~,lr.:.i't':.~I-'~>:.i :-.: + ...I .1999,frofrom tajget :. . . le;ik!pr- :. r:.: . r - : : . : - . .. demGtr$bod of ~ t ~ m e n & ~ l ~ l i & f o!.;;;.;me determination of the baselines : .; ' emissiqfij. :I:+,,: .:+ ;:L~?:;:-::::.E,'; c.-' . . . . - .. . . . - . - the f a ~ ~ o ~ ~ i l l o ~ ~ ~ , , ~ s ~ > ~ . f , . ~ ~ ~ ~ ~ ; : . : ~ . m q ~ he use of A4OBILIl.i to -i:: .'.: . 1, ;ubsCgu~nt *miles ye;iri,.&2 : : ; . .: .. . - ad~tio@l'j.e&~:~~A'believes,that. the j jl: model.the effects.'of fleet.t+over an& -.:,. fleet tmbver corlrec~og~act~ii; fie. -.. ..

: .-- .:. .sictio&162(c] & $ i m & t foiie,rious 1.7. :Rv -&qes,.For a dven evaluation . ' I . di f fe~nce between the 1990 b a s e ~ ~ , e . ; . - . -: and higherp&& i ;o"~~~i&ieqt +.:'.I.;': year.:the b .ase l~e 4 be d e t e e d - b y ... : emissioig for the p,+vious~mile;toi.e .. . .

.. '.' . to sbbmit phot6&e$cal grid modeling ': :epplying the 1390 to a hypothetical '.' year,and the'19ga baselin~emissioru for . . . - &I.-. ...: L. - - . . . . - . - . byqNoyember M i ~ i ~ i r s e d e s the . ., , .-. - ..*missions factor for the evaluation Year. . the -en! milestone j , e ~ ; ~ h e . .

. . . . . . : attainment demor;iitx$ion otheflse ?, -:: -The. hypothetical emiqsions factor for. le,l is * ldahd by.iubhtins thii.. - . . : .applicable under aection ~tZ(b):y :-.:-.:;1:' :.the 1990 baseline @ 1999 (or 2002 2005, . - fleet hPver &,kection factoi md . . '

. .: - When projecting motor vehicle^^.:^::. ,,etc) is the 1- (or 2002 2005. e t t ) ::_....-; petce"t of fie 1990 to(;zl bakehe ::.. . : . . . . . -- .:.' , emissions for &e at+ipmeSt and e t e of :: a emissions factor d e t e w e d bynrnning 1: emissions for the current mileitone year . ' .

. . '- .progress'demonshation'after i998, :.-;;:'.:' :MOBILE4.1 using 1998 (or 2002 2035. : :.I -, hm the tage, level of emissiou in the . . . . -Statedsb&dd w i t h e iame'priii:edes '1 etc] as the evaluation year and the ..': . . previous milestone'year. -.-: +-, .', ' '. - - . *.: a s giveirh th'e E p A ~ ~ f o f e c ; i s t i n g g g g g ; ~ same input parameters used to dercribe . . ..Once twet level of emissio- for , - - . - and txickhg guidance for rerious CO . . _--: $e lMVCP and SIP.tequirement! in : -.:-'- a milestone ye.ar is elculateb Stales. .

. n o n a ~ a ~ e n t - ~ ~ s ; . F o r t ~ :-.i-. - .. . 1990. with the addition of RVP at 9 p s i . . ,, Pevelop whatever conhlibtegies . - .: - projectioiLj up-through 1 ~ . Staies'maj.:. . (orless where approporiate). -;: - . : . ..:

are needed to meet that taigei Sone ail - - follow the p r t k e d ~ s for.V&fX' - ' , : : *' Mul t ip lm this emissions factor by the - :.planning agencies may bC used to . - , -. . . forecasting and tracking for moderate- - 1990 VMT results in 1990 motor vehicle . : Ulir*ing in bf the emiisioar . .

{y-; ) . CO nonattainment areas. The w e of this -.-baseline emislions which exclude the ireductions iequbed relative to a ; ) !

guidan* is limited to pmjecting motor .: emissions reductions that would be control projecti9n (putic, arly , , ,.,. . 'vehicle emissions; the information in the.'; -,eliminated in 1999 (or 2002 2005. e!c) as -for stationary sources). rather than a : . .

reporting requirements for moderateor :-a r e s d of fleet hlmover under Le pre-' , level of e m i s s i o n s h j e c o of . , . .serious CO areas is.not applicable. :'.- . enactment FMVCP and the section .milestone year emissions would be use, -.

. [O Rate ofprogress demonstmtion. 81(h) RVP requirements-The 19% to calculate the required emissions , .

. . . Section'l~(c)(2)(B) requLes that serious motor vehicle baseline emission3 for , reductions expressed on such a basis, . .

omne nonattainment areas must submit 1999 [or 2002 2005, etc.) are added to the . by simply tfig the difierence behvee! by November 15,1994 (4 years after . 1990 inventory.of non-motor vehic!e : . enacaezt). a rate of progress , anthropogenic VOC emissions to - the year projection inre':O~

7% demonstration. The plai must provide. calculate the 1990 total baseline (without controls applied) and t$e . l i

ik for reductionr in ozone season. weekday emirsioru for 1999 (or ZW?. 2CUj. etc.]. yek eristiOn: :ti . . VOC emissiois of ~t least 3 percent per. Tnis number is the adjusted base year States that this

1; year net of growth avenged over each inventory heeded to calculate b e target appmach lhould be aware that ke

-. consecutive $year period beainning in lere! of emissions in 1999 (or ZCO?. 2005, yeai larget level deper.de' . . 1996 until the attainment date. This is i n . etc.). only on the 19SO emissions inve!~rcr,.

i ..: addition to the 15 percent reduction over + h y emissions reductibns ex;ected to the an F; ~ + e first &year period required in areas . . result by the evaluation year (e.g.. 1S99, emissiOnsreductiOn reqliired tc I! c!assified as moderate and above. The 2007. etc.) from corrections to RA-CT . the current control strategy projec5on

1; baseline for the3 percent per year rate rules or IJM programs should be : depends on the accuracy of the .

2i of progress reductions and creditability 1 . subtracted aftei the baseline h ~ s been milestone Year projection. which in tu: ,

depends on the estimate of future . . .*I requirements are the same as for the 15 .used to calculate (according to t?e .9 i percent progress requirement under : procedure discussed below) the target . . Wwth in-activities. The assessnent 01 . , section l(v[b)[l). See section 111-k3.(a) ; level of emissions. . - . - - - whether an area has met the ie2ni1ab 2

': i above for a discussion of EPA's focus on : -The target level of emissions for a . further progress requirement in the . '

, . ozone season iveekday VOC emissions. . - milestone year is the total amourit cf . milestone y&ar will be based on wheth !r -4- - - Similar to the calculations for the 15 . : emissions allowed in the area in order to the area is at or below'thimi1es:cne

percent requirement [see aection . . . - . meet the rate of progress requirement . year target level of emissions and not . .-.[a) of this document), ,the State : for t!e year in question. The 1% target whether the area has achieved a cer:a 2

. must first calculate the 1990 adjusted : .. level of emissions can be ca]cu]2ted - actual emissionsreduction relative to . -

base year hventory. . . - .. . ' .. - . from 1990 total baseline emissions for . , -having maintained the current cor.trol . . strategy.' . . :- . . (1) Adjusted base yeaiinv2nf&y . .. .. .. :IS~ and the 19% target level of . . a . . - . . , .

. . .... - . . :. . . . . . . i

. colculotion.?he adjusted base year .:. ..- 'emi?sions. However. an additional .' ' . . - . .

, -inventory Should & calculated in WO A. .-correction factor is needed to account . .; . ~ & ~ ~ ~ ~ ~ b ~ , ~ l ~ ~ h ~ & i ~ ~ i ~ ~ ~ ca!chred - . .: ' steps. The . first . step.consisb 01 !: 'I . , for the.mobile source emissions : . . . . .

. . . relative to year x .' - : ' - - - . . . . .

. . . . . . . . . . - . . . . . . . . . , - . . - - . . . . . . . . . Fedeial Register 1 .Val. 57; NO.: 74 .Thursday, April l a :199i /,.&postid .Rules . -13517

. .

. . . . . x=miIestone year . . 'emissions reductions if the resulting . .VOC emissio'ns reductions duriqg &e x=1999.2002 #)05.2008 '.. ' . ' " reduction ixioione concentratioiu is a t . first 6 years,.&en the-m-a &apply h e BGP9 P a e n t

' . . least equivalent to .that w@ch,would . . 5 Pe&ent,iUiply~ redustiom toward h e requirement !. ' . &=target level of emisiiom permitted for result 'from V.OC ednisiions reductions. 9 percent requirement for years 199s . .-

Emission3 ieductiok of NO,& subject 1999.. . . . . yearx:: .'..-: ' .'.'. .. . . i-....:..: . . . . . BGpB&x(0.09] "-.- ' ' - to the creditabilie-provisi~ns~uhder . . . ' :. ~ ~ t u d Eje mdu~";ns . ..- ...... v --. IT,= Fleet turnover coreit id factor . . . ': section la(b)(il(C) and @I- : exceeding growth in &OX emissions .. .:..:

3; 4 6;.

$2

- ' m I r n ~ & , - 3 - - ~ : ' ; - ' . Additionally. b y actual NB ; ,: - ' s h c e the 1990 base y e q may be used to . ~ = ~ a G - ~ I ' . '. ' . ' - . . . , .. - e d s s i o n s reductions in eicess of .' - - meet p o s t - l m emissions nducc;om . : - . Faample: ,=I999 : : -. .

. . . . . .k Ttr.6Ttr-B.G+mm growth in w s s i o ~ u the : . . *quirements for ozone nona ttziriment . i

. . . . . . . . . .. .;... . . . . . . _ .. . . . . 1-1996 period may b e rued to meet . areas dassified as seriow and above; . For areas & t h a t t h e n ! dates : .- .. post-19% emissions~r.eductioas ..'.,. 1: . Section 1a(c)(2)(C) gants.Ep.4 bmad ,

. occuring i n . 2 ~ ~ and 2010 be.,' Severe 2 requhments for ozone n o ~ t t a i m i e n t . -1' discretion in dete- the conditions and Extreme areas, respectively}. the .> . areas d a i s x e d serious. Like.VOC .. under which NOx control may be : fqllowing foimulai should be used for : . reductions. these NOx reductions must . substituted for. or combined wiQ. VOC caIc~a t ing the t aqe t level of emissions be real ehforceable. p e i i m e n t net of . . ~ ~ i t r o l , t ~ maximize b ozone for.the attahynent year. The final -: . . . P&. and .meet the creditability ' . . . ai, poUution..The EPA believes e a t

. emissipis reductions requirement. prior requirementJ..In addition the Piox .. - since VOC reductions in 1 ~ 1 % (in to attainment for these areas is 6 . ' :" .: ~ d u c t i o ~ ~ ~ ~ t meet the guidance '_ excess of the required p m e s s amount p e m n t over a 2-year p.eriod (i-e, the .. under which NOx reductions can be . .- of 15 percent in is net of time betyeen the.hsi milestone and the substituted for VOC r e d u c ~ o ~ . ~ . lf % . . grnwlh) -.be ur;ied over to Lc post- - - -

. . - attainment . . . date i? 2 y 'ee ) . " , . -

area substitutes NOx'ieductions f o r , . 1996 period h'ox =ductions in acess of . . x=milestone year ;. : VOC reductioxis, then.. rate.of p m g e s i grnd since 1m (there is no pwess . . . . . . . x=UXn. 2010 -.: . . . . . . . . m e (similar to the one required for requirement for ~04 may be fanied -B&=1990 baseline ?-sion; calculated VOC) must also be developed for NOx- 1 . over as well. Note that these KQx

relativetoyearx, . . * . . Certaiq-NOx emission reduction . . emissions reductions are subject to the &=s% e e s i o n s reductio~ requiriment. requirement3 may a h o be.averaged ' substitution req-mmts

. . before Ipowth' a . CODSi~tentwith mA guidhce.The :. ' 1&3~)[2)(C) and to the s m e c&tabi!iv TL,=taget level of emtsiom permitted for fncb-ge&s use of - . 'yearx -'.... ::. :

. . . . . . . . . constraints dictated by section '-.. -' . . . BG=B&~<(~.oB). - . . . . . . b a s e d a ~ p r o a c h e s b both tiues I and w- 1ayb)(ll(c) and ( ~ 1 as apply to voc n x = b - ~ ~ . . The use of econoriiic incentives is . . " emissions reductions. - . . - FT,=BEx-2-B&' ' e l p l i ~ t l ~ allowed in sections 110(a)(2) ~~l~~~~~~~~~~~~ impmvemmts

r . : Example: .=m . - ' and 172(~)(6) of title L provision^ for =editable during the post-1996 period TLm=TL,,'-BC.-Fl7 averaging emissions of S o x over two or The same requLePents apply is in the ' ( Not.: The comction factor for M C T ' d e more units are contained in section , 15 percent reduction requirene,: and !/XI progrm corktion b not lncluded in W[e). However, compliance with . ' section IlIA3.(a)). . ': . . these ~alculations because the associated re!evant titles would have to be

emissions reductiom should have been . maintained. . . AU emissions reductiocs that aii'to be r r a ~ e d prior to the end of 1 ~ 3 . U this is not . the Stale to allow any pie-' credited againrt the percent nluctioa the case. an adjustment should be made as in enactment banked emissions reductions reqcirements must come h~c with t!!e the calculationof the taget level of . . cedits to be used for.purposes of new d e s i ~ a t e d nonattainment L i a - Oi e3issiona for the fint 8 years.) offsets during the period beween come. emissions reductions strategies

AS &scussed in s e c ~ o n IIJ.k3.(a) of - 1996 and attainment, then bese . . applied to sources just outside ~e

t . ? s preamble. if changes in emissions edssions must be treated as gowth nonatt2inment area may h a r i b e ~ i c i a l factors or in methodologies for (i.e., banked becoEe e - ~ s s i o n s . effects on the nonattahae5t problem developing emissions inventories occur upon use). AS such &e increase il within the designated area. The Cih4 after the 15 percent demonstration is e - ~ s s i o n s nus t be accounted for in require that L h rate of propess submitted. but before Noveaber 15. or2er to ensure the rate of prcgess emissions re2uctior.s be cilcAored fro= 1996. then S!a:es need nct correct t!e rpq-..irenent is achieved, the baseline ercissions. The barelire base year inventory-the adjus:ed States can only count eaissic;? emissions are de8ced to be a ti . baseline on the.projection inventory for rg-Juctions toward the 3 percent per year e ~ i s s i o n s "i? L!e area." ~ . '= i cb z . 4 FUiicses of reconcilina the 15 percent requirement if gmissicns meet tie icterprets to mean h the 2esigzi:ed demonstration. However. if such creditability and reduction nonattaiment area. changes occur after November 15.1941. requirements. AU creditzble ea.ssions After the control st-a:egy is but pilcr to November 15.1994. a serious reductions must be real, permanent, and .developed, r e d a e o n s needed to or above area may be required to 'make enforceable. States must keep carefid implemeqt the contiol strategy =us! be co.?ections to the base year inventory records of all emjssions'reductions to deveioped and adopted by the Str:e. arid atta;nment year projection . emure that the same reductioss are not The control strategy along witA t ie inventory for the purposes of developing - used more than one h e (i.e., reductions associated regdations must be the 3 percent rate of proyess cariict be used for o f f s e t s a d to meet ' submitted to EPA by Noveziber ?5.1%. demonstration. If such changes occur the rate of progress requireae5t). Any The adjusted base year hven!og; and , ~

after November 15.1994. EPA will creditable VOC smissions re&c:ions the zttainment year projection iii:eciorj , advise on when it would be appropriate achieved beyond the required 15 percent must be submitted no late: tkan f3r the States to make corrections in .during the first 6 y e a n after esact ient November 15. IW; however, EP.1 n a y , f u k e supplements to this General of the 1990 (Novkmberl5. 1% require an earlier draft s~b+ssicn of

. . Preamble. . . November 15,1996) can be courted these documents to alIow.ez4y :eview.. The statute explicitly s!ates that after toward meeting the 3 percer.t rate of . - U the attainment deeonstiation for a . .

1996. emissions reductions from NOx progress requirement For ex=;le. if an ' serious nonattainmht F a sho.-vs t!at . sources can be ribstituted_foiVOC area achieves 20 percent ceditable . , ' I an amount greater than 3 percent per , , . ,

. . 13518 Federal s14ter / VoL 57. NO. 74 1 Thkday. April 16, 1992 / Proposed Rules

year averaged over the %year period 61 demonstrations are due W days after biggered and implemented) to ac?ieve creditable reductions. when combined each milestone was to have been the next milestone. or to adopt an -. with the.noncreditable reductions. is achieved and shall be submitted as an economic incentive pro- (as-. needed to attain the ozone NAAQS by areawide inventory of actual emissions. described in section 182(g)(4)). Based on the applicable attainment date. areas 'The EPA is suggesting that the States the schedule in section 182(g)(3) for should plan on achieving the emissiow sjnchmnize their periodic emissions State election. EPA review of tle+tion. reductions a s e d y a s poaible. In any inventories with their milestone and the associated SIP revision (section case. it will be to an area's advantage to - compliance demomhtions (set section 182(g)(3)). the time available to develop implement ~ n h l measures eu1y since IIIlL2 of this preamble). The EPA will and implement required additional EPA will look a t air quality data for the provide M e r guidmce'on acceptable measures or an economic incentive 3 yean leading up to the attainment approaches to a b ~ w for rynchronizing program will be extemely limited if 5 e date (i.e, for serious areas. air quality periodic emissions inventories and State waits until a failure o m to data fmm years 1997-1999 will be . milestone demonstrations SO as to meet tnitiate the program of choice. nus evaluated) to determine if an area bas the m a y =qu.ment - Consistent with EPA q e s States to initiate prcgam attained the ozone NAAQS. Delaying the t a c k k g provisions discussed L7 *

development as soon as they detercline the implementation of measures until . section IIIA3.(cI0 the submittals for that a fanure is likely. States a= near the attainment date may result in serious and above &as due by encouraged to consider inclusion of reclassification to the next higher Novenber 15.1994. must contain a~.aual economic incensve programs where category because emissions reductions projections of control measure appropriate in the SIP submission due 3 would not have come in time to produce implenentation and emissions or 4 yean after enactment to be of use timely attainment of the ozone standard. reductions to 0ccl.u from h'ovember 15. in meeting he h t milestone. ~ ~ b d ~ : ~ l Any regulations required to achieve the 1996 until the attainment date. . at that time would be more Eidy to annual reductions necessary to attain (h) Eump-up equiremenfs. As allow for succient time to deve!op. the standard must be submitted with the discussed.h section DIA.Ui). marginal. implement. acd evaluate the control s h t e g y by November IS. 19%. moderate, and seriom areas can be effectiveness of the program. Economic

A nonattainment area can achieve bumped up if they fail to attain Sec:ion incentive programs are discussed in less than the 3 percent per year required 182(g] adds additional bump-up more detail in section LII.G.3. reductions if the State can demonstrate provisions for serious and severe areas that the plan includes all measures that that miss a milestone. Under'those . [j) Enhoncedl/M. Section lWcj(3j can be feasibly implemented in the area. provisions, such areas may elect to requires "enhanced" I/M programs in

each uhanized area of serious aqd in light of technological achievability. bump up to the next higher classiEcation above ozone nonattainment as The EPA will consider on an area-by- as their means of satisfying the defined by the Bureau of Census. wit!! area basis what these measures may be, milestone requirements (see disnssion lgaO populations of mOMO or mom. The with no presumption beyocd that in section 1LIA4.(in. The States w-ith Section calls fcr EPA to establjsh a specifically given in section serious or above ozone areas mcs:

i a

perfornance standard for I/Sf &a: k j l leZ:c)(2)(B)(ii). which states that to submit compliance demonstrations qualify for a less than 3 percent withir, SO days after a milestone was to proyams must achieve, and also seb

reduction the State must at least some minimum design requiremer.k and letemine The A C ~ specifies that h e state prcp . r demonstrate that the SIP for the area wid-ia W days of submittal whether the

include. at a includes all measures acseved in States' demonstrations are adeqcate practice by sources in the same source (sec5on lE(g11. The milestones are computerized emissionsanalyzers. cn- category in nonattainment area3 of the essentially the emissions reduccons road testizg. denial of waiven ior next higher classification. The 3 percent reqtrire? by section 182(b)(l) and warranted vehicles or repain ~ ! i : e d tc per year requkement carnot be waived (c){7-)(B]. For example. serious ozcne tampering. a MjO cost waiver for areas classified as extreme. A areas nust demonstrate that they have requirement (adjusted a~nua!ly kezei determination cf the waiver from the 3 achieved t?e 15 percent emissicr.~ on the Consunier Piice Index) for percent per year require~ent wili be reductions requirement of sec5o:: er~issions-related repain not covered : ; reviewed at eacb d i e s t o ~ e under l8?$)(1) within 90 days aiter scch warranty. er,forcement.through sec:ion 182(g) and re:-ised to refiect the milestone should have o c m i l [e g.. XI registration denial unless an exispi:;--.? availability of any new tec>nologies or days after Ncvember IS, 12%. o: proham with a different mecha?:s= c: ot5er control measures for sources in the Febaary 13.1997). prove greater effectiveness. amuai s ane category. Azy area newly classified 2s a :evere inspection uzless a State CLy

By meeting the specific 3 percent ozcte ncnattainment m a due to bump demonstrate that less frequent t e s c ~ g j redaction requirements discussed up prcvisiocs or reclassificatioR uder equally effective. cenbalized tespz above. the State will also satisfy the sec:ion 18l(b) is subject to the unlesa the State can prove general RFP requirements of section reiornulated gasoline program ur.d2r decentralization is equally enecsve. a d 172(c)(2) for the time period discussed. section nl(k) . The effective date of such inspection of the emissions contrci

Al! multi-State ozone nonattainment - pro-gram is 1 year after reclassification. diagnostic system (when ~ 2 i r e d by I areas should refer to t!e multidtate (1) Foilure lo meet o miles!one Administrator). In addition. eadq Statr section (III.A.9) for further instvctions (Eccnomic Incentive Pmgrrim). Ucder must re?ort biennially to EPA on on coordination ol SIP revisions and on section li?2(g)(3). if a State fails to emissions reductions achieved by the the development of the at:ainment . submit a milestone compliance program demonstration. demonstration for any serious or severe In sorxe cases. areas mzy have

[g) Milestone comp.!iance. Serious and area as required by section 182(g)(Z]. the become newly subject tc both basic a above ozone areas must show L!at they S a t e shall choose from three optlo~s: enhancd 1/Si requirements at L?e tin did achieve their rate of progress . . To be bumped up to the next higher - of ecactnent with the bas:: Ilhi emissions reductions [called milestones) classification. to implement additional requirkments due shortly prior to <ye in the I'compliance demonstrations" - measures (beyond those in'the - . deadline for submission of the SIP required by section 162(g)(2). These ccntingemy plan which wili a!ready be revision providing for the r z S s r , d I >f

C

. .

. .- .. %Federal, Register /.VoL..S7, .No. 74 / .Thdday; April 16. .1992 li :Proposed. ~ u l e r . : :. IS19 . . . . _ . _ _ . .. _ . . . - ..... . _ _ . . . . _ .- . . . . . . . - . - - . . . . . . - . . . . -.-. . . . . . . . . . . .

. . . . progam. ~n'such cases. PA regards.. . . compince wi? the - deadlines ... . would . be . . . section 2 6 The substitute measures . . . . enhanced I/M +qu&iments as - . . . . infeasible.. . . . . . . . . . .......... -. . . must denionstrite to the satisfaction of

.. supersiding the baiic l/bl requirements; (2) ~ e a n ~ f u e 1 2 e ~ t i ~ ~ m ~ . The' --. . - the Adminishitor that the long-term and .therefore will not require y e ., ; - - . progrqms mus t . r equ . a specified , .. - . ,reductiohs inair'emisiioni of ozone .

. . . . . . jubmiss-ion of .the ba?ic I/M ';. , . penentage'qf certain fleet vehicles :: preiunoij abd toxic iubstancgj ah. at reqairemenp disbssed previously..The p e a s e d ,in m,@el,year 1?98 and - ,. . a minim*equd to.thoje that would be

.

I .

PA will, under section 182(i). require ' . '. therc&er.to be gee-fuel vehicles and' , achieved under the dem-fuel vehicle . SIP revisions to prdvide for an enheced . u ~ Jean alternati~e fuels when ' - -'- :. . program. or a percentage the5of whi&

.. I/bl p'rograhm.~thin 2 ye? in areas' .... operating ip the '@a: ~ 0 ~ ) g h t . d ~ ~ ., : would be at.@bu!ed to the portion of the newly subject to thisrrqulremeirt in the ' .vehicles and lightduty,trudu the - .. i program for.wbich the vision k to '

futureqs a.resplt of redesig+ion or '. .' required p e ~ t a g e m y t be-? percent 1. substitute. Subs t i~ t e m e a ~ s may not redassificatiqn'to'?e$uq.oryone.;::' .'. :in 1998 50 percent in 1999, and 70::.; . , - * -.indude any meas&s 0th-e. : : -

. o z & - . ~ o + r ~ e n t ... .: ?. " . . . . . . . . . ; - - . . p-t in and thereaft-er. For : :.=:: .::. required by the.Ac$ however,,tk_ey..

Thi>~s ;@Y'!~&dd hi programi .-; heavyduty..h&,'tk peniptage must.+.. ' w o u l d , c o p t _ t o w ~ the a t e of .:..,. . : . are due no'late.th'ari N o v e ~ q 1 5 1 9 9 & be 50 percent in eaih such ye.=. Light- 'j'. redu-don- requireme$is'(ie; 15

- In the everit -. .... thai EqA's enhiuied I/M.:':i ' duty vehicles'and ligh?duty W* in :-'.,; . : . (1) Cdifonub Pilot Test Progmm. By performince standard is nd fiqilked . - : f l e e i s ' p e c i p a ~ in !his prpgram for .- . ,:November 15.199% Califpmia-rnkt -.

- soon enough topro6de i&cient h e the above model yeais must meet the : . : submit a SIP revision iequtinfthat - . ... .. for full SIP develt$ment.EPA will use. low emissions vehidiILEV) standards -: sufficieqt clean alternative fuel be

ib authority'inder ie'cUon 1100()[4) to - for model year 200T. Fleet phasein . produced and distributed in California - conditionally'ajjprove SIP slbmittal?' ':::. requirements for lightduty vehicles and '-to support the tititle II, part C section

committin# toadopt ihforckable..: i . lightduty trucks (6,UlO pounds Gross. - .. 249(c) mandatory clean-fuel vehide pilot t . enhanced I/M program 'c'dnsistent ivith ' .Vehicle Weight Rating [GVWR] or less) program. which begins in model year

.-. . PA'S &Gdarice. The guidance 'will cover -depend on the availability of qualifying 1996. Sufficient fuel to allow.dl vehides . . . ' the.ilemknts'of a fidl SIP. The SIP must : vehicles in California by 1998 to m. lf . required under the prograin to operite :.. denowbate that the I/M prpgram will such vehicles are not availab1e.i.n t 'i::':,.:; ' exclusively; to the maximkextent ' . .- - - ..-. . be opehted imtil the area is - - .. California in advance'of model year ....a : : practicable. on dean alternative fuel .- redesignated to atiainment based on . . 2001. the phase-ia schedules for the'se. : while operating in California (section ;- PA*~ approval of a section 175A .': - ' . . vehicles will be delayed accordingly. : .. 249(c)] muit be available. The revision ..: . maintenan?? plan without an enhanced- ' Some of.themajor pr igam .t..':: ; .:.:. 1 .must require an adequate number of 'C: proflam. .;;:. ;;.. . :: . :.s..:, :.:....:,;. ::< -_.

r - . requirements iridude: Requirements for .. supply locations that are sutiidently

7- - . . ' mandated by f&od u)2(m);the. fuel provideii to make clean alternative d i s ~ b u t e d toensure ciodvenient :. Adminisbatof 4 promulgate . .':.- . fuel available to fleet operators: - - refueling of suc!! vehicles. The revision regulations requiring muufacturers to coverage of Federal fleets (except for .: must apply to all classifications of

r install diagnostic systems on all new - - certain vehicles'certified by the . nonattainment areas as well as to .

. . . . ... ..light-duty vehicles and lightduty trucks. Secretary of Defense as needhg an attainment areas within Califoziia. The purpose of these systems is to ,

' exemption based-on national security '

. Although EPA in its April 1 s report

identify and track emission-related grounds]; provisions for issuhg cedits, on "Getting Started on title i7&cated systems deterioration or malfunction. consistent with EPA regulations due 1 ' , that California could opt out tji *e According to section 202(m)(3), within 2 .Yea from enactment for purch2sing California pilot program. EPA now years of EPA's promulgating regulations more vehicles-than required or vehicles believes that suc! a procedure is not requiring them to do so, all States with that meet more stringent standards or contemplated under section ~ ~ ( c j ( s ! p ] . 1/51 programs must amend their SIP to for purchasing vehicles prior to the which provides for opt out of dean he! provide for inspection of these onboard effective date of the program. Such vehicie programs in certain . diagnostics systems. The EPA will issue credits may be banked and traded . circumstances. n a t is because k e pa3 revised guidance which addresses . within h e sanie nonattainnezt area: of the C a l i f o ~ a pilot progam z d e r oaboard &agnostic inspections. =edits may not be traded beween light- which vescle manufact;lrers be

[k) Clecn-fuel vehicleprogmm-41) duty and heavy-duty vehicle dasses. required to produce and sell c!eaz-he1 Sc.'redule. The statute contains in The Administrator will prcmdgate vehic!es is a r;a..datory Federtl sections 182(c)(4) and 246 certain SIP rules under section 246(hl to ezsure that prqgram admicisiered by EPA: crdike requirements for areas classified as cecain TCM's that restrict vebic!e usage the clean-5~el fleet p r o p m . it is cot a serious or above ozone nonattainment based on time-of-day or day-of-week SF-bssed progam that depenlj on ti:? (lased on 1987.1988. and 1989 calendar consideration will not apply to m y existence of SD revisions for its year data) and with a 1980 population of. vehicles that comply with the fleet implementation. hforeover. wg!e ~a000 or more. According to these program requirements, notwithstanding California is to implement the fuel

. . . . req3irements,'SIP provisions for the relevaxit provisions of tide I. . . availability aspects of the prog;a= implementing ,the cledn-fuel vehicle . Additional information on the : .' . . through SIP revisions. it would 2ep5ve program for centrally.fueled fleet.. ... requirements forc!eaivfuel vehicle 'fleet. the Federal program of its effectiveness vehicles prescribed in title IL part C. . programs for serious'C0 nonattainment' if California could opt out of the fuel must be submitted to EPA by May 15. . areas is found in clean-fuel vehide fleet availability aspects of the proga-?. The 1W. Areas with a 1980 population of program. section IIIB.3.(c). '. . dean-fuel vehides required under the 250.000 or more that.are iedassified at . [3) Substitutes for,Ge c!e&-fuel .... ' program~would not be assured oi hah-icg

me future date as serious or above program. Each State subject to-the fleet. , the necessary fuels on which to operate. one nonattainrjnent areas must also program may submit a S F revision by . :: The corclusion that California sbould bmit such revisions within i year of . November 15.199% consisting of fully ' - . ' not, be able to opt out of the fuel sqifica'tioh The'Administrator e y . adopted &n.trol ineasures'as a .. ' -: ' ..-. ' availability aspects of the'pilot program . . . : ust'thi conipt'aw+ dea'dl*q for substitute' for ill.or portion of : I:-" : iq bu'ttpsspd by sedtion ?g(c](2)IF). , .

wly classified . . . area6 wk?. i i 1 ' d*'fue! :vehicle p i + & ieq-d bv ,!.: j w l i c ~ ~ t j u i r & P A to'-ejtablirh Federal '

. . . . - . - . . - . - . . . . . . - i :.., . . c . , . ': :i - ..... . . . . . . . . . . . . . < . ., . _ . . .

. l G ~ . . . . ~ e d & l ~ ~ c & t i i - i ~ ~ d & :57. No. 74 f :lhu&diy, ~ ~ r i 1 . 1 0 , 3992 f Propb$ej :~;il;i ..-..- ..... - . - . . ... .

fu;l a&$ability r e&i&men~or :'":. . .. dimorutratioi &as a d d - - . - - planned to b e t a hr&&e?toa~(we &lifomia under it? sectioi flo(c) FIP alternatively submit a new attain.&erit 'I rection W . ( c ) for a d & t i b d .l_.-- authority. if California fails to r u b g t a .. 'demonstration accounting for the -. . - . .discusiion of contingency m e h i ) . In

- SIP revision that ratifies .the fuel - : " - . increased vehicle emissions pkjections.'. the second dse. the State woula haw to availability requirements . * .. of section I . .. .. .The EPA will release an update of .- ". ' .adopt additidrial measures to b a a

.

.._. ... 249(~)(2). . . . . . .. .? :- - i.7- . ' : ' . . .' . 'TransportatiorG~ Quality Pl- .i 'the SIP *th &pla&ment-&aures t i .-- . Sectlon 249(f1 provide; t&t ariy. : i . .:- . Guidelines". in June 1992 and reveal - - - -replace tho?e that 'ptedously jed

serious, revere. or e x m e atone'.. ' ::.' TChi idorination documents which.+ . a s . e a ~ Y - ~ p l e ~ e n t ~ o n contingency .' - - noriattainment area outside'of California .address the iection IWf) meas-. .. - . . . . m e a s v s , i d the conhuing may opt fn to the pilot p m by.:. :? ::' ' ' It is hp0rb.Ilt t0.Ilote that :- . -. :.' . . adequacy'of the cantingency p+ submitting a SIP revisi~n to EPA &.at . : - nonattainment areas are not locked into - he^^^^^ fPr jerioUJ provides !amntives for selling or us@ '1- the estimates of futurt emissiom given . above mii nompleeLIt:arras the dean-fuel vehides'and dean - >'a: -' '.'. in the initial SIP submittal At any time :

are re;luired, by 182(Cl(9) to be - . . alternative fuels a s mmandated m the '*: -:. before an area readies attainment. the' :-. . ,Lqhkto ef;hOrtfall in, - - CaIifoda-progxar+ Such revisioiu must - . S k t e cm amend the areaor SIP b get.. '; ;&.tias .d=+iioiirioni ;+uc'tiOni .-. . . . . -: -comply with EPA regulatiom to'be .: :-. : greater reduction fromnonvehicle ' .:...- [eg; the r;etcent :: pmmulgated within 2 ye-bf -:t:::-.'- : :: so& This change wodd have the ; - Equirrd byhte 1908h,Iht . ,-.: .-.- ; - ' enactment.and may not take'effect until. effect of i n c l ~ a + g the motor vehicle - . -. .

1 year m e r a State hasnotified vehicle ... . e m i s r i o ~ s ~ y d ?t e.next.rnile?,to?e. - ~'?~zf $+$~t~~i",z&l:e : . ' m a n u f a h m and fuel suppliem of such date. '.-'. . . - . - - . . . . .

requirements.' ..-.? :.- - . . . :-.. . : .- . . . . (0) ~ ~ f ~ ~ ~ h & d * ~ & ] j ! ~ for: :Z .:. : :: area "ti"8aq r e i e m e n t (it is . - . . 'Ihe incentives may indude a :. I:: ...,:-.. convention01 vehicles. The EPA expects difficult to pre.dic how much shortfall .. ,

regishtion fee on noa-de.n fuel ; ; :--. to promulgate igul t ions this year - . ;.I an .&a face at a milestone and , - vehicles, provisiom to exempt dean fuel prohibiting the sa l t of g~soline that bas hen- how much =Qa r d ~ c t i o h its .

+. fmm culainTCbFr or ..:.:-::i.. i . not been reformulated to be lesi . . > . contLL8eW l e a r w s 8h0dh provide

- .pmfemtial provlriom for -.:, ..-: . pouu- rconvtinti&al gasolineee) :. :;.: for* and it would be un~asonable to - . . . clean-fuel irehicles. The revisions may ; : Under section PI(J~)~IO)(D). the, .-: .. '. . ~ 4 u h the Slate to *mil conwenc).

not indude any productibp or sales :. ::: prohibition is to kpply in the nine areas m e a k s adequate to address a .. . A .

. mandatn fqr clean-fuel vehicles o r :.:. . h a w the highest omne d e B p value :; hypohe t l a l lm p e r m shortfur.;- dean altemative.fuels and may pot -.:,:.-:. during Be 1987-1989 period and with.' : submit contingency measures that . .

agctiona or p e d t i a foifaa- 1980 p o p ~ t i ~ n s d v & ~ + ~ . ~ , ~ a h d .:.: -.. ' essentiaUy double what the basic r : ':. . t o produce or sell mch vehicles or fuels.. within 1 year. to.any area reclassified as pmgreu demonatration provides). The - The incentives may not apply to fleet :; a revere ozone nonattainment area. The solution to the problem of netting the .

vehicles covered by the clean-fuel . ... - effective date for the prohibition against appropriate level of contingenq .

vehicle fleet propun. : . - . the sale of conventional gasoline in . measures described in section W . ( c ] [m) Gasoline.vapor~overy. The . .. - these nonattainment arias in January 1. (as to contingenq measures for areas

Administrator may by rule revise or . 1995. . . . . . - . . subject to the 15 percent reduction

- waive the section 18Z(b)(3) requirements The &ay'be extended to . requiresent) wodd also apply to for stationary poune gasoline vapor any marginal. moderate;serious, or serious and above areas preparing .

recovery for serious. severk. or extreme - severe ozone nonattainment ares at the contingency measures as to post-1.9% areas, if the Administrator determines ..' . request of the Governor of the State in emis.kons-reductions milestones. that onboard emissions control rystems .which the area is located. Upon [q) b n g - k m measures. The EPA are in widespread use throughout !.he . recei\-@ a Governor's applcation. the recognizes that some serious ozoEe motor vehicle fleet p e EP.4 will - . Administrator wiU apply the nonattainment areas (and perhaps area: address this provision in a separate prohibitions set forth in section Zl[k)[S) long-term attainment dates for . Federal R e s t e r notice concerning . against the sale or dispensing of ' other pollutants) will have such l ~ ~ e section U)Z(a)[6). conventional gasoline in the "opt-in" emissions reduction requirements that

I [n) Tmnsporiation conlrols. Section area efiective no later than ]auary 1, identifying, developins. and adopL-4 in 182[c][5) requires that beginning 8 years 1995. or 1 year after the applicacon is final form the control measures h t

! after enactment and at %year intervals received. whichever is later. ?Ze repysent the areas preferred s e a t e n thereafter. serious areas must submit a effective date of the prohibition ir, t!!e for their demonsbations of a t t a i n r e n t

.! demonstration of whether current . opt-in area may be extended by 1 year may present an unreasonable b k e L ! agregate vehicle mileage. aggregate Up to three time3 by the Adn{inissator if The PA beljeves that these areas

vehicle emissions. conges~on levels. he finds that there is ins&~ue~t need additional time to fully deve!op

i and other relevant parameters are domestic capacity to produce ecough and adopt certain -long-term- meas,ae consistent G t h those used for the area's reformulated gasoline for all areas in that would be the means to 1 demonstration of attainment If the' .' which conventional gasoline is to be reach attainment nese levels projected in the attainment ': ' prohibited The Administrator nust would indude those that require ' demonstration are in fact exceeded. the make rush extensions for areas with complex malyres and d d s i o a

- State h i s l a month. to develop and . lover das!ificationa before ma* - coordhtion smons anumber of rubmit a revision of the applicable - . , them'for areas with higher. . . . .

. - . . . . . . 13 . . . government agencies- :. ,. implementation plan. This plan must ' .. . classifications. . -- - . .

1 include a TCM program consisting of Lp) Contingencypmvkion*For - . . , . The EPA intends to allow these'area

mea&s from. bul not limited 10, . . -' -seriou areis is rrquired by rec8oIu : reasO~mble time . . . - . _ . . . . - . - . - :._ . . . .

. rection 108(f) that in combination with, '. 172(c)[9) and 18Z(c)(9). the contingency . . -. .. . . . . . . . 1 - . . mobile s o m e measlires, Will : .. 1 measuri'rould bti addjti0n.l aea3uns ;"i$%5dzi;E$$z :j2 :---.I, . - reduce emiesions to lev<s that are': . . : .not already adopted tomeet the RFT or ' rrduaioru.th Sralc rboull rLa -t

consistent wilh-e+siona levels -".. ' ::::'1 other niqwemen.b. or e e auelerated : ;. cqnwency - ?t . t o m r r ( k ~ 3 _ _ - . . _ '.. . . -.'pmjscted in the attaindent . -':. "-:: ' I %x$leimentation df me<sm3bhady' '- * .: mukmmt. ,. . '

. .

. . . . . . . ; :... .: .-..I . . Fede~y~wr ./ ;5/01;':57, 'NO. 74:/..fi'GaayS:~$d .fO,'ii&:j.~%b&e& Rhes ' :. -'.- .. * . _ . .' . .

. .

. voc emis3iom never be higher :- : . w h i d offsetting m e a k s becohe : - - Hduse ~otimkttee Repoi(w~ch-a $?cars . during &epzon= season in one year that essential to iompliance: " ' 0 : : - ' to sup~ort the'Lnte@retation. The re7oi-t . - d w the ozone'season in the ye* . . .. The EPA will app&ve .a SIP reiision .' 'atates that "(tlhe baseline for . ' - , ' . before. When growth w a n d .- . . as meeting this pivision de'spite a - : : . dete-g whether t h e e his bee2 i vehicle trips would 6then;rise cause a . . foiecasted upturn in vehicle emission?, I' miv th in emissioris due to increased ' t.

motorvehide emisiions upturn. this .- as long as motor vehide VOC egssions' .VAfI' is th'i level of vehicle'emissioru .'

mumt be prrvented. n e ..- . : - . - in the ozone season of a given year do thatwould o& ifV&fl held 'constant emilsions.level at.the poipt of . . . not exceed aceilirig level which ~ f l i l t s . -in $e &a{ (HA NO. 10l490. part I. become j a . c e i m on motor - - .- a hypothetical rtrategyof iDhplkenting '*. lOlst Cqng:2d Sess, at 242) . . - e m j a i o a This requirement qjplies to. 0 . 0 t h d s e 8pecifi~ally ieq&d . " '' .. : ' .' .@tho@ the i@t~ to ry language could .

. projected &isriom the yun :- . . measures oti?chedde and8av@g offset ' be &ad to huh offsetting of l n y VhF b e b e e i (he ejub~srion ofthe Sp . . iIIeas~re3 WltU the point at ivbich vb!T * ' .@Wth. DA&elieves.thit.thelanguage .

. - -,& wo,jld o&en;;isk '~ -.?;- :.,, '. - reirision. and the attainment deadline . : . c*also beriad so-that oqlyaaual '

and ab9&-an,j bcj,bnd the iedm*te ' . . emis~i0n ~ptrmL n e ' * c e ' i level j3 : ,'I .' i $ ~ i i d q j I l k i e i ~ ~ d t i i i g I m i n V)lq '

. hqnteminb foi the RFP h a th6.y -. :; ..: ; therrfore defina'(upfo e e point of :,:':-bwth'need fo be'offset.Thehrtatute by . attainmint d e h o h d + n * ~ h i a 1. .. - . uptiun) as motDr vehicle ejbissiog 'that . ' its b* teqqs.i+irei'offsetting of 'any

.

- r e q ~ e m e n 6 a be would otctix in the ozone season of that .-' ixjemissiom frirp'gri,wth in - .

.in &= kby vary t . s ,+the .: . year. with VMT if all mebures. ; . VMT." It b itasombleTd,inteipret &is areas's mix of s o k e s , and 9 t h control . for that aiea in that yek'were - '-' ' ' -. ':.langiiageas requiring that VMT 6 w t h

adopted for other sources. . , implemented as reqbired by t+e Act. -! ' must be offsit:only whee . sud growth . . When this curve b@ to up due to reslilb in emissions increases from the - . Reductionj from any'disiretionary - -

. . , p w t h in V1MT .or vehide trips. t!!e - . - motor vehicle fleet in the'area..- ; . me.asure?-:?dopted to iatisG.this . . lrr crrdiiable to the RFP ,.: . . ceiling becomeia b e d edvdue. The .::. . While i t is true that the, langiage of . .

req-ment3.., : : . ' . + .- . ,--.: ' I . ceiling line would include the effects of the HJL appears to sup~or. t!e'

. .. . .. Federal measures.such as new motor.. . alternative iqterpretation of the ... . ; - - r'Mcthi.'abbve r e q k e n t ' i 3 3h~1e v&de 3t+dards,.Wi+ n RW,' : ' ;-: :, . itahtory such an dtemove . in'conce~t:ib a ~ ~ l i c a t i o n c ~ ~ l d " . . . . : . i o n ~ l s . ind refoyulatid gasoline. as .. 'intirpietatiqn would have dast ic- : en~om'seareas ' to delay.M Or - .:. 'well as C l e q A4 Act-mihdated SIP . ' impliqfio& for many of the areas . e m i ? s i ~ ~ ' ~ ~ ~ ~ ~ ~ ~ iuitable requirements'kh a.i*nce<l/hl, the 81ibjeG to this provision. Since is for use-as offsets until the frendin fleet clean-fuel iehide prograii and the.. growjng' at rates as high as 4 percent pe vehicle emissions reaches ib.w'um' employer trip feductioh program. The . . year in some cities su&,as hi bgelea

.

point and is turn upwards..?his ceiling link would.also @elude the 'effeci ' these cities wduld have to impose incentive for delay exist because of forecasted growth in Vh.fI' and . . . draconian T W s such as mandator- nc - earlier implementation would bring the . . vehicle trips in the absence bf nevi -, . . drivere'strictions, (0 fully ofise! &e trend to a l o w e r m ~ ~ u m - but would discretionary measures to reduce them. effects of inueasing VMT if the m a s

. -not change the date when the bend line The ceiling line mist. in combiiiation . . where forced to ignore the'beneficial began lo increase. Later hpiementation . ~ t $ projected from . inpac!s of all vehicle tailpipe and would- however; delay the dale when . nonvehide sources, satisfy the RF? . alternative fuel contrpls. the trend line would increase. To . requireaects for the area. Any L3fT . though the original auhors oi ti..! implement the VMT offset provision reduction measures or other ac5cns to ' . provision and KR 1014% may in fat; while avoiding this counte~roductive . reduce motor vehicle emissior.~ a2opted have intended this result. EPA does no incentive for delay. p-4 ha3 developed . since Novenber 15.1990 and nct . believe the Congress as a whole. or evl n k e approach described below.- specifically required for the area by the full House of Repesentatives.

If projected total motor vehicle . another provision of the Act wou!d not believed at the time it voted to p;ss L?! emissions dwhg the ozone season in be kcluled in the calcu!ation ci ;!e C M that the words of this pro\<sion one pear are not higher than during the cei l i r~ line. would irnpose such severe restic:ions. ozone season the year before. given the . Fcrecasted notor vehic!e e&ssions There is no M . e r legislative histcry c 1 control measures in the SIP. the VhfI' must be held at or below the i z L ? l = ~ r ~ t5is aspect of the provision: it was i.ct oiiset requirement is satiszed. However. le~e! of the ceiling line after t k e ceiling discussed at all by any mernjer oi k e ii the State plans to implezient control l h e reaches its minimum level. ii an , Congress during subsequent 1egi~iiCvf ceasures over and above t5ose area implements offset measces early. debate and adoption. s9ecifically required by +e Act and the forecasted emissions wili be less Given the susceptibility of t5e t!ose required to demonstrate RFP.and t!az the ceilirz line. and fo re~s i ed statutory language to these tivo attaininent earlier than Would be xzotor vekcle emissions could i7c:ease alternative i~terpre!ations. =.A belie\ :s necessary and sufiicient to prevenl an from one year to the next. as lozg as that it is the Agency"' role in emissions upturn. a projected . forecasted em~issionsnever,exceed the administering the statute to take tke subsequent pwth-related increase to .ceiiing line. ' ., -. ' interpretation most reasonable in I$)?'

. .the level pf emissions that would occur . The EPA has received com.est . .. of the prattical implications of suci if these measures were scheduled later - indicating that eection la2(d](l)(A) ., interpretation. taking into considextic n will not be considered to violate the should be interpreted to require areas to . the'purposes and intent of the sta?~tol / requirement to offset emissions offset any growth in VMT above 1 ~ 9 0 scheme as a whole. Ln the con!ext of t .e inceases due to growth in V3lT or levels..rather than offsetting \3iT intricate planning requirements vehicle trips. The latter situation should growth only when such growth leads to - Congress established in'title I to brkg be viewed as a tenporarg reduction in actual emissions inueases. UnZer this are.as towards attainment of the ozsr. emissions to a level be!ow that required - approach, areas would have to ofiset etandard. and in light of the absezce ( I

- by the provision rather than an increase . VhiT growth even while vehicie ' . - ' any discussion of this aspect of t?e V . . . above the required leve!, with ?o effect . emissions are declining. Proponents of : - offset'piu~ision by the Congress as a --. ., onemissions at or after +e point at . .this interpretation . . cite language'in the . . whole [either in fl&r.debate or in tke

. ,

Conference Report);EPA concludes thai' the appropriate interpretation.of sectiori

?(d)(l)(A) requires offseting YSff ~ w t h only when such growth would

result in actual einissioiu increases. Section 18z(dj[lj(~] requir.es that

- specific enforceable measures selected by the State be-submitted by November 15.1992. along with a demonstration . that they are adequate to hold vehicle emissioni within-the ceiling described above. It alsojtates that these : rneasures..beyond offsetting growth in erissions. shall be sufficient to allow tola1 area erdissions to comply with the RFP and attainment requirements. These requirements create a timing problem of which Congress was perhaps not fully aware. Ozone nonattainment areas affected by this provision are not otherwise required to submit a SIP - demonstration which predicts attainment of the 1996 EZrP milestone until November 15.1993. and likewise are not required to demonstrate post- 1996 RFP and attainment until November 15.1994.The EPA does not believe that Congress intended the offset growth provisionto advance the dates for these broader submissions. Even without the requirement that the lffset growth measures be sufficient to , 1 1 0 ~ overall RFP and attainment in

+* conjunction with other measures. EPA believes that the November 13.1992 dz:e would not allow sufficient time to develop a set of measures that would comply with the offset growth provision over the long term.

To deal with this timing problem so as to a!low a more coordir.a!ed and comprehensive pla~ning process. EPA will accept committal SIP revisions for the offset growth requirement k d e r the authority of section llC(k](?). This will allow States 1 year from =A cozditional approval of the ccmxzittal revision to submit the fdl rzvision coritaining sufficient mezsures in s ~ e c i 9 c and enforceable form. This may not stretch the effective dead!ice for tho full revision dealing with the post-1396 period all the way to Novenber 15.1E4. The affected States may need to submit their post-1998 RFP and attainment demonstrations somewhat e ~ l i e r t!!an comiii-ally required by the provisions establishing the requirexents for those demc~strations, so that EPA can assess L!e adequacy of the grow&-offsetting

ascres against all three criteria ecified by the 1990 C M 4 . With the- trs time allowed through the use of a mmittal SIP revision. States should be

able to use procedures for projecting VXfT as given in EPA forecastixig and tracking guidance for serious CO areas.

(el fiplaj&ti-ip re&t&n prngmm. - Section 182(d](l)(B)'req+is, ttai States with severe and ex-treme ozone . . '. .. nonattainm'ent aria; shall,subait a SIP revision reqr?ring imployers wje 100 or moie employees in such areas to ' . '

. implement programs to kduce work-. .

related vehicle trips and miles taveled,. by employees. Guidance on the ' - . implementation of the emploj.ee trip ' .

reduction program wil l be provided @ a - supplenent to this'general preamble. ' - - . .. . 6. Extreme Areas.. . - . . .. :- - . .

Extreme areas ak rk&ired to meet all severe area requirements. udess :

ot!!erwise'noted a s well a s the . follo:vinz additional requueaents: .

(a) h i~ jor stationary soune deficition. For ozone nonattainment areas . - .. dassiiied as extreme. the terms major source and major stationary source. for purposes of the NSR program w.d the R4CT requirement for major non-CTG sources, include any s t a t i o n 9 source. . or goup of sources..located within a . .

contiguous area and under c o m o n . control that emits or has b e potential to emit at least 10,tons per year, ..

(b] RACT. Section 182(e) governs . ,

extrtme areas. In these areas. the same .- R4(X requiremehts apply as for the severe ozone nocattainment areas. However. the major source cut05 for non-(XG sources is reduced to 10 tons per year. As in the other areas, L!is lesser cutoff could result in the need for addiconal non-CTG RACT rules in - cases where no existing (XG applies to a source in the area emi1tir.g above 10 tons per year. or ar? existing CTG for ~ ! e source category subject to a ton-per- year cutoif applies only to sources ab0s.e a higher cutoff. Rides for t k s e S O C T C ~ S would be subject to ti..e same . sdedule and requirements c i con-CTG R4CT specified by seclion 191ijJ(2](~] (i.e.. rdes are due by NovezSer Ij.1992 for ~ a j o r sources not covere? 5; a zew o: expec:ed CTG).

(c).;VSA- (1) Offset c!io. Fc: <:e FurJose of satisfying L!e emissior.s 0Es2! redzction requirerner.!: ol section 173!:;(A], t!!e emissions oiise! ra!io is t!!e ra:io of total actual enissiocs re2cc:ions to total increased al1o:vable eizissions of such ~ollutant(s) irom t!e new or modified source. For an extreze ozoze ~onattaicment area. tkt emissions oifset ratio is a! leest 1.5 to I. urJess the State requir?s zli e2s:ing major sources in the'nonat!zi:men! area to use BACT as defined in sec:icn 169(3j. in which case the ezissiozs offset ra:io shall be at least 1.2 to I.

(2) Spechl XSR NI,OS; For h?e . A

' purposes of.determining the applicability of the EiSR pe.e t requirements under section 173(5], the

.

. . - de min i&~ rule in section 182(c](6] and the sp'edal d e s in section 182(c) (7) and (8). a s discussed above for seriocs aqd severe.areai. do not apply in extieae . ozone n o n a t t a b e n t areas. .

(3) hfodifications in Cxlreme G-ECS. For moUications of major statiocaq sources locited in extreme areas, k e 1990 Ck9A eliminate the conce2t of de minimis altogether for the p q o s e s of determining a major modification Sew section 182(e)(2] provides that any physical change of. or change in &e me*od of operation a t the s o w &at rtisults inany increase in emissiow froa any discrete operation uhit or o&r pollutant-emitting activity at the source generally must be considered a . modification subject to the part D XSR permit requirements. '

Section 182(e](?] does. however. . . provide for an exemption h m 3ec~on 173(a)(l) offset requirements if t h e . owner or operator of the major ,

.stationary source agrees to ofiret any pmpbsed increase by a greater a=ount of onsite reduction in emissions fxm other discrete operations. u3its:c: activities at an internal o&et ratio of 1.3 to 1. In addition, .this new section stipulates that the offset requirecents do not apply in extreme arezs ii 5 e modification consists of ins!alli-.g equipment re'quued to comply wiA the applicable implementation plzn ,-emit. or the Act itse!f.

(dl Clean fuels for bcilers. SecCcn 18?(e](3). "Use of Clean Fcels c: Advanced Control Techo:ogy:' ziplies to certain boilers i7 extrene ozoce nonattainment areas. The State is required to submit 3 SIP ree.isio;: 5~ November 15, IS93 that requires -" ~..ec:ec boi!ers to use either clean fue!s c: advanced control technology by November 15.19?8. Affectec! boile:s are individual rew. modified. o: cxis2r.g electric utility, indus:rial. or co;n;hercial/i;,stituiional boilers <:a: eni! Rore than 25:ons per yea: ci No, The Act specifies. for puvoses c i <:is section, that c!ean fuels are "ca:.::a! gzs. me!lianol, or ethanol (or a co3;z:zbly low pollutina fuel)." advanced c x ~ - o l tec5nology general!^ means "czf2l:;tic control technology or other co~; l~zrably effective codtrol methods." acd <:e c!22r fuel must be "used X percent cr core oi ti-le operatizg time."

A boiler should generally be . considered s s zny combustior. equipment used to produce steaz. This would gerie:ally not include a prccess heater that transfers heat fr0.m

, combus:ion g3ses to process strezzs. a waste heat recovery boiler that is used to recover sensible heat from the exhaust of process equipment sud: as a

13524 ~ederal Register I .VoL 57, No. 74.1. Thursday, April 14 1992 1 Proposed Rules . I

. - . . _ _. _.__-..- . . . . - .- -. . ... .. . - combustion turbine; or a.recovery h e EPA intends to promulgate its . long-term meas* was to have beex h a c e that i? used to recoypr process . regulations on the fleet program ! - . - . .. - fmp1enented;-The measures must be . .

chemicals. Boilers-used p,rimaxily for transportation con-1 exemptions ' . adequate to produce emissions .,. residential spacq.emd/or water heating shoytly.These regulations will address reductions suffiuent in ionjunction are not affected by this s w t i o ~ ~ . . '.. , the eligibility'of fleets,fot the T q .. -. 'with other approved plan provisiom, tc . Only boilen-'that actually e@t more . exemptions. States,rnay at any time 'a . . achieve the'periodic emissions . ,

2, than 25 tons.per year of NO, 9 . submit T W s that apply'to high . . ,. reductions and to'attain the ozone affected. Emission; vary'fmm year to polluting or heavyduty vehicles not ; = - NAAQS by the appli&ble dates If the par. however,'making applicability :. . - subject to the Sean-fuel fleet program in. Administrator determines that the .

dfmcult to d e t e e e . Bollen with rated . extreme &as during periods of heavy extreme area has failed to achieve an heat'inputs of greaterthan 10-20 @lion effic . . . . . . _... .. . . : . emissions reductiods req*ment set Eta generally have the potential to :. [I) ~ew.tec&obgies. The Act , : :':..- forth in recdon 182 [b](l).or (cJ(2) and exceed the 25-towper-year limit . . : . recognizes that extreme areas may have that such failure is due in-whole or par depending on the fuel type. A k k " ' ' to rely to a certain extent on new or - to an inability to fully implement . with these high rated heat. inputs ?hould evolving technologies to meet certain of provisions (related to new technologic: ) therefore beeconsidered affected unless ] the emissions reductionrequhments. -. described in rection 182(e) (1 throcgh r i b federally enforceable pennit ' .' .. . The relatively long time between. - . ; and approved pursuant to section '

specifically restricts NO, emissions . developing the initial SIP acd attaining 182(e](5). the Administrator will requir below 25 tons per year from each boiler. the NAAQS. and 'the degree of . the Staie to implement the contiapenq Boilers with rated heat inpub less than . emissions reductioa~ needed to attain measures'to'the extent necessary to ' 10 million Btu which are coal-6red and the standard. guarantees that some. . . ensure compliance with the emissions less tha'n 15 million Btti which are oi lo i control technologies will not be fully ' reduction requiremenb of section 182 gas-fire& may be considered de minimis demonstrated by the time of SIP . - . . (b)(l] and [c](2]. The EPA will set a and exempt fmm .these requirements , ' development These measures would -. ' schedule for implementing contin~genc since it b unlikely &at.they.will exceed include those that may anticipate future measures upon making a finding of the emissions limit ah'd those few that . technological developments as well as. failure to m e t a milejtorie; ...: :: - - do kill emit very little in the aggregate. . those that may complex -., .' .. - - (g) ~i les t ine foil&& (economic The State is free to,impose more. ' '. ' , analyses and decision making a d . incentive pmg~ms). Under section rtringent requirements. : coordination among a number of - ' 182(g)(5). if the State fails to submit a

[e) TGWs during heaty bffic hours. government agencies Section 182(e1[5). compliaice demonstration for any ' Section 182(e)(4) (in Title I) authorizes allow8 the Administrator to emrove an extreme area as required by iecticn the SIFs forextreme areas to contain extreme area SIP and attaiment 182[g)(2), or if the area has not met ar: provisions establishing T W s . demonstration that anticipate applicable milestone as required by ' " .

applicable during periods of heavy development of new control section 182(g][l). the State shall scbrr: I., ! a

traffic that reduce the use of high technologies. or improvement of existing a plan revision to implement an polluting or heavyduty vehicles The control technologies if the S F satisfies economic incentive program (as sec5on states that this authority is the following criteria: . described in section 182(g](4)] wib& I granted notwithstanding any other . (1) The plan containing the months of such failure. The EPA q e . provision of law. demonstration of attainment nust the State in this instance to initit:e tl :

Ln contrast, section 24601) requires the identify all measures. fnc lubg the long- development of an economic hcer;5\ : Administrator to promulgate regulations term measure(s) for which tdiitional -. progriim as soan as it can reasontjl) to ensure that certain T o f a including time would be needed for de*:e!opment define the objectives and scope c?an timeofday or dayof-week restrictions and adoption. appropriate program. without wei:in: and similar measutes that restrict (2) The plan must show tk: ~ ! e long- until such a failure occurs. The E.\ vehicle usage, do not apply to any clean- te.m measwe(s) cannot be My belives that early initiation is i m ~ r t nt . fuel vehicles that meet the requirements developed and adopted by :be submittal so as to allow for sufficient time !z of the title II clean-fuel vehicle fleet date for the attainment de~czstration deye!op. implement. arid evaluate 21 program That section skates that i t and must contain a schedse cutlmiq effectiveness of the program Ec:zor ic applies notwithstanding ti'Je L the steps leading to frnal dev2lcpsent incentive programs are discussel i.:

The EPA believes that t5ese two and adoption of the meaureis]. more detail in section LU.H.3. provisions can be harmonized by interpreti,~ section 246(h) as anowing only regulations that impose traffic controls on vehicles other than heavy- duty. clean-fuel fleet vehicles. The EPA believes that controlling the nocdean- fuel. heavyduty fleet vehicles along with all n o d e e t heavyduty vehicles will effectively reduce congestion and emissions during peak traffic conditions. Seciions 182(e)[4) and 246(h) can thus be harmonized by allowing SIP'S for extreme areas to include traffic controls on high polluting and most hea\y-duty vehicles. but not on heavy-duty, clean- fuel fleet vehicles thathave been - exempted under EPA regulations . promulgated punuant to section 246(h).. ,

c3) The plan must contai-, . con;nitrnents from those agencies that would be involved in d e v e l ~ ; ~ ~ and implementing the schedule foi the measure.

(4) The plan must contain a commitment to'develop and tzbmit' continge~cy measures (in adiition to those oherwise required for 5 e area) that could be implemected ii the measure is not developed oi ii it fails to achieve the anticipated reductions.

(5 ) The long-term rneasuie!~) must not be needed to meet any emissions . reductions requirements w i t h the first 10 years after enactment The State must submit its contingency measures no - - . later than 3 years before the original -. .

7. Nonclassifiable NonattaLier.: .J.i ras

(a] Geneml. Nonclassified ozc t .~ areas consist of transitional. submarginal. incomplete/no date an as. An area is considered transitionei u der section 185 if it was designated nonattaizment both prior to enaczc nt and (pursuant to section 107(d)(lj(C I at the time of enactment, and did not violate the primary NAAQS for o:oi e over the %year period 1SW-1989 [ i . ~ . - measured equal to o r less than 1.0 ,

exceedances per year basid 0n.a 5.1 I( 1 of quality-assured data h m a p ~ ; rly sited monitor(s)). Submarginal a x a fall

.into one of two categories.that aiisc under the provisions of the C4 W-

. . . . . - .. . - . . . . . ;- . . . '.: -: '~.&~d, &j@ier q'-:vo]. ~57, -Nd 74 ' j :fi&diy,':Apd ia. iEz j&bfi&6d : : : ;

a . .

This situation existi due to the ' . . iiefid&iesregartiiq enforceability of homttlinmintire&hdu* ' '

'adjustment for missing or incomplete . . existing rules in order to be ; '. . . su6maqinaL transitional apd- data when calculating expected - -: ' redesbated to a b m t . .. . . . 1 incomplete/no dgta.areas, are required mceedaii&s..The first citegory . : . . ' . ( i Submarginal areas. Shce it is . to adopt NSR p- meefing q e (Category TJ consists of areas presently . known that n u b m r n ~ area3 are :-. req-mcnts of se,ctioh l n a j . . ..

-. d e s i p t e d nonattainnient that are . violating the' standard (only their design amended. - .'- .-: ' - :-' :" : : : . . . . . . . . ..- ..- violat@ the +one standard. The - value is lower than the threshold for - : (q section 21 &d (cl

second h t e g o ~ (Catgory 9 c o n i i s ~ of which *:area can be claisi6ed]. it h' : cxpfiday stites that hobttainment - , m i 'designated attdnment at . -. . , .. . - DA'i position fiat such areas must : ! . . ,as &e,; the mappbble-. ,. . enactment tqi t &'violatln8 the ozone . make the i q n e RACT corrections (id .If :'. : m o n i ~ ~ m q ~ ~ e n t s Of_..ectioa .

s t andad f i y , if & e a ~ t a @ e d its : - pre~ous ly eq-d] q rngghal mias.:. . . 110~a~(21. : . = . .. . . .::: ,:.. ..... - - . . . . nohattahuierit desigiiation'at enactment .Like ma@d.areas. submarginal areas a-

I : :> *=:; : <;::--:..::;"'L .:. :: . ,.- C . . . . . . , (und& #<&Oclm(d](l](C)] but , '.::.:.:.. . . are exce!dinp &e b2o.e stand& a d ;. . (71 c ~ n ~ ~ ~ m e o r - Sins . I.

s u b v a l end incomplete/no data adi@iate.dd& k not available to . ., , therifore shoyld apply the same level of areir genedy prCsent le ss,3erioru -

indicate whether one or mon itfolations RACI' a; w&,bquired before . .- '

of th< jl+da+ have oce&d,'the' area enactmeiit..Under 'jiitiOiiii172(b), the&.: '. Ozqne.p*emr lhan mas* -'.

is.&nsidered.gii ~{dmplete data oi no . R4CI' co~ct ions"&uit be included in ..:. whch are g r e s s l y hum the ' data arearea-.::'-;'.; ' .-;.,.-., - . ' ':' - " ' - '

. . the SIP revision' d i e November 15,1993. for contingency m e m e 3 . ~ e c t i 6 i i i p ~ ' s ~ e ' c i f i d i &ehpti - Howevei, to the-extent'an .area is :: .: .. . under section 182(a). contingency -:.-. ..

-itio&] are& from subpart 2 . .....- subsequently recl=Asified to one of l e -. . measures are likely be n e w 3 W - - requir:iGen* mtil December 31,1991. - .: nonattainment classifications in Table 1' attainment for these areas- Howev~r, the = are silent on ;... . of section 181, it will be'subject to the '. . -believes it appropriate not apply .

such'akas Jhould be exempt .. time schedule of subpart 2. , ... ... . the requirement for contirigency "..

h m ' s u b p k t l Gquirements as well.. ' (2) A t f a i n t e t i o section for these area? .hdera de - The CAA *k+ide n'o'spidfic guidance . 182(a)(4) specifically exempts marginal .' * appma&The approach is .

- submsrginal and incomplete/no data .areas h m any attainment .I.-.-... : ' ' authorized b y ~ A . l a b ~ u ~ o w e r v. CosUe. areas concerning appliiable . . .. demonstration requirement Shce - . - 830 F A 323, w , - ~ - o S (DC circuit ~ ~ u i r e m e n b ' f o r these categori&. ; .. . maqinal areas are exempt horn this .:.. ,19801.which held that EPA may exempt Subpart 1 cbqtains general SIP p!anning .requirement it wodd be unreasodable' ,. . de w s actions hma'statutory . .

-requirjnien'is, i n d EPA believes that ; to apply this requirement to an area & i t ' requirement when the buideni of ' . . subpart 2 is'nbt'applicable to 2 ":.: . . - was either not iriolatina the standard or . regulation wodd jield little oi co vahe. . - . submarginal and incomplete/no data . . .recorded a deaign value so low as to be (8) ~ltainin'ent date4 for ... - . . . areas. Nevertheless. because. these ' ' ' undassifiable. Therefore. F A will ' nonclassifiableareas. Section 1?2(a)(2) areas are designated nonattainment ' presurne that the existing SIP. . requires an attainment date of no later some aspects of subpirt 1 necessarily . . reqcirements and any exiskg ad . than 5 years from an area's desipation apply. The EPA's interpretation of the . . future Federd requirements (e-g.. the as nofiattainment For are,as des@ated section 172(c) requirements for these tige II rules) wil be sufficieat .to provide nocatteinment under section areas is given below. Under section for attaixnent in these grees. . l~V(d](l](C)(i] (pre-enactment '

172@), applicable revisions to the SIP '

(31 RFP. A reasonable further progress nonattainment areas]. the a t t h e n t are due 3 years from designation under requirerrent assumes a long date is November 15.1995. For newly section 107(d). . nocattainment~eriod or a lar2e amount designated areas. the attainment date

(1) ~4 ~ ~ / ~ e a s a n a b l ~ available of reduc~ons required to attain. Because will be 5 years from the effective date 0 j confrol measures (RA CI\I+(i) a ta?sitionaL submarginal. or the nonattainmect designation. For Transitional areas. To saGsfy section incomplete data area is or is likely to ba Submarginal and incomplete/no data 172(c)(l). transitional areas (section al-eady in or near a t te iment EP.4 will areas that fail to attain in 5 years. 1EA) that continued to show no t ea t a SIP that includes KS2 and is coaside&g one or more of , j ~ ~ violations as of.December 31.1991 must cor;ectio,cs (if needed] coq~led with . fol!owing options in edordng a ensure. at a minimum. that any Federal measures, as 12eeting t!e RFP attginment date for nocclassiiiz~~e deficiencies regardmg ezrorceability of requirement. areas: an existing rule are cocected. While (4) Emissions inventory. .b enIssions (i) Van area fails a attain section 185A exempts transitional arees inventory is specifically required under E o n designation. the area wodd be from all Subpan 2 requirements until section 172(c](3), and is not tied to an bvmped up to marginal or a . December 31,1991. and b a t exemption . area's proxmty to at ta imeot continues until the area is ?designated Moreover, even if these aEas are 'classification commensurate witi the . to attainment (assuming the area . . already attaining or near a t tahieat , area's design value if the design value is sat&faitorily demonsbated attainment they will need such an inventory to at least 0.1n p p a ' . ' . - - by December 31;1%]. States should be : .develop an approvable maintenance . . (ii) If an area fails to attain 5 years . aware thatin order to be redesignated plan under section 175i l ' . ' from designation either due to : . .- to attainmeni su'ch areas must correct . (51 NSR. Like the emissions inventory .' : incompletelno data or a subma..ial any RACT deficiencies regarding . requirement, the NSR requkment is not design value. the .area retags its status enforceability. - : . . . tied to an area'a proximity to attainment. but EPA will tighten subpart 1

- (ii] Incomplete/no data areas. since it and therefore.exemPt.g a - . . . . '. - : . requirements. This could indude further . . . .. . . is not knowm whether theseareas are nonattainment area from NSR . - RACT measures. or a basic IlM .. . violating'the itand+ oi not it is EPA's . requirements would clearly violate the" ' ' P r p ~ a m - . :: .. ' : .. .; .. . - - . . 'position that requiring RACT corrections. .Statute. Furthermore, the new NSR ; .. . .. -. :. The following sictioni,flrther Ciscuss is unreas6nable;'However. like .'". . . .. .: ,. Program is one of the -(major - :: . . .the applicability of the Act's -. .: .. .:' : .

- ..transitional anias..hcomplete7rio 'data . .. bulwark? against furthii'deterioretion of; requirementi to each:of the t p r e e h e s ., areas &&t '&~ect any RACT ' : ': ' .the Nation's air quality. nbrifoie; : . :: if nonc]a&ifiab]em~~. :.7: , :.-. - . .. . . . . . . . . ... ..

13526 Federal Register / Vol. 57, No. 74 1 Thursday. April 10, 1992 1 Proposed Rdes .

[b] Tmnsitianal. A transitional area existing part D NSR requirements will can be classified as marginal. the area is ' will have to meet the requirements remah in effect until the area is submarginal.

described below. redesignated to attainment at which (2) Categoq II+ew nonc:t4i.zzent ( 1 ) Section 185A requiremenfs. The time the FSD requirements of part C will areas). Category U areas are those &Pas

Administrator announced in the apply. If the area does not have an designated undassified/attainment on ', November 6.19Ql Federal Register approved part D plan for NSR permitting the date of enactment but with an

- whi& ozone nonattainment areas did and it fssues a permit for a major average expected exceedance rate core not violate the NAAQS during the 3 6 ' stationary source or major modification than 1.0 durin8 the 3-year p e i d 1 s - month period from January 1.1987 to in the bamitional during the I=. These areas are violating the Ilecembw 31.1989- For such areas* the interim period before redesignation, the standad. yet &eir design values we= requhments under subpart 2 (of title I State permit should comply with the less than 0 . m p p k below the threshold part D). including any RACT f~x-up requirements in 40 CFR part 51. for.whic!! they can be c!assified as obligations. were suspended until a p p e n e S . . marginal under Table 1 sec t i~n ISI(I]. . I I e f ~ m b e r n * 1991- JmC 30. the (4) Failurn to attoin. If a b . a ~ i t i o ~ a ] The EP.4 also describes such areas as ~ ~ m t o r will dete-e on the , Gohtes the NAAQS duriag the 3. submaqinal. basis of the area's average number of ye, pried from January to (31 Requirements.-As discussed aEove whether the area had in December 3.1%. then it ah& be all nonattainnent areas. including fan attained the NAAQS Ozone by classsed in accordance with fable 1, submarginal areas, are subject to December 51.199l. Where the section lSi[a). Upon classification, the several of.the requirements in.subpaz I. AChbkator that area area shall c o n k u e to be subjZct to the SpeCifi~ally. section liZ(b) reqmres a

the NAAQS the 'late genenl requl-emen& under s u b p a 1 SIP revision Within 3 y e l n of submit a maintenance plan for the area not in subpart 2 and those designation that must meet several within 12 months of such determination. ln the other four redesignation specific provisions under subpart 2

requiremenb, in particular, NSR

nquirrmene under sec.on lm(dl(31m appropriate to the area's c1assi.fiution Lf a State submits a request for that would have applied had the area redesignation to attainment then a

be includingRACTfu-ups been so classified at the time 01 the regarding enforceability. proper and adequate maintenance plea. (2) Redesignation of transitional notice of ot!!er nonattainment areas' def ied in section 107(dl(l)tE). nust

areas. The State must submit complete dassificatiOns under be submitted.

monitoring data for the bauitional area 181(a1(31. For example. such area (4) Failore to attain. If, at some i. that supports redesignation to would need to submit RACT f ~ - u p the future (before the area has

attair~nent (i.e., showing no measured requkements of section lU(a)(2)[A) demonstrated that it bas met the five E violations during the 36month period within 6 months of classification The requirements for redesignation unde: ,.. . i hm januKy 1,1989, to ~~~~~b~~ 31, Adminisbator may, however. adjust any lm(d)(3;(El). a submama1 are; ' i lsgt] in suficient time for the applicable deadlines (other than violates the K M Q S and the de s ip \ i

Administrator to make a fxding 01 attaiment dates) to the extent that sc& value is equal to or exceeds 0.121 p p . i

attainment and to promulgate such adjustment 1s necessary or appropiate is EP.4'3 position h a t the area will 2t

finding by June 30 .192 If the to ens= consistency among the that time be classiEed under Tab!e 1.

Adninislrator h d s the area has required submissions. section 18l(a). according to its d e s i ~ . attaiced. the State must submit a Lf complete monitoring data reveal

1 , maintenance plan wi&n 1 year of the . that a transitional area is violaliq the . Once the area C O C ~ ' ! !

finc!ing along with documentation to standaid but its design value is less than be subject lo sub~artl

I support the condusion that the 0.121 ppn 9-below the desip value requirezlents not addressed in scb;;". 1 redesignation requirements under ranges in Table 1 (section 18l[a]j-t!en and the s?ecific pro\+sions of subpz:: 2

I

? section 10;(d)(3](E) have been me t For a the aiea kill be considered submargkal. determir.ed L'r.'ar &scdssion of the specific State aceon3 Refer to the category below entided section 1U(i). these provision3 a?;!? a: required h order to satisfy t!!e five "Subr~aqinal." if the area bad been so c!assified a: rede3igation requirements. see (c) Scbnceinal- (I) Cafe,oor,. I- enazknent'except the EPA nay aljzs:

. any applicable deadines [o'tber h.: "Redesignations" under section 111.H.3 (Previocsly designafed nonc!:oi1:me.7!). at:awenl to the extel! oi this document If the area's average expected . . (31 ,VSR By November 15.1992 all exceedance rate was more &an 1.0 necessary or appropriate to assure

ona attainment areas. inc!ucZn.g . d w Q the 3-year period 1985-1%9. it is consiste~cy submissions. arr,ong the required . . transitional areas that have failed to violatiza the standard However. if L e

(51 NSR By November ls, lsel 22 1: , . attain. must submit ruler to implement area's design value was less than 0.121 Ozonehonattainmenl ir.duk9 L

, . &e new part D NSR requirements G d e r ppm below the b e r h o l d for wsch it submargiaal areas (boLh C.tegoy I I: section 173.' In the meantine. the ! i I I w n ~ b u t e ' to sn h n a w h pollu-t !met &at

Category appmYable must submit rules in form lo EPA to implezct 1;

l If r tranrftional area h a not recorded m y would take t.!!e m a out of wmpUnncc U b e m a is 3 . . . ..' 6ohtjonr by fi. 1% u d ia in the . found to be O U ~ of c o m p l i m d b e ctatutoy Ihe new NSR =quiremen'' under .: process of developing a mintenace plan per deadlines lor adopting amended par: D pebtting section 1/"3. the IIleantklle. !he !; i . aecrion :WA. then EPA may not requL! d w for rbc poUu~ant h qrnadon haw pacad EP.4 e.xisting part D NSR requirements 1 : 1 i a o n a ~ ~ r t ~ e n t NSR d e r However. there m a r may C O I I J ~ ~ O ~ ban Punm lo remain in effect

nut c~nrinuc to apply their e x i ~ b a SSR program 11J(al(jl c u d time the m a rdoprr a p d D or comply with NSR pernitdq rrguirrmnu of Propapan =&a% the NSR rrquirtcezb of th Lf a submarginal area does r.ot have

1 .! 40 CEt pan 51. appendix S %or to redesignation, -1 'an approved part D ?EX permitting these rmaa .LO mwt adopt md be preparrd to * Readerr am reminded that for p 1 ~ 7 s e s of program. and the State wishes to issce @iemot a p d t ~ p- bat uthfiea the deteninica e x n d ~ c ~ excedancs ia r daily pennit for= major stationary source C! requimmests ol PIUI C ud =A's rquhtionr l-hourmirim* whichia b q w l ~ ~ ( F e a l ~ ~ . major plodification in -that area, he . .

1; kplementing the PSD propm. Airas ahould 012.5. In order lo be JnasLGed undm T able I ccctiocl coatida Qe d for offsets under the p& C . l e ~ [ a ) [ l ~ r desirpl "due must be tqfal (prater State pernit mlist comply yt)l the . j . propi i to inswe rbst M.W ~ ~ v c e s do no1 ' a u k or ' than .lx. requirements of 40 CFR parl51. .

- . - - . . . -ap2en&x <un!il'lh;~-tate adopt3 the , a tm&port &on h th; ' m e of a State . =dac&eit h' ikrdm;e'with &e . '

necessary p& D NSRprovisionn - .eubsequenUy included in a transport ' '..--. schedules contained h.each of be (61 Redesi'gnation to at toimenl In 1 . region under secdon 178A The , - ,.' ... - CIC'r The CK; document in Appendix

order to be redesignated to attainment . discusion heie will focus on the *oh ;. E l s b CK;'s EPA plans tc bsue 5e State must demonstrate that tkie five eshbhhed under owtion 184(a), and, . &deiiection l ~ ? h i Sh!es should ~desigiation requfrements (i-v) inder : for convenienca;that region will -. :; ~ f e r (0 b t d-=!t.-. y-:.: . . .

rection lm(d)(3)m have been met. See r e f e d to a i t h i Northeast transport ~ d & ~ ~ , 'g&tion-lMfi)(i . . .

section W which describes the . . r r g i o ~ b C i k ' t r a ~ ~ j ~ ~ r t @OIL .U .'' pmGdes that VOC ~ o ( L ~ c ~ ~ with tte : specific actions that will determine other -tiredom '(< -'. potentid to ernit at least 9 fopr per .

compliance with.iach of these '-.- ; . . established under *on i 7 8 k states' ye, ,.dectivey rubjat to the . .- 7 :; --' , - -- ;- h these -@OM m h t als0adopt and - . rnOdate lru nmfore , . . (dl h c o m P ~ e & ~ a t a orno d a N 1 ) ::I; hplement the sped86 cbnhols ?::?- belleves u t be d e d u l e for - - .. rnu-~kLr -& h 8 d .hve in ': : d i - d be low;^:;^^ (.- ? .ly::6.2.?.!:~;~~-. ttiog .md imblem~ting.thcse .

the @troductios all nonatWnment :.: :;;i (I) Wb+I/M-A State $& thCS!2- ~ C T des-+ju ld be mnsistdwith . areas, bduding ,hamplete da@ or.no _ : hnsport region mYlt idopt a piogram j-; .& r~6&&b 1w1(21 &ta arias. are rubject to the .-. :. :. :-,: 'pursuant to se&bnl84(b)(l](~) mee* .....,hlch rrq-, aubmi!tal b j , , ~ ~ ~ ~ ~ ~ ~ - requirements in subpart 1. Specif idy. .I the iequir6ments.of kction 1qc) (3) , :::;:' md imblemenhu9n tter :

section 172(b) &quires a SIP revision . ..:: "Enhanced Vehidekupection and .-;::.I:'. than.uaY 31,'1985. :,;': 1' " - .:" '; . ,

within 3 years of designation . -. . 1:: ..:: Maintenan? Progrik" for any USA (or. . ,--*..- .: . - -! . - .. . - (3) NSR for ,VOC sounes Since : U a Statesubmits a request f o r ,! - , portion of MSA) within the State that . lYlbJgl rei-ulejthai sklonav redgignation to a t t b . e n S then a . . . has a population of 1 0 0 . ~ or more. The of YOC,hiving the pbldtid to proper a i d adequate maintenance plan. : A a doer not addre!. Iht cennu y& for e ~ t at least tom per be

- u defmed in section ltX(d](l)(E). m e t . this populatio.: EPA beleves the yeprof chidend mijDr sovrter lirbjcn to be'submitted, The discussion under . .: enactment (1990) i? the correct ye? to' ;*

.aRedesignatiwj,, section*- of this : .use this care.:, .--.-:.-.., :- - .;i.-. . .. ..: .-.- ! . the same k q u k m ~ t s .ha! apply to . * ; ' major sources in ozone ,&i+a's classified preamble deicribeithe specific actioni : . (2) RACTon VOCsources Each State -.

b a t will detepine with . : .. h a traruport.&ion m)at.adopt VOC .--;' as (secti0~.182IbI]* the State each of these requirements. . '- RACT ~gu la t i o lu for sotuses louted . .-. mGt NSR also,adopt provi,~ons p les to apply the mane pirt D

(2) NSR By November 15.1992 ah -. ' - *thin that pdition'of the State included .:

Dune nonatta-ent a r e a s i n c l ~ g . . in a transport ~ g i o ~ l . ? . U n d e r section ::.-':. :tatewideg Wllcs' a po@on.O.fthe State incomplete <r.no.data areas. must . - . . ; - lW) ( l ) (B) . t he RACI ruler that hpply :T as a i n ~ O n . . .

. submit rules to implefnent the new NSR - to,sources for which a m G was issued-..' .re@on 17!342).n~e : . . . requirements of sections 172(c)(5) and- : ..: before br after kndchent must be - . .-:..-. which are due by November 173. the meantime. the ex+ting part D . submitted by November 15.1992. .- . .: ..199?!c1ude Wuliernents that a new Or NSR req'uirements rpmaih in effect. If Seition l&l(b)(l)(BJ specifies that the .: .mod"ed.majorstationary S o u ~ e ~ f U he area does npt have an approved part State must submit by November 15.. - and

,;(U NSR p'ermjtting program. and the . . - 1992 a plan containing RACT rules for . that source will an e . ~ s i O n s State issues a permit for a major covered by a C-JG issued after . offset prior to operation. l l e emissions s:ationary source or major modification enactment However. many past- offset is based on the ratio of a c k d in the area. the State pemitting program .enac!ment (3TG8 will not be issued by , emissiOri ofVOC total should comply 5 t h the requirements in November 15,1992; indeed, Congress did . increases in emissions ka t 40 CFR part 51:appendix S, until the not cx~template that all would be issued would result from construction a=? new part D NSR requirements become und Novem&r 15,1993 (see section Operation of the some. case. efiective. required ratio is at least 1.15 to 1 (t5e

8. Transport Areas laJ(al)' For that it would be

ratio applicable to moderate ozoc. impossible for a State to submit actual . R ~ C T r . e s reflecting of areas]. It should be noted that in kcse

Section 176A allows' the . the post-er.acment ( ~ T c ' ~ by ~~~~~b~~ areas c!assified as serious or higher. a Administrator to establish a transport l j 1992 nerefore, in order lo meet the . higher offset ratio would apply. SDIE region covering multiple States s u b ~ t t a l requirement the State mcst rules nust ensure that the ofisels whenever interstate transport of - s u ~ c j t an enforceable codhent to obtained for a new or modified poilutants contributes significantly to adolt and implement RACT rules for S la t ionq s o m e will be consis:?:: r v i ~ 5 violations of Lhe NAAQS. Section 184(a) so;ces covered by [ ;TG~~ issued after any Slate or regional attaiment specifically created at enachent. by strategies. A!1 NSR requirecents cT gar! operation of law. an ozone transport D muit be met for permit issuaxce. ' region comprising the States of I * Sedm 1i8A(a)(2) provida r pnxxrr for

mwiCyiq the boundaria of r t r a n q ~ f l M w . ' In nona t tahent areas w i t ! the

Connecticut. Delaware. Maine. - H O W C ~ ~ ~ . =A will oat .I~OW l dllry h h e . . transport region offsets must gecerally blaryland Massachusetts. New . rdoptlon of merrurer under section I&@) due lo i :. be obtained from the nonattainnct - Hampshire. New Jersey. New.York, State que!t 10 ?dude ex or ti on of h e State f-

, area !here the 30- wishes to . Pennsylvania. Rhode Island; and ' . : 'except as allowed by section li3[c] of Vermod and the CMSA that includes - -ion to ,,ider m u e r u for dehtioo d . . the amended Act Section lZ(c) allows. the District'of Columbia:=tion 184(b) ' .ma* qc idy 10 rr 10 mlnimite h e uncertainty . offsets from other nonattainment L-eas contains thespecific ieq'uiriments for Nyssn q r * ln8 plmrubmith11du.Z ' . . if the area has equal or higher . -

Yean hm-men' ( f ~ ~ N o ~ a I t ~ ~ P o n . nona t t ahen t dassificatiOn tha2 $e . States in the Ozone h a n s ~ r t ~C.OP) or9 .onths r f t e ~ ~ u b a ~ u e a t bdu ioa of an.. (a) Specific rq~uiremenfs. States ' ..

amr 13d m a p o ~ m g ~ o n - ~ l t h ~ ~ g h rec~oa . area where the so& is located z d ' . thin ozone transport regions must I': 'docs not rmcaUy di-r hdw mu& leu t h ~ 7 ., emissions from such other. area :. 1 : -

evise their S F 8 to include specific : ' enh.s'rte c l n b to fie wuimmmb- *< contribute to a violaEon of the s lcdard . D.4 h l e - t r edlqo 1;M r i e'stiblirhlng r . :. . . . :....:.. ..... .:.;. .: . . . :,~neasures by~ovember15. 1992 in the ' --:p- ,,,+,-by l paOn ir l : -:,( i:: ... . . - . . . . . ._.

- . . a . ---- .- . - .- : . -: . . .*J-2- - ..-.. -: - case of the region established by kction ,:*m,w, , b i k mion ind ~ . ~ : : ; : ; ~ - , ~ 1 1 . ~ mc rk a dew t i i e -

1&(a). or.withid 9 monthS of a u s i o n in -tquim-,eab. - . * . - . .: . --I..-- ..: .. '. . - . ' . . '.. . &e NSR firovt.LON. I,-.-. -.*.."' .. . . . .

. . . .

13528 Federa Register / Val.. 57, No. .74 / Thursday, .April 16, 1992 / Proposed Rules

in the nonattainment area in which the . of section 1lU(b](2] 10 adopt Stage If or reductions on i b own to demonstra!e. new sburce is located. For attainment measures identified as achieving attainment In these cases. the area is areas within the transport region. equivaIent reductiocs. The transport kelieved from certain requirements in guidance for location of offsetting provision is a separate reqbirement that the CAW that would require additional emissions at W CFR part 51. appendix S. focuses not on Stage 11. but on rceans to controls. There is no explicit recogzition " should be followed. Appendix S get reductions equivalent to what would in the C.M of this occrvring in other . specifies that emissions ofisets for VOC be ac??eved under section 182(b)(3). situations. may be obtained from s m e s located (b) Otherrequiremenk. The transport ~n general hvo situations exist in anywhere within the broad vicinity of - region or portiorw thereof may also be which an area might be subject to the proposed new'source. Gnerally. subject to additional control additional emissions reductions VOC offsets may be obtained if within requirements resulting from requirements related to the be same Air Quality Control Region recornendations from the bansport demonstration of attainment In the Lxt, (AQCR) as the new source or from other commission under section lM(c1. Lf EPA an area might be receiving such higj areas that may be contributing to the . approves a recormendation fioa the levels of transport that even if it re2l;ced ozone problem at the proposed new . conmission submitted under section its emissiori dramatically (e.g,IoteYy source location It is desirable to obtain lM(c1. EPA will issue a finding that the elimina!ed its own emissions). Be offsea from sources located as dose to SIP for the appropriate State(s) is incoming ozone and precursors wou!d .

Be proposed new source si!e as inadequate and must be revised within 1 be high enough 10 continue to cause possible. If the proposed offsets would year to incorporate the - violations of the standard beyorid L:;... be k o a sources located at sea te r recom.endatiocs of the transport applicable attainmect date. In the distances from the new source. the commissior, second situation, the area nigh! be able reriewing authority should increase the Each ozone nonattainmect area to achieve additional reductions ratio o i the required offsets and require located wi*in the transpoit region is (beyond those required under secgcn a showing that nearby offseb were still subject to the applicable 1321, but even where t!!ose addi:ic;nzl inves5gated and reasonaSle alternatives reqlrl-eaents for a denonstiation of reduct:'ors could be achieved to were not avzilzble. attain.aent under section 131 (bj(l)(A) democstrate attainrr,ent. Vze queskn ne PSD provisions of art C (n well and (cI(21. The EPA realizes that in szme arises whethe: it is equi:able to resci:.~

2s the nonattainment provisions cases certain demonstrations will be those :educCons or to.zllow more L.-,c discassed above) continue to apply to - complic2:ed by the RFP requirements for the reduc5ons in t!e "upwind" a:e2 stationary SC-aces in the areas and a t ta i~nent deadlines that app!y to to take place. As described above. designated attainment or ~c lass i ! iab le areas of diiferent dassificatior.s.12 For hcwever. the statute provides no . &at are withir? the ozone transport example, a moderate area located express relief for t!!cse situations. Tias. regicn. Title I dces not exexpt these within the transport region is sti!l where t!!e dexonstration of a:taiment socrces ficm the PSD requirements. subject to the Byear attainnient is corr.plicated by transport betwee2 Liketvi!e, the =ajar staticnary source d e a d h e and the section 182(31(2;(Al tivo aieas of different c1assiCca;ior.s. k: thresholds defined in the PSD rulas requirement to provide h u a l einissions State is sE!l respc.rlsible for develosila ! !

contince !o apply whel ds!er;nicicg PSD reduckns in its plan to attain by tLe a i d scbmittixg demcnstrations wfiic3 ap?!ica biiity. deadline. However. this area is (a! leest. show t ! t t the stendard wi!l be attaizec!

(41 Gaso]ifle vaporrecg:-e.-/. section ~ r e s ~ ~ t i v e l ~ l being affected by by !h2 applicable date. In o4er woris. 1 ~ ( b ; ( ? ] requires &e A&.i7Askator to transport froxi another area(s] a ~ d is. as t!e State aus! pro~ide for scZcier.! cozplete a study ider.!ifj2ig control well. possibly affecting other areas, emissions reductions on a schedcle t!!at zeesures capzble of ac!ie-.kg i:se!f. If the "other" areas that are will ensure attainzent iil its rr.cderzte

aifecvkg air quality levels in tL.is ezissions reductions ccm;arable to ares. for exaqle . within 6 years rk t r &ose acSievable tlirocgh ve>icie nod2:ate area are classified as seriocs er.ac:;r.zr.t. The EP.\ believes tha: :5e r e ~ e ! i n a co;ltrbls con:air.ed in section or severe. those areas will be redxcizg wordicg in section I53(b](l)(A!ji) l82[b](3) by November lj.la93. All their e;r,issions over a longer t i m i iaxe rzq~ires <:e :o develop 2 pla.: 2;eas wjtbjfi a *ansport regon are then in 0'2" to attain the standard. That is. pros:iding such enissiocs ret:c:io;.i. reqcir2d. w'tf..in 1 year of coEplecon of these "ocier" areas could s:iil be kaci.?g The area does ;lot have the o~!ion ci this stady. ta adopt and sa'ciait as an sigr.iiican: efiects on the rr.od~it:e area requ@s:ir.z to be rec!assified :o th2 s;? ie.;ision t t e coapa;able Zessures or at tke tine when the moderate ere? higher c!ts;ifica:isc. tke secticr. 182(b)(3) Stage L! vapor must deziocstrate attainnent. Apthis time. E?A is not sure to x::a: recover- .?l?asures. Howeyer. pmsuant AS discussed within the ccil!ejrt of degree t t e situ2:ion described abc..-2 i; to section 182(b)(3), ozone de~ozs t ra t io r .~ for modera!e a r e s P A likely to occ.jr or kpow of acy case cocattainment areas classiEed 2s believes that this situation is sor;l.ervnat where ~ 5 : ~ will be a 1: sac> a moderate or above must adopt and, analrgous to the situations addressed iii situation were to occur. to submit Stage 11 ~ J e s by November 15. sectioa 19?(h) for RTA's and in section look at be facts specific to that erez. 1S9Z.Althoughmoderatenonattainment la2~)f0:nult i -Stat~ozone Consideratiocs would include ts.e areas that are located wihin an ozone nonattairment areas. In these cases. the .results of the area's attainment acaiyse tiansport region may become exempt 19% C-4-AA recognize that at some along with any region-wide mode1:kg from t!e section 182(b](3) requirement Pint . an area being affected by .

results in e v a l ~ i i n g available SIP due to the adoption of ozboard exissions from another arez(s1 nay not approval options. When such areas

.regulations (see section 202[a][6]) such be able to achieve sufficient emissions develop the demonstration oi a:taiz~el t areas will remain subject to t.e due in Kovembe: 1W. they should transport requirement of section . 31 R e Ciswsion here regarding a-2, wit?in an ' provide a comprehensive assessner. t 0

1M(b!(2). The exemption and waiver eAs lh# transport %ion nlao applies to areal ::at the impacts of all con*ml measures ire impacted by ozone and precmor baraport but ~rovision of "ction "'(aI(6I applies are not yet in hsnlpofi regions. Themfore. muc\ of being implemented in both the loczi an

only. to the section 182(bJ(3) Stage @, . hi. &c~ls ion a[w 0- under rechon LL~~J.(s~. :upwind areas. States should c1ea:iy requirement. . not ._ to . h.e . the requifement . . for moterate arena . . ' . . . . _ . . - . : . . show the eqtent to which the downwin

4 .. I.. . ... ....... .... ' ) .%. .. ... . ' :.- .

-. . - . . . ...... . :.. .... . .. _ .. ' . ......... *.7... : -- ::. .: .,.-: '<. ...... . . : . : . :~&;rd ~ e & t e r ;]~-~0~:57,'~0;.74:~.~hitr~dai,'~~ril 1 6 ; ~ ~ & ~ ' ~ / ~ ~ p o i e d - R& ; -.;- ,13329 -

. . . . . .

-. . .

.. .... .. ... . - . ... . .

...

. ... a 31.

31.

..... ..:.... . .. ..... .

. .

- . . . . . .

......

measures.

is cal l ig on each multi-State ozcce State amas to a SIP containing determinatio~ are proceeding. i(a&er. nonattainment area to develop a joint an attaixlnent demonstration stated EPA believes these areas shodl 'ce work plan as evidence of early diiierently. the requirement for @d prepared to readily adopt rules azd cooperation and integration. The work modeling imposed on multi-State complete their emission inve9to:es for plan must include a sckedule for moderate areas by section IEU) the Cn5re hlSA/ChlSA should i: ke developing the emissions inventories. supersedes the requirement to have the concluded that the nonattainme-t the 15 percent p rc ;pss requirement SIP Kovember 1993 tralumittal contai? bouhdaries will be the MSA/ClfS.l. T;:e revision [if applicable], the 3 percent per an gt:aiment demonstration Instead, EPA will require those submittais. whic5 year progress requirement SIP.revision for ~ r a c ~ c a l reasons, the requirement are due by Kovember 15. I P Z to (if appIicable). and the attainment imposed by section 182[i] implies a need adGess the entire nonattainme-1 area demonstration for the entire multi-State for a November 1994 SIP revision In addition to the two dassifiutions. area. Each State within a multi-state reflecting provisions needed to attain . some nonattainment areas do not fit into ozone nonattainment area is responsib!e the NAAQS as determined through a the classification scheme and are for meeting all the mquirements relevant grid modeling analysis. . nonclassified areas. The CO secdon will to the given area. The effect of this interpretation bf describe the requirements for all areas

. . . hfarginal multi-State &one section 182 (bl (c) and [i) is that the . (moderate and serious and the'spcial nonattainment areas,are.excluded from .timing for SIP submittaliin moderate classifications] in much the sane Kay undertaking photochemical grid ., inter-State nonattainment areas is .as the 1990 M describes the . modeling for submittal in attahment . identical to that in serious . requirements. The requiremenb &re

--,. demonstptions by section 182[a)[4], ..:'.: nonattainment areas. That is, a SIP ' additive (i.e.. a serious area has to meet ich excludes'&y marginal area From revision providing for 15 pi+nt .- . .-: '..all moderaterequiremen6 and ail

e requirement to submit attainment. . reductish in VOC e&ssions f i m 1990 .. , seriolis requirements; etl) . ' . . demonstrations. (The EPA b.elie.ves that - . :, .through 1998 ii due b$ Noi;ember199~ : Requiremenb d i s v ~ d for rnbd6jate. ' ,

lhe s e c ~ o n 182[a][4] exemptjod . - ;..: . A second SIP revision &ntaining. L .I' .. -..:.:areas w a b e Apeated for'seriou areas supersedes the applicability of the multi- necessary provisio'h td demonshte ' " only il the requirements are met en^

. . . . . .. . . 13530 . : Federal kegister ;/ .Vcl. 57, No. 74 / ..~hursday. -April 18; 1992 / , h p o i e d . R G I ~ S . : I .. - - . . . . . . . . . . . . .

1. ~odeate .Areas 127 pprn and Below . emissiom for all of the% base-year : .. : skingent Requirepentsfor th&e,Ihi . . . . . ...................... emissions inventories under the Act . p r o ~ ~ a r e contaged in sectioh ... (a) G 5 i i i r ' i n v e n ~ ~ Section Moda k t h n D ~ , . 182(a)(2)(8). This.section rrqutes EPA lw(a)(l) requirrs U, !:: Region IX in dtitermhhg which mobile ': to review. revise, ipdatc .nd.repubbsh submit by November IS. 1992. "a'

-

compreh&i"=; iwU +,n*: . .. . . . model t o n u f e e j o o f e : . . :. id the F e d H Register withldl year o i . bvcntory of iqb-d(mlsi,jh ~ b - g : , enhancements in the r y h e d model am enactment. the guidancc for , - .

50urCes, a; dir&bed 3ptio,i; . . . . . . Mernal lo the model and do not directly pro- required by the ~ c t ~ t a h ~ . .

flz(c)13)i;prift bisey.eF. . affect the use for base-yeak..hventory into. consideration the Addnistrato~s jst bc$ubmitted beeeSi , lanuary eOiission factoigeneration purposes. ': investigationi arid audits of such '.: . -

arid ~~j~ 1,.1992 .ne invdtory b , The reader should refer to.EPA's progiaM In short 'lhe moderate areas .'.... - . . . . .

deftred kse ye% i,.,,,,intOry &d .I; "EmiSSion InvatoW ReqWments.for . . must mab lbh &s&q I/hd p,16&ms . . is i m ~ L n ! , t i y ~ - t o ~ ; ~ - m ~ e ' ~ ~ 4 -.;I .. Carbon hfonoide Stab'hplementation and make comctjolu to those programs - i,.,terpreb the req-aeettthat .--: Plaid' for more ipfonnation. . .:. .- , . to meet rd r t ing I/M p o l i q when :i i : : bventoiy bF amt- to that it :.The Julyi9gl.@dancee a40 contains - : -updated policy i i p d l G h e & t h e s & ~ a s

. infomation vl'ated to aome area and c.. must submit revisiolu to addresj any - '- .. an 6ventory for 1990 (year of ..... - - . . . . . . . . enachent)- The hen to ry i;r to . ,off-highway mobile source categories ':'i. revised g u i d a n ~ :2 .: :." Y:r...-.

. a c ~ a co e&s&jng dudng the m that . m y S-C+~Y gec-t how .. - :. .: . M o e spe~cally;~secl ioh 182(a)[i]@] . 8eaion foilhe &a (gener=Uy he winter emissions are to bedetermined. For. :-. : kequines States to meet the basic I/M ,: . .monh). +stationary point , - these categories (railr~adxand a i d ) . ' . :perforniance itandard thaiha jbeenia

. hig~way/no&&),w~y mobile,;and OCS. : :States must use the.new methodology: - i effect sincel~.,Qat'peifofimcecece ; . . - rources (3 any) -- to be included i,,,the. and develop new emission es'limates. " stand* 'is based on a ."riidel" p+m. . . - . . : : . ,:! : 1 Thestates will also berequired to .: I . :- d & i p comistingbf a'&:&&ed.,--; . . compila tioii' . ..: :... .... : . . one:of the 'kt steps deyelo& I develop new 1990 bas$-j.ear inventories . progain that a ~ u a l l y tests'tailpipe : .- ' . be base ye& hv&itoc- the statesare - .for highway mobile'sources that account. emissionion all lightduty vihidej .

. ' .to prep& aa pp, whichis d ~ ; in fial : f. . for fleet tumover, Gad constniction - . . - using'emissidn standards for l 98 l and form to EPA by: ~ c ~ o b e ~ 1.1991. m e ~ p p ..: resulting in changes in VMT patterns, . .: later model vehicles of l i percent CO &Duld iodude a brief 8tatemen!of b o w and in speed h i t s . T6e.new and 220 ppm.HC and m pkciht - - : -

. the Statihtendg.'!o ddv=lop, do+&$& . : 199l @dance on MoBILE4-1 and off- ..' stringency for pre-1981 vehides,~' . . , . : &a ;ub~fib-hven'ti,ry. eo the iear ly , . highway mobile sources guidance OD : compbance'rate of 100 percent and e

. .. . 'step in the hventdw develop&&t ; .; ,.I .w should be consulted . . . for additional waiver. rate of zero p k e h t aismed. . . . . . . . . . . . .... . . . . . . . . . . . prociss'is piip-g +=:point s6urcq ." ' . detail. ' .' . : . . . . .States must demonstrate'q emission

. 'portion of the base year inventory. The EPA &dance shduld also be - . . - 'redcction for the IIM pro(pam @duded Updated plidaiice 'for prep+g . . - consulted for information on how to - .. in the.SIP tha tha t least @s great 8s &at emission inventories was issued in May : acco,unt for rule effectiveness when ' -produced by the 'hodel?basic prp-

1 ~ ; howevbi, &e'pbint source podon - calculating emissions from stationary . (or the program alrdady induded in h e - is essehtiauy the same as it w+s for the .. sources of CO. Rule effectiveness is a ' SIP, whichever is greater);usirig'&e'.'

~0~t -1987 s p s : ~ h u s , Stat& should, measure of the ability of a regulatory most current available version of EP.Ys - have h a d y bdgun gathering data on ,. prO@XIl to achieve all the e ~ 9 s i 0 n mobile source emission model. The IDi

. . . ' reductions that could be achieved by full programs are required in the, urba&ei point soune,'emissions. States are . : encouraged to submit the point s o m e ' . conpliance with the program by all . area portions.as defined by the Bureax

portion of the inventory to EPA as early ' sources at all times. For the purpose of . of the Census, of the nonattainmest . . . . . . . . . . . base-yea: inventories under the 1- area. a s possible. ' ' . ' States that have fully completed ' ' CAAA, EPA will allow the use of an @0 The EPA expects to issue the polic:;

portions,of their base year inventories percent default value but will also g k e ' for areas in the near fume; r a e z for lS87.1988, or 1989 may request EPA States the option to derive locrl publIsfied. the policy will itate the de:e approval to update these pcrtions. ' ca:egot).-specific rule effectiveness when such programs are to be Ot)..e.-se. States will have to prepare a factors -4% some tightly prtsc$bed implemented. The EPA intends :o accw completely new 1990 base-year . gidelines discussed in the p id2~ce . all areas ample time to adopt ~d '

i~vectory. Guidance on the pocedure to Finally. the reader should refer to submikrequi-ed I/M programs. induii-g reacest en update was provided in h.Iay section llJ.B.6 for additional i n fo~a t ion . I/M corrections under section 18:[a;(;). 1 ~ - ("mcer',ures for te preparation of ' related to base year inventories for States that have both basic and

I Ehissian Inventories for Carbon

I multi-State nonattainmect ar225. enhanced IIhi areas may opt to

Monoxide and Precursors of Ozone. . By meeting the specific ic-~en:ory implement edenced programs in a!l Volume I [Xevised]"). However. for . . , 'req'lirements discussed above. h e Sta!e affected urbanized areas. States WE&

1 P"qoses of a c w a c y and compliance will also satisfy the general inventory are only required to implement basic with &e goals of the 1990 CAFA, EPA . requirements of section 172(c)(3). . ' pro'grams must submit SIP revisioru ior

3 encourages all areas to prepare new . . ' (b) 1/1\.I comcrions. Section 18:(a)(?) 1/M program addresskg any revised

I . IW base-year inventories even if they - ' requires States with modezte CO policy. The guidancewill cover the. akeady assembled base-year - nonattainment areas that already elements of the SIP revision inventories for 1987/1988/1989. include IIM programs or that were As mandated by section 202(n). t i e

The EPA issued an updated version of required by the pre-l3s0 Act to indude Administrator will promulgate , - hIOBILE4, its mobile source enissions . I/M programs in their SIP'S. to submit to ' regulations requiring manufacturen :o estimation model. ineJuly 1m. The - EPA immediately upon enactment any . . install diagiostic systems on all new . .*

upda:ed version is MOBW.1. and i t revisims necessary to provide for a lightlduty vehides and li&tduty'tr~c!! i, reglaces and supersedes its predecessor. program no 1ess.stringent than that . . . The p q o s e of these systems is to . t. States, except for California. &re.' ' ' required prior to enactment or . : . identify and track emissions-related . required to use MOBILEl.1 in ' .. committed to in the SIP in effect at the . 'systems deterioration or malfunction. . . determining highway'mobile-source . time of enactment whichever is more According to section 202(h)(3). within 1

- .

. - . . . . . . - : . . . .- . -'- .years of EPA's re3ulations-'.- by refhen 01 'm&ke ten'within the . I-.:- ,. : .(2] ~ & " i & y n ~ . & h t ' ~ *&idej for ;.-.. *- --requi*~tatis todo so;all States.with ;- larger of the MSA/CWA codtaining the-- a waiver ,hm.oxygenated.gasoline. . . .

. IJM p&&mrist amend the$ SIP to .:: : nona t t aeen t area. These gasoline .' r:- req*m&b under &rtaincofiditions piyvide for.inspiction of-these onboard . .content tequkrnenb app!y during the '. . desuibcd be1dw.A Gaiqei h m the .

. . . * , . - .

diagnostitSoystems. The EQA ivill issue: time of the'year: de-ed by the.:: -.L. oxygenatedgasohe .&quiremen& may .

.. . . &+sed I/M @an& wg& add$ziSes '.I ; Adrhinistrat0r.b be-whenthe area is : . . . be g&ted to a State which - ' ': ., - - - . r. -. . c . . - . o n b o i i t d ' d i a ~ o ~ ~ c ~ p e & o ~ . .. .,-;..;, ; pmne to high ambient CO:>-;. .: i:: : '- .: drbolisMtes to w s that -

. (c) ?&ibdiiC inveiztoly. Aqcording to ; , - con.ceptra lions. TI& yearly period can . ,:; . using oxygenAted ga'soline would . - .. . .. . . . * . .' . ! .

.. rection i&'fa](5]. modea'@.CO ;. , ,: ::. -.>. .be upected.to be no less than 4 mon thr- .:preent or bterfae with the-atta ' ient 1..

. . ' ~ - n o n a ~ e n t , & a j . & r i q ~ d 10. ..:, 1.-. The EPA.@iued proposed guidance on '--:-by the area of a NAAQS a Slate kt : ,- . : - -. : ~ u b ~ t ' p e n @ i n i r e n t o i & ~ r ~ g by .- ..the l q t h of t h i ~ o n b l periob OF July : : lo@ ambient air.Quality standard for F . " r . - . SpJember &19&:iiddihkn evgry 3,<i,'.9,199l'(58 F&31151). -L <=:z-. - e?:: .-. . . .. '.. . any air polhitant other t h i 'CO:K . ' -

k.. , --. :.yean th&k&tk'@til the aka$ i;.', .f- Staieipay: a t theif option indud?:-j.. , ~m- the 'm j .gen ; i f ed~o~e . ':. :- . iecjeiighted Ya t t ihbd i n e perio&c . p + v L i o ~ for d & b l e o t s b l d o x y ~ . .::' ..:: . .. ~ q u ~ ~ ~ n t . @ y . 9 ~ a l y O b ~ i ~ ~ e d . p- . .. .. . - _ _.. _. . . .. 1: -r - . _ _ ~&ver i td j : sha l l~me~ ..... ... A * , the.:#Gf;,.;<..-.5!;:.=5 ~dib.~the~SIP~~iri 's iom1Under Such-. .upon demb~hl ion .b i : the stht,j . .

... :. . .:requirements as'!he baa Wentoe.,::'a p~@IL!.~a;dliKl'e' .. %th :. . ithigher. -. . :::. '.> . eatisfactibn-6f,wA that &ile ,ources : .. Additiobd ghid-wce.ij ivai!abre,od"~. :: oxygen.+ntent-than required could . ;-: .;G, of co do cohtribute sw&uy to ., . , P ' - ...- - .-

9 -: . ~ in+ex i to j ' p io i ed~s [leesection . ...: - .:. .. ... ,-. a:--. : :. .: '. . - offset gasoline *th alowerloxysen .:. .'r :.CO ieveb i i ; - t h ~ . a t e ~ , ~ i a l ~ y [ ~ ~ may ._ ' ,- ..a- . b- . . 1 . . . . ; - . .-.. - . ... . content @aIi?~quir6d.,lhe EPA issued ; .;:.Giivif&i ye& the efiective date-.f he 7 : .. . . .' . -By-meethg $e?pei@c perio:dic .;. .--. . . ..: piopd9ed giidelindr for such marketable : :rnquUeient fog oxyi&ated gasoline 'in . . 1. inventory req+remerits 4s+sed . :,. : oxygenkedit prb-s-on'July 9,1991 .:: nbnattainm<ntarea upo-.petition bm

i;' . - : -.:ab?ye, ... . L thiState.will.also satisfy the, :.. ';' '(58 F'~31154j.'i - :.?.. 2:; ."::.:.:. :-.:.-: .:..;-..- . .

t'. , . - - . - geneyl iienodic h v e n t c ~ re4wemenb f..: At the fe-quest of a State, EPA will any penon'asserting *at there is an'.. .

: .: : inadequate domertic ,up;*,Y of, or ; - . . . . i - . . - - of t i o n 7 ) - . - : . consider reducing the time pe,riod - - ..: . dishibution, capscity fdr. mch : . . F:.:;- - . .

. , -. ,.-::.[dl Aiiairibreni 'd&oristmtion.'Nd < -'::' requked for '(m oxyg*ted gasoline :.:.. .

1;; - . ilu-mt dkbi.hti.aa? ,gi-df9r ,rmwg. me state demonsbate :.: .%genaed - - .. . ":ad.ditives necessaryto-meet the' -: :

. . . . 'modqateC0 irras~.w%en'the CO desi*. ' that. be+we.of rneteor6logicql --::i.'; .:: requiremenb; 8 EPA=,h+lhir ass,,,tion . .. . -. - - ..v&ie i j ijb&-otb~]o&;!' ;;-. : ... .;'::: .- ' . . - . . conditions, aiedu'ced period , y i U to bc he,To fakilitate EPArrview, all . .r (e) Qxygena ted fue l~~ l ] Sdedule.: :, ; that there wil l be no exceedahces of the :' cl=ims isse*ad be degons&ted .. : Section ~ ( m ) mq&s that SIP ; ". .' :i CO quality standard oubide of such :. Md do-ented in *etitioL Upon . . . .

. . - . . . . .r+"sions m i t a w okyjjenated fuel.. . : 1 reduced p e w The demonsbation I . : - .another petition agaiD delay . . -:. requiremei~berubmitted to EPA in . : should indude.codideration of ... . -

l . ; the eEectire the in a . .. . - adopted.foim bjr any qate'cb~itaining " ' meteorological conditions. pest periods. nonattainment area for.l.additional. - . . . . '

. a11 or pu to f a nonattainment area, for of CO emissions, and hidorical ambient . yiar.,ne EPA issued proposed . . / CO with a design value of 9 3 ppm or - - air qualitgdati, induding p e P peridds ; guidelines for waivers based on ...'

. .

i above based on.1988 and 1 9 l d a t a . 5 ' . of CO concentrations. The : : : - inadequate domestic sudply of, o r . . . . Section 187@) of the Act calls for SIP . denonstration.should use EPA- :: . .

_revisions to implement-oxygenated :" .' ' approved dispersion modeling . . . . distribution capacity for, oxjrgecated . . . . . gasoline requirements in certaid'C0 . tee!-iniques. -. :

. ' gasoline or oxygen additives on . . . ' . September 3.1991 (56 FR 43593). These .onattainment areas within 2 years of : - - For areai with a design value of 9.5

guidelines disolss the contents oi svch I: . - enactment Because section 211(m) is ppm or more as of November 15.1990

more detailed than section 187(b) and. based on 1988 and 1989 data, t5e pe!itions, guideliles for. and decisions applies to a greater number of CO .: - ' oxygenated gasoline requirements must on such petitions. as well as oker nonattainment areas. the substantive . generally take effect no later than . ' relevant factors. -requirements of section Zll(m] should Kovember 1.1992. For areas which have (f) ASR The part D KSR perzit

1 be followed in preparkg SIP revisions. a design value.of 9.5 ppm or greater for 173 ap?!:d in Co The design value is to be calculated any 2-year period after 1989, the nonattaiment areas. All codera:e CO according to the most recent .. ox:;genated gasoline requirene.lts must nonattairment areas wit5 a design va!ce interpretation methodolcay issued by generally take effect no later than of 12.7 ppn or less must subnit the Administrator pEor to November 15. Kovember 1 of the pear after the P T P O ' ~ ~ part D XSR p r o ~ a = s r.3 later ISSO. which is contained in June 18,1990 second year of the applicable 2-year &an Sovenbe: 15.1993. The pro\+sicr.s memorandum horn Wiiliam hxton. peeod. In both cases, the NoveEber 1 of these plans must be develo~ed in Director. Technical Su?port Division. to date may change based either on EPA'S accordaxe with the requiie~e-is of the Regional Division Directors. The . de!e.mination of when the area is prone sections 172(~)(5) and 173; The nejor statute provides that States with areas . to high ambient concentrations of CO, or . stationary source threshold for all. having design values of 9.5 pprn or - -on an EPA determination to reduce moderate areas remains unchanged at

. . above for any 2-year period after 1989, . control period based on meteoiological 100 tons per year of CO. If t!e area does : - e-g.. 1990 and 1991, have 18 months after. . conditions. . . . . . . . . ., not have an approved part D NS2 ... . -such &ear period or designation as : - ' . . Requirements for oxygenated gasoline permitting program and a State wisbes

nonattainment, whic!euer is 1ater;to , . .need not apply to the attairiment area ' to issue a pennit for a major stationary submit a SIP revision meeting the - ' ' . - outside of the CMSA or LISA. However, . source or major modification in such

-. . requ:kments of this section.: : . . . - . : oxygenated gasoljne requirements shall area during the interim period. th.e State . . The rension must require that any . . continue to apply for nonattainment perinit should comply with the /,+, gasoline sold or dispensed by re:ailen . : areas that EPA'redesignated =s . . 'requirements in 40 CFR part 51. .

.

and wholesale purchasers]consumers in -. attainment. to the extent needed to .:- .- . appe~dix S, until new NSR provisions . \_ 7 theriod.ttainment area must containnot. maintain the CO standard. The revision . . are in eflect. '. = .. . .

. . . less than 2.Y-pe~ent oxygenby weight.. -shall cover gasoline offered for sale or . ' - (g) Bump-up requiremen$. According - . . This oxygen'content reguirem ntwi1.I ...: auppl~.dispensed'trans~o~ted. or . ,:. - to section 186(b](2). moderate CO . -..._ I .. : also apply togasoline sold or ispensed introduced into commerce.. . - - -. . .

. .nonat tahent areas that fail to attain . - \ .

:/. &hiid:&le$ --...-- ..:: -: ... .- .. .- - . .. ' :

select contingency 'measures for the . reduction of CO emissions- .:-: . - ..

. ; forecasted exceed3 the r n u l a t i v e . .The EPA believes that for exceedanu ' - 5 percent cap above the attainment ' : ;'. of a W f ~ m c a s t , one appropriate

ude . demonstration forecast, contingency '. ... ;- choice of contingency measures would rP 'measures will be triggered in the .: .be to pmvide for the implementation of n ' - .nonattainment area. These contingency .. ."ffif'cient red~ctions or mjssions er -measures are to be adopted and . -..reductions to counteract the effect of 1

' enforceable in the SIP; - ' - . year's growth in VWT while the Sta:e (b] Contin,oency meosvres. Section ' reyised ib SIP (induding Vhfl

.187(a)(3) requires areas with design projkctions) to provide for attainme~t b values above 1 2 7 ppm to implement . the applicable date. These measures contingescy measures ifany estimate of may offset either the excess VhfT in thc

.. . actual VMT in the nonattaiment area. - .nonaftai?ment area or the additiond CI e . or any updated forecast of VIMT" . - . emissions in the area that are . -.

-. . ' contained in an annual report for any .: ..-attributable to the additional VIMT. . .

a . year prior to attainment. exceeds the - . :-.. Sin? EPA will require the,State to a t -number predicted in-the most recent . . revise its SIPwithinl yeai of fin&

'

-- .. ; .VMT forecast Contingency measures ' - .that VMT levels are exceeding forecast '

. * . must also be implemented if $e area : '.. considering the tolerance discussed : t fails to attain the NAAQ? for CO by the-. . earlier,.the contingency'mea-s shou! 1 '. :'., attainment date, unless it is granted an. be capable of reducing VMT or r e s d t a ~ L

. . extension. For CO area e t h design '. : .-. . emigsions by an amount equal to the .. . ,. th . values at or.below.l2,7-ppm, :.. -.. - --.-' :. projected mual.growth rat6 for nfl. i.;

:. annual reports. The first forecast year ~cont ingenjmeasures are needed to : ' - Ln otfier words, if VMT is expected to 1 - -. should begin with 1933 (the f i s t . . : . :. - satisfy the provisions under iection .:- 1. ;i increase at a rate of 2 percent per year, :

-; foreceast year) and should include all ::: :.172(c)(9] and am dueby November 15; -....;-the contingency measures under this .- -. . - . - . fi . ; , ~ ~ i q ~ e n t - y e , a q g p l o . the . yearef : : . .-1??3. 8s set . by EPA # : . imderiertion . . . . ~ ~ ~ ~ b ) . ~ l t ~ ~ a t i v e ~bould br capable of -:.'-sL>. .':- . - .. . . _. .. ... .:. .. - . . .. . . . - . .

. . . . . .Federal Register. /-YoL r57,::Na. 74 /, ;Thursday;-April -18,:.1992 / :Proposed -Rd& :i3533 ......-_- - -..-... -. ..-- " . -

&icing future .w (olpffsetllng VMI EPA guidance. The pidance *rill cover ; ~ q u i r e & CoritinglncyhCasmr - .

p ~ w t h ] bf 2 p e k e n t .- . ." .,. ... .. the e!emenb of the SIP. .=.:i-: : ::. .-:.:- I ; : . developed in acu>dana ~& &on As &cussed above foi;'6'&de'&eai . . If a moderate nonattainment area fails . 187[a)(3) (set r edon W ] ) ; m u f b e 'A Interprets'theieqliitemeht~or ::. , to aW$ &e CO.&ndard by.December. . irnpleinented if either the;a.mu(ll . - . .

~ntingency ihe@e*es t~.~&.effeCt .:.., 31.1995, and ia re++sifiedto reriaus. ;:. es t imab of a h 1 M orany niw . . without fur?her action by the SLa$or ; : - an .edync& IIM prpgrammrut be - . , - . . I VMT foreursb hiccedr the cariitr :-..

.

the ~4mfi?shtor':ta'me~-that no:.,:: . , implemented if the area the .--:.?! . fomcasts Included In'the,state p l a . . . fur ther . iy lemw activities by the-. ' popdatio~criterion (urbanized area. .i. i .considering the tolerance &hstd '. . State or~~A,wodd.be.needed to:.,:', . population. as.+ed.by..the Censm !I:: abovc The fint anntlal-iepom for CO implement_thi'i&as~. Cedi* ,:' ,-:. . . B w a of or nkirebThe =A:.-,, amas 'design values aboie 127 . . actions. such'a$.notificationof soufces. 1 will. under-sect i0~18~). ** SIP ' " - - I ' ppm) ' m ' i be mbqt ted to EPA within g m o ~ & ~ o : f l ~ p e . p i ~ I r t ? e . would'..:... . . revhjop-tp pqyjd i for an'enhnced 3.:. .. months Pner the h t fun cal&dai'jrear pnibablybe needed before a m e a r ~ : l l l l M p m m . . m l h i n 2 yeu . of : r:..:=L..'.: . . a f t p the a t w e i t d(m<*etion could be i&iI1eh@?ed _. ...... eff~tiveljt,States . redesignation or re$assificatioq--i:r";c:-: due (~t, '&i-~.po;t~ ,,i,& &iub&~ed mwt'rh!w-eat de-u cpntingenq ' . j';;':.! : . As mapdat4by 2M(mJ the - . by Septdmhr l~) .~&<"e:; ;?p~*inust mehi res biimplemented with =-.. .: .Adminkbrator,fl pmmulga!e L--:.:.-; :: contain estimat".of a c h d in the .

further a&oli'on the* p* .and: -1 regulationjrequiring manufacturer. to 1.: , p r e v i o u j . ~ y e ~ , ~ f o ~ ~ ~ s ' b f . ~ 6 :-.:. . with nb'iddjtiiiid a&hg actioris.;f: install diagnoetic.spteiu on d new -2, .. f u m yearj,d verificati,$i-hat .:: - :

(c] Special NIe on T W s for Denver. . . ' lightduty vehidl6 and lightduty trucks: contingency meas%, are.be@7 :.*---

The riq&'m~ents of section lSi(.)(Z)(B) The purpose of these s y s t e e in to ... i . - 7 . . implemented the acbld ~ h n : ;- :. have the*iime'effn( aimectionr.::,._i 2' :identify and track emissions-related: .. : ertimat&for thep%vi,+, iirpiir or l ~ d ) ( ~ ] ( A ) and 187(b](~).'dimised ;'-:" nysteps deterioration oi mallunction L:;. for ei.,YYyear b t i l . below h d m lEB+(b) (TChl's '' : Aw.rdbg to aection mm)(3]. kith 2 ; the.att-e,.it iear=x+yg my-kiver . equivdcht I. ieveni ourhe T.P.). -:':' . ye& of EPAea pgmukating rkgdations forecasts i,jbe s ~ ~ ~ ~ , ~ ~ ~ K n!.klons . Reader. & referred to that disqs?ion::: .requiring Statesto do .a all Stater mth . m ~ t ilsb ,bar ,hat t h ~ . & ; i ; ~ l . . : ..- for a aedp l ion 'o f thiiPkquirement~:-~;~ I /M p m m s m'ut ahend their S P t o . sbrat,,$e;M beink imblebe'nted..&:...

(d) Enl,unced UM. S&ionl67@)(6) , pmvide for inspection of these o n b o d I pmjected in the p l ~ b ~ ( E P A to . requires moderate or abcvecO - . - ' diagnostk eystemrThe EPA will issue. Use -*d RPOltl tb-=kwb

-.

noaattainment uair with a design value: . ?vised I/M guidance which addresses ; forrust. cd&iithtwi& mn greater-thin w ppm to implement ::'.:: : o n b o d diagnostic @apectiom :.!: .:sY.r . eitimatei ~ d ~ h ~ ~ ; .ised;+, e n h d I/M progmu in urbanized [e) Attainment demonshfion. Scc(ion . ho iah= i~en t nrri-~uji demb!sa.t; arias %thin @e honattainment area^.^ :--.: 187(a)(7). ?Attainment Demonstration .. . : : by Mmh thjt it has li&kved -as defined by the Bureau of Census. :. -', and Specific Annual Emission . . .

. a reduction in emissions of CO - ' . i t h l ~ p o p d a t i o n s of ~00.000 or ' . Reductions," applies to CO . : .: . . ' '

equivalent to the total.of,the specZc aore.The section requiresthat the plan nonattainment mu with a design value aMual reduttioru rrqvired by 'meet the requirements of section . . pea l e r than 127 ppm at the time of . DMember 31. 1995. 18i[d:(lb :4c)(3), as dismissed in the section in . classification. A demonstration of . .

Lhis preamble concerning enhanced 1/M . attainment is required by November IS. hiilestone Demonstration]. '

in rrerious and above ozone . - 1992 and can be met through . . [g) NSR All CO nonatta&ent areas ona attainment m a s . . . . . eppYcation of a modeling analysis: with a design value greater than 127

In some cases, areas may have - following the guidance contained in EPA ppm prvt NSR propams meeting - kecome newly subject to both basic and "Guideline on Air Quality Models sectiom 172(c)(5] and 173 Gquire~ents enhanced 1/34 reqeements at the time (Revhed)." , . not later than November 15.1992i7 of enactment with the basic I/M ne attainmen; demoM&ation must accordance with section 187(a)(7]. . requirements due shortly prior to the include a SIP control strategy. which is 3. Serious h a s deadline for submission of the SIP also due by November 15.1992 The SIP revision providing for the enhanced I/M control strategy for a given ' (a) i~o jor sta'tionary source de!i.~!':ion. program. h su& cases. EPA regards nonatiainment area must be desiped to . As secified in section 187(c)(l). for enhanced 1/M requirements as enswe that he area meets the eeriou CO nonattainment areas il superseding the basic I/M tequirements, annual emission reductions necessary which stationary sources contibc!e and therefore will not require the for &aching attainment by deadline. ~ i ~ c a n t l y to CO levels [de!e.~.ked submission of the basic I/hf [f) Tmckngplm jmplementotion and acu)rding to guidance issued in t;?e May requiremen t3 discussed previously. Tb e milestone compliance. Section 187(a)[2) 139 1 . m memor~qdum from W i l l i c ~ ~ EPA will. under section 182(i). require requires Slates containing CO . . Laxton. Director. Technical Support SIP revisions to provide for an enhanced nonattainment areas with values. Divisioa to Regional Air Division JIM program within 2 years in areas , . above w ppm to submit plans that . Difectors]. a SIP shall be submitted by newly abject to enhanced 1/34 . .. . - . contain forecasts 13 of VM for each November 15.1992 that pmvides that h e requirements in the future as a .=ult of . year before the.year in which the plan <: fem."major stationary source" i d u d e s redesignation or reclassification;^ .'.: ' :. .. :projects attainment Subsequently, the . any stationary SO- that emib or has

?he SLP's for enhanced IN programs .. States.m"st submit updatM io ..., the potential to emit 50 tons per year or are due no later than November 15.1992 those'forecasb and report on how .. . . - more of CO. Lf sucb determination is not In the event that EPA'r enhanced 1/M - . - a-te the previous forecasts proved . made by EPA under section 187(~)(1). - -

rformance standard is not finalized. . . . to be. n e annual reports containing . .. .:. then -major. stationary S O U I ~ ~ " inclndes n enough to provide suffiaenttime .:. of must-b= preaprbd for . . a"Y stationary source that einits or has full SIP development EPA will use - :-:--each.parjn which a forecast was ; . .- -. the.potential to emit 100 tons Fer year 01 authority under lectioqll~(k)[4) to . -- . . - . .. . - - - . .. .._ . - ..; . I:-..:,.: . .. . . . - .+;<.= :.: . . , .;. -. more of CO. 9 :-. j:.. ::. : ; I :.- .

condi t iondy 8ppyYe 9rp submittala . , ; - ,,G4 & [b) TCM0s quivnlent ,k&ierioro.le cotqnitt.Q to adopt :do+able* I:;;:: :.;: .: th r c d k V M ~ ~,,ric;.+ and..!. ,,TCM'A Serious.CO areas [and Denver.-

. .enhanced I N consis!ent.with .::~ra&q ~uld.oca..x .;~.~;:.t;-.L:~~,-~s.:c-.i-.: , , .,.. .-- Colorado) must adopt'and implement '.

. 13534 Federal Register 7 Vol. 57, No. 74 / Thursday. April 16. 1992 / Proposed RuIes

enforceable TCbf s in conjunction with other control measures necessary to comply wit5 the periodic emissians reduction requirements of the 1993 CAcU The TCLf s. which are required to oiiset any growth in enissions from growth in \%lT and number of vehicle trips and to achieve necessary reductions in mobile source emissions. are due by November IS, 1992 States should choose from the list of T W s and other measures in section 108[r). These requirements are contained i7 section 187(b](2) for CO areas and section 187(a](2)(B) for Denver. See section UIAS.(d] above (severe ozone . TChl's] for a discussion of how to calculate growth in emissions from growth in nrr.

All serious CO areas covered by the clea-fuel vehicle fleet progran (except for aieas in ru'ew York State, should any such area uitimately be bumped to serious], as well as Denver, must explain why any section lOt(f) measuie is not adopted, what proposed eriission reduction measues will prob3de comparable reductions, or why such reductions are not necessary to attain the CO NAAQS. This requirement may be ziet by an attainment demonstration using EP.4 modeling techniques that sho~vs t!!e other adopted control meascres are sufficient to provide for a;:aizaent by the required date.

This requirement must be met by any s e ~ o u s CO area meeting the section 246 desaition of "cavered area." Section 146 d e k e s "covered areas" as areas wit4 a CO des ip value of 16 ppm or gea!er. exc!zhg those areas in which mobile soxces do cot contribute signiiicant!y is CO esceeda~ces. Of h e three exis:izg areas with CO d e s i g values ab9.z 15 FFZI. z.4 ailticipaies that oce ( ~ ! e Ste'~Eenville. Ohio aiea) may be 2b!e to show t3at mobile so-aces do r c t c::L,3s!e s i~ i f ican t ly to CO excedacces. Thus, at the zir.irn~m, this r2q:i:e~en: wou!d apply to *e Denver zcd Los Acgeles areas. Arezs t5at are cot "covered areas" are not required by ';-.is giovision to justify t!!eii rejection of TcLI'3.

(c] Ciecn-fuel vehicle fieet program. Section 246(a][2](B] requires that all CO nonattaivnent areas -.vi!h 1960 populations of 250,000 or more and d e s i p values of 16.0 ppm or higher. scbmi! SIP revisions providi~g for clean- fuel vehicle fieet programs by &fay 15. 1394 (42 months from enactment).

D.e programs must require a specified percentage oi fleet vehicles in model yeer 1398 and thereafter to be clean-fuel vehicles that use only clean alternative fue!s when operating in the area. For lig!$t-duty vehicles and light-dm trucks. t!e required percentage must be 30

percent in 1998.50 percent in 1999. and 70 pezcent in 2 W . and thereafter. For heaby-duty irucks. the percentage must be 50 percent in each such year. Light- duty vehides and light-duty trucks in fleets participating in this program for these node1 yean must also meet h e

.title LI dean-fuel vehicle standards for model year 2001. If lightdutj vehicles and ligktduty trucks of 0.000 p o u t 3 GVWX or less are not available in California before model year 2901, the phase-in schedules will be delayed accordbply.

Soae of the major program requi-ements include the following: That he1 providers make clean aitemative fuel available to fleet operators: that Federal fleets (except certain vexcles certiiied by the Secretary of Defe.. -se as needing an exemption based on naLtonal secwity grounds] be included in t?e pro-: and that credi!s consisten: witb D.4 regulations due 1 year Eom eracbent be issued for purcbasiqg more vehic!es than required. for pur&asir.g vehicles that exceed t!e esta3!isl;ed standards, or for p ~ ~ h a s i ~ g vescles pr;'or to the effective date of tke p r o z m . In addition. certain TCrI's may not q p l y to covered fleet vehicles consistent with EP.4 regula tions.

Fzeas where mobile sources do cot contebtite significantly to CO exceeiances may be able to obtair. a . waivz fion t!e clean-fce! progam. The reader is ieierred to the discussion in &is yeanble that addresses p - d z c c ~ on wsivers ior mobile sourcz iseiisli-es. seccon D.B.7. Ezd~ S:zte subjec: to the flee!

prcgzzn say submit a SiP revisicn by Kov?=;'cer 15,1992 cor.sis:kg of ?dly adop:ed control measures as a su'cs",?d:e for all or a portion oi tht c!esr;-5el vehic!e progran :er;L-.d by set:icz Z 6 . The s u b s t i ~ ~ t e aeascres nus: ceiaonstia!e to &e satisfat2cn of tL,e .:.&i~iscato: that the long-:ez :ericcriocs in CO enissi0r.s znd t ~ x i c substa~ces ax . at a niii ixuc. e?.:tl to those that would be achieved czder t!e clea~-F;el vehicle program or tke perce-?raze oi the ernissiocs ieauc:ioiis att<ou:able to the portion oi the progain for which t!!e revision is to substi:dte. Substitute measuies ma j not bc!ude any other measures requked by the Act.

(6) .tliles:oae und att~in~zer:! faiigres (eozomic incentive progrcms). Eco~onic incentives and transporta:ion cont-01 programs (as described in sec3on 182(g)[4)) are required for se5ous areas under several diiiere3t types of failure: Failure to submit a mi1cs:one demonstration [as de i ied in section la7[d)[l)), failure to meet the

.

milestone [section 187(d)[3)). or failure

to attain the standard by the applicajie a:tainnent date (section 18;(g)). Li a3 such cases. the State shall submit a ?Ian revision with such incentives with:! 9 months of failure. The EPA q e s sac5 a State to initiate the development oi c program of economic incentives a=8 transportation controls as soon as i: czn reasonably define the objectives az? scope of an appropriate program. without waiting until such a failure occw. The EPA believes that early initiation is important so as to auow :br sufficient time to deveIop. inpleme-.~ and evaluate the effectiveness of tke program. Economic incentive pro-s are discussed in more detail in sec<:.cn III.G.3.

(e) Long-term necsxes. The @.\ recolpizes that some seriocs CO nonattainment areas [and perjaps r-ess with long-term attainment dates fc: other pollutants] will have such !eqs emissions reductions require~enk :at identibig. developing. and adopL=z in final form the control measures that represent the areas preferred stn:ec: for their demonstra tions of a t t a b ~ e z t may present an unreasonable bu;le.t The EP.3 believes that these areas =ay need additional time to fully deve!cg and adopt certain "lona-tern" Gezsxes h a t would be the preferred neazs 13

reach a:taiment These measures t

would inclu2e those that req~ire \ J complex analyses and decision z~:c:3 and coordination amocg a n-=be: c i government agencies.

The EP.4 intends to a!!ow tkese =reas reasonable additiocal tine to ccc;:e!e full development and adoption ur.?tr :i: following conditio~s:

(1) The plan conta9xk.g !he demonstation oi atkainmezt =us: identify each measare for \v:?ic> addtional tiice wou!d be cee?ed fc: 5 deve!opsext and adoptioz.

(2) The plan z i s t s?iow tya; iL.2 I::.; ten;. measures c?nr.o! be $:I;:; developed aad adopted by *e s2k:l: i date for the 2!iairLae:! dez-iczst-5:::~.

13) The plan mcst coritair. an enforceable conmike:t by the :e:e*:z t agency that deve!opment acd adc~2c: will occur on an expeditious s&etLe 3

achieve specified eaission redcc2:ns f ion each long-tenn measure for e x 5 year through the attainment yea:. .

(4) The plan must contain "bads:o~ ' measures that would be implerne::2:! o achieve equivalent enission redscf or ; unless the long-term neasure is aicpt d on schedule.

(5) The long-term measures mcs: :c be needed to meet any emissior. reduction requirement before D e c e ~ k Ir 31.1995.

... -. . -J d - :, :: 2 ... . - A.

. ¶ 2.- 3 : - A , . ' . ;t .--. $,.';̂L

L .-.

~ & l d ~ @ t & : . / .VOL.S~;:NO: 74 / ThGday,'April 16,.1992 / hp'dred . . . Rules ' . -13535

Thtj 'bhchtopw mensures.rrquirtid . : EPA.d;s&bu are& as "not classified" nonattainment arc; from the pjSa h d e i ctjndition.4 mrut'bebubmitted .' . if they were: designated nonattainnient r e q e e n b is not allbwd by the A c t with the i s s z ; a w . e n t demonsfration , botb priorto iriactment and.@ursu@t to Furthennore.' the new.NSR program,is

i n fully adopted f o m T h e *backstopw section IOl[d)(l)(C) at enactmeif and if one of the.Act.1 major'bulwarkr for measures' must be design4 to'go into : - they did not violae the p r i m e N M Q S preventing fuither deterioration of the e f f d automalically on a schedule :;': for CO in either yeiii for the 2-yeG"': Nation's air quality.Therefore.:all sufficient to achfeve all of the redydons petod 1988'thro~gh'1989.~: ' ' ". " . - nonat thnent areas, induding %ot identified with each long-term measure . Although it a&& d e a i thafthe s-- classifieda areas, are r e q M lo adopt for each y&r thmugh the attainment , s p P c i f i c r e q 6 e n t s of subpart 3 of - - . NSR program meeting'ihe requirements year. The ?backstopw measures may .- . part D do not'apply'to CO rho; ' : - -. - . of section 173. asamendd' .'. . ' . - represent broad, acnus-the-bqard +'- .. classifiedn arias, the 1990 CAAA are .. (8) ~onr'toring. &@on 172 (bj and (c)

. r t d ~ ~ t l m in edssiorij, rather -..'? ' ' silent *-to ti& the,riiquirements of --..' ' explicitly states-that aonattaiqnent . thoroughly analyzed and developed : :: ,: subp* 1 of pirt 'D. whihi&.&itaids ' : ;' ' areas shodd meet.the':appli&blen . . -

control measures. F 0 r . W reason '. g&eral SIP planning req+rnent?for .. ' monitoring ~ q u b y n e n b of section .. - . does not anticipate the ai$ul 1 -I:,:.,:. ... . i- all des*ated:h&tti-,ent areas,:. - - - 11qa)(2). :..: -. 7 . 7 :..: '.:;: ' -. . . . . . . . implementation of 'ba@qtopZmea?u+' . should be interpreted f i r such CO areas. . (7) ~~riiins~i&';;;e'dji!~i*;. '. . .

. in most casesias States will have ample Nevertheless, becawe'these areas'are . ... Contingency measures'a& ndt required' opportunity to aubmit SIP revisions ::.:'- ' designated nona-ent. some aspects .for 'not classified" areas in light of the

; fnmrporating the fully developed long- '. of subpart 1 neCes;arilyapply. The EPA fact thai moderate '&as,with a .design term m e a a e i , i d deleting the :;.. . .: - . interpets the:reqikmenb under ' : : .. :. valGe less th&127 ppm are'exempt "ba&topW..meases h m the SIP. .:::'1. section'VZ(c) for these'.ateas belo*.' ' ': from the contingehcy measires .. . ' ' . . . . ~dditionally. If a long-term measure .. . Applicable revisidhi to.thi S ~ ~ . a r e ' d & 3 requiremint' i.. .::..: :: ...: . . .. .: cannot be developed. then the State has . years h n i desisa'tioh'md& sedan '. (b) Attainment dates for "not . . . ,

- the option to submit a SIP revision:. . . . 10;[d) (see 56 FR 5€694). ' -' .: . ... ,; : :. '. c1assified"aredi. Section 172[a)(2) . identifying a.f'lly developed and-:.--..-::-. (1) R A W Reaspnably'available " ..' requires'an' attainmint ddte i f no later adopted alternative measq.tore~lace : contrul mea j+i& required for area? ' than 5 yean from an area's designation the 0- lowterm prior : needing.to achieve attainment Because. as nonattainnient For areaj.designated . . m y i k s a r y implementation of c . - i : &?iifiedn area; niay be akeady.1 .. noiattainment under se'clion .:-. --: '. "backstop" me.mures. -.-- - .- . . .

. . ...:, ;. ;:.-:- ,,:- . attaining or .ire piesumably verj new . ' lW(d)(l)(C)[i) (pre-enactrent . a .- . . a may ka that prowss .... . .attainment. the EPA believesthat . : ' : - ; nonattahgnent areas). the attainment . can be 'chieved measures*at are hdditiodal RACMc&itrols beyoid what date is November 15,1995. For newly . fully de-+loped by the i992 SIP ...;:: ;. : . may . h a d i b e rrquir6d a t h e SIP are designated areas, the attairqent date

the'SLitc may not necessary to achieve attainment and will be 5 ye- from the'effecti~e date ol a determine that expeditious attainment . a, therrfore not rrquled. .

. . the nona t tahent designation For

of tht NMQS @.hpOsdble dess.* [~JAttaininent demonstmtion~;~tion areas thatfail to attain in 5 years. EPA .Lo measures which lG[a)[7) sp&.fically exempts moderate is considering one or more of the

cannot be.My unW liter the - a r e a .with design values less Lm 127 following actions: . . . . 1592 SIP L due. In its.lS2 S P ~ubmittal, ppm fmm requLins an htlainment (I) If an area fa& to attain 5 years the State dearly describe each o f demoustratioo Because these moderate from designation the area is buinped UP

long'te*~measurrr and show that amas areexempt fro+ this requirement to moderate if the area's design value is each measure c-otbe fully it would seem unreasonable to subject , at least 9.1 ppm . and until a specified t!is requirement to an area that was not [2) u an ares fails to attain 5 years date. despite expeditious violating the standard. Therefo~. EPA £rom designation the area retaias its implementation efforts. The 1992 SIP

presume that the existing SIP must Include with each long-term "not classified" status. but EPA will ceasure an enforceable schedule. requirements and any existing and tighten Subpart 1 requirements. Tnis binding responsible agencies to achieve future Federal requirements [e.g, the could include a showing of enforceabie Identified emissions reductions from tide II d e s ) will be sufiicient to provide rules or possibly a basic Ijhi proprr- eat5 measure. for attainment in these areas. [c) "Not classified" CO orecs.

Along with these provisions. the (3) RF?. A RFP requireme?! assumes a Violations are determined by L!. State'8 !992 sp Subnittal must include long nonattainment pexiod. fact that number of nonoverlapping exceedances --backstopw measures. ne w b a ~ s t o p w a "not classified" aiea is already in or greater thvl or equal to 9.5 ppn dxing ceasures must be fully adopted and n k attainment obviates the ~ e e d for an the 2-year period 198a-1983. If L!? scheduled for implementation to achieve reclui~ment . - number of exceedances ir. eiCie: year reductions equivalent to those assigned (4) Eniissions inventoq. h eemissions was w a t e r than or equal to 2. t;=e area each year by the long-term measures. inventory is specifically required under is violcting the CO NAAQS. When each long-term meas- is fully this section and is not tied to area's Once it has been established &at the developed. it must be submitted to p m a t y to attainment Moreover. even area is viola- the standard, the as a SIP amendment m s aqendrnent if these areas are already attaining or highest second-highest nonoverlappirg would also propose deletion of the. near attainment they will need such an &hour measured value over the 2-year associated "backstops." The EPA's Inventory to develop an appmvable - - period is the design value fcr t5e erea. approval of the long-term measiues ' r~aintenance plan under section 17Sk The design value'determines would also &k ind from the ST, the, Therefore. an emissions inventory must classification A CO area cannot be . '. ."backstopw rneas&s. . . ' . _._ _ _ .. . be included in the SIP revision due.3. - . classified submarginal because a desipr.

. yean from designation. . .. . . .. . value of <9.5 ppm is not violatkg the . 4, "Xot Classified v on attainment-! . [Sl N-. Like the erhissions iriventoj standard (i.e.. there are less thak'hvo h a s ... .... . . . . . . . . . . . . . . . requiremen4 the WR requirement is not exceedances in each of the 2 years].-and

(a) Ceneml. ~anclassifiab!e CO areas tied to hn.areaes pro-,ty to . ;.. . ,an afea can only be submarginal - . if i t is . .

. consist of -not classified" areas. The -1'- . attainment and therefore exempting a violating the standard. . . . . . .

13536 . . Federal -Register / Vol. 57, No. :74 Thursday. 'April 16. 1992 / Proposed Rules

(1) Requiiements. The CO areas : (3) ~ a i l w ' b attain. If a '"not demonstrate attainment an a t t a k e s t temed "not classified" are analogous to classified" area violates the NAAQS at demonstration must meet the - '.'

ozone transitional areas. The amended some time in the fuhue. then it will be requirements in section Iqa) ( i ) . Refer- Act does not provide guidance in classified in accordance'with Table 3. . to section mBs.(e) for guidance on subpart 3 for CO areas that fall into the section 186(21. Upon classification. Qe - developing attainment demoitration. 'hot classified" category. However, all area will continue to be subject to the Note that moderate multi-State CO nonattainment areas. includhq "not requirer;lents under subpart 1 and those nooattainmcnt areas with a des ip value classifiedw areas. are subject to several speafic provisions under subpart 3 of 127 ppm or lower at the time of of the requirements in subpvt 1 of the appropriate to the dassification thd dassification a)e not required to meet Act as discussed above. Specifically. would have applied to the area had it the requirement of developing an section 172(b] requires a SIP revision been SO classified a t the time of the . attainment demonsbtion since sectica within 3 years of designation. The SIP notice under section 188(a)(21. Under . . 187(a] excludes such m a j bm m y revision must meet several . . section IW(fJ, the Admidstrator may r e q u ~ m c n t for attainment requirements. In particular. NSR adjust' any applicable deadlinls (other :, demolutations.' . .

. I f a State submits a request for. - . - than attainment dates] if the deadlines '

redesignation to attainment hen a a show. to be infeasible. , , 6. h a s With ~@lifi&Ilt s&ti0Cary '

proper and adequate maintenance plan 5.hfdtiatate CO Nonattaent . .SOurw as deiined in section l75A is required. Section 187(c](3] calls fo; the . The Adminismtor anngonced in the . Section 1w(el defines i ' 'mdti6tate . Adminisbator to issue @delines November 6.3991 Federal R-ter those CO nonattainment.maw.as a CO rule3 for d e t e w g whether sh~oe. CO nonattainnent areas that did not n~n.:~~.bent area that cover3 more . so,es c o n ~ b u t e si@fiifiundy to C- . \ioIate the NAAQS durir.8 the 24-month than one State. Section 167(eI also

, levels in an area. ~n the case of a ser;,cr,s period between January L 1983 and establishes certain requirements for b whid stationuy December 31,?989.,For su& areas, the' . such yeas- First- each Sta!e in a multi- contribute siwcantly to co levels, requirements under subpart 3 do not State CO nonattainment area must take section 187(c](l) requires the state to apply. : : all reasonable steps to coordinate both r e ~ s e the definition of major

In order to be redesignated to . . the SIP revisions required and the source in that area to indude any attainment a "not dassified" area must implementation of SF? that apply in the stationary &at emits, or has be provide documentation to sup"port the given nonattainment-area. Section lar(e) to emit, Y) toru per year conclusion that the five.redesignation , also prevents EPA from approving any . . more of.CO. . . .

requirements of section 10?(d)(3]rE) . SIP revision submitted under this . . .. Guidance on the'definjtio~of a . .. ' have been met. For a diswsion of the section if a State has failedto meet the sipifiunt CO sburce specific State actions required for above requirements. . satisfying these five redesignation Finally* section 187[elkI allofvs. a . ~i~ available 13,1991, in an from EPA William memorandum G, Lu:o;. dated

. requirements. see "Redesignations" State that fails to provide a . .

under'section UH5 of this notice. demonstration of attaihyent for that Director, Technical Support Divisioc (2) IVSR By November 15.1993. all State's portion of a multi-State CO regarding "Guidance for D e t e W g

such "not classified" areas must submit nonattainmect area to petition EP.1 to Significaht Stationary Sources of Carbon Monoxide." The gddance d e s to implement the new part D NSR make a hdiw that such State could defEEs a sifl.t CO stationari pernit requirements of sections li2(cl(5) have demonsgated attainment, but for sowce area throcgh the use of ite and 173 of the 1990 C A A k In the t!e failure of one or more other States ia

meantime. all existing NSR rules will the area to adequately imple~ent results of dispersion modeling of cce cr . remain in efiecc If the area does not measures required under secticn 187 for ore stationary sources of CO in t!!~

area. The reader should refer to ki: have an approved part D NSX permitting the given area. If EPA makes sucfi a pidance for inlom,z.jo;l pngram and a State wishes to issue a finding. t?en the sanctions provisions pcnnit for a major s t a t i o n q ~ source or under secYon 179 for fzilure to malie an 7. Cuidance on Waivers ior hfobile major modification in such area ddg adequa:e attainsent demons3ation - Source Measures theicterim peiiod. the State petmittkg program should comply with t!e requirements in 40 C.% part 51. appendix S, until the new pa:t D SSR requirements become effec5ve.14

1. L'a "not classified' arcs has not =corded aay vio1ation.t by December 31.1S91. and h in rbe .

p.scesr of developing a maiiitenmce p!an per section 1iSA. then EPA may not n q u h . oonattainment KSR ~ ! e r . However, there u e e s must wnlinue to apply their existing SSR p-am or w ~ p l y with the tiSR permitting rquirmenb of U) OR part 51. appendix S. F.or to des ipat ion i ~ e s e areas also nuat adopt and be prepared to impletent a pennitting program bat sat ires :he irc;uiremenu of part C and EPSs wdat ions implementing the PSD p.qram *cis should consider the need !or offsets under t!!e part C p-m to eruure k a t new sourcn do not "cause or wnfribute' to an iccrease in pollutant levcla t.at would take the area out of compliance. lf?he arca is found to be out of compliance a:d tL.e statutory deadlines for adopting amended pu: D p a i t l i n g Nlel for rbe pollutnnt in question h v e p a u e d EPA

shali 301 apply to the State awarded the .finding.

Pursuant to section 187(e](l). EP.1 is callbg on each multi-State CO nonatiakunect area to develop a joiz! work an as evidence of eariy cooperation azd integration. The work plan nust kclude a schedule for developing the emissioas hrentories. the Vhff forecasts. and the attaicment demonstration for the entire multi-State area. Each State within a multi-State CO nonattainment area is responsible for meeting all the requirements relevant to the given area. . h o:der to be sufficient to avoid a

sec:ion la7(e](2) findiag of failure to ,,

may impcse a conhction ban pursuant to rec5on llJ(aI(5) ur.lil auch time ar the area adopts a part D program salisb-hg the NSR rtqut-cmenb of lhe . . GtLI.

The waiver prorisiozs of section . 187(c][2) provide the Administ-a!o: :s<hl discreiionary authority to wai-;e ce::zin mobile source requirements in boL? moderate and sericlls CO nonat:ark-est areas where mobile sources do ~ o t contribute significady to CO leveis h the area. Specifically. the A&i?is%:or n a y 0 3 a case-by-case basis waive zzy requirements that pertain to transportation controls. I/M. or oxygenated fuels where the Administrator deterinhies by rule Cyi: mobile source contribution is convinckgly demonstrated to be insignificafit in relation to the c22se ci the area's overall CO problen. The P.3 will only consider granting a waive- from controls on mobile CO sources uader section 187(c](2) if it is clear $at mobile sources in h e aggregate do nct

( . . - . -:. . . . . - :.t &. 1. :: - - - -..:-:.- . .. . . . . . . . . -. .-.-*.. - . - -

..:. .; ; Fedelp1 -Re@te&iv~~: ....... ~7i:.ki,>~ 7 4 ~ ~ ~ ~ - $ h i ~ ~ & ~ , ' ? ~ ~ d : 1 6 , ~ = 1 9 g ~ ' ~ / ~ ~ ~ ~ & & .:~ules : i : -W53, ... ... . .

. . . . . . . . _ - - . - - . . . . . . . . . . . . . . . . . . -. - . . . . _ _ _ , .

. . . ': cdnqbute sim&+ly to @= do :,- .+ :: F%<l0 N M Q S byathis attainment date: onli be made after prpvi&:n@ti&b - - . .- n b ~ t t k e n t pkbI.e<and.th&- ig a,. :.. : or following the passage of the .I. : ..:-. : : ; . the Federal Rigister and an-opportunity -. .

- S,p rubmittal de-rutiating +taininent applicable.moderate aiea attainment . . - for public coniment on the.b+is for .: . -

. - . . .. . . 71 the:CO.NAAQS by the required &te date. if EPA d e t e m e s the area has -. EPA'r propb'sd decision.. -:'. :. :. &h6ut.su;dhamobib i o e e controls.. .. .=, failed to,attain [See section lss(b1). --'. :. '. The EPA doe; not believi&at'.'.> .-

. . . - . - -.Thii.~ouldbe &'addition.tq.a showing .-:.For those.=as which were.:-. .:I... reclassify* rnbdidte-&+.h reriois' under se'@ion 387[c)(3) pertaiding to . .,.. des@a!ed ~ ~ n a ~ ~ e n t upon -- -.- -' ; : at any time EPA det-ej'-that stathriary s o e e s that Ywlipibute .;::.-! '::. ~riac-entpf the 1990 by.':': :..': - cannoi pactiubly.attain t h e * j b & j s

. . . - s i g n i f i ~ t l y to %h.n monoxide levels ..operation of law; where P A determines .by the applicable att-&tdak ;: in the--acme attahmknt ::.:*.::-:. , . '::::.. : tGt&!!'@a ~ o ! " P ~ d ~ b l Y ' ~ attaintain . &wards areas-+b dele,d&velop&nt . .

. aem~nstrati~n-~h~itld.~i',~~?.;:. ,;i': i. ,-: . :the N.fiQS b~.D-eembN 31a.1994, the . . .and implementation ofPM+ c o n b l - .

. . app*vd m i j d e e g; i . L- :' 'amend.ed'Act.-pe*? cerkin dates . ' m&smes.,Rath,ii; EPA believes.itj.: :. - .- .I - . . . - . complije m i d e g g ~ l y s i b ~ i i e e d e d ' , ~ :,.WE~ ~ A . m ~ t . P ~ P o s e ? o ?class:* ':..: policy m a t & an'idcentive for @.timely

.. . . co&jd&g p;d$t,'are~~d,mobile ;.Y.:i. .:*pp,'opriate.ipP.dim~e area? a? ~NOUS :;. and effei]ve gbl-tation ... -.. - . : so- iixibsipni; Th+.wcu'~'i.Gddd be.. (w 58 -8- No?rember 1%) .~'~:-; of moderate a k a SIP requiremedG b d . p q ~ ~ d u*9n'k$&$al of +e. CO SIP.::';': and take final gdti.~.:The.EPA has :: : facilitates'&e nf-10 ait=ihmedt .':- . .': . . .

. . ne iaiqer -erof*obild bow.measimei .1 . : -&scret ioq 'auth~ri ty under r e d o n .'-I- - . .objective:~oy 2.& . . : '

. - w o d d n ~ l 6 n & f ~ ~ i i l i ~ ~ i @nequenf ;:1m(bl(l) b R d a i s i f ~ UY of-theseuehs ' ' fails td & b d t &timely modemtima - . . . .main!p+n&-p!*.d@n!omtr,ab9n r .- .-i. . as se.ri!J!? at.&^ time*.if EPA ; : 1: 1- -..' . . S P is reclassified. this do!i:not &,iite..

. - od'l.iich, . - m$bY . . sd- g e u e s . ;, *:. deteeke__s they c&ot ~Gcpcably . . . . : the Rqvirrm+t &at t h i m a m b ~ t . . : . . . _>*. ... -... . .i .................. . - . . - 'attain-the.PM-.1DNAAQS by December. . ' implement RAM conrirtmt.?ji&. . C p&-&Iaf'j &.fatier .?-? :C *:.: '.'. '

. - . . . . . . . . . . . . . . . . . . . . . . . . . . ,.-...... -:-.. ....... -:-:.;... -.--.., .( -31;1994.!!-l%e.EPA may exeriise Us I;. : the modemti are.j&dE !::ti, ...,

. .. . I. sLhitory . _ . . . . . . ~ a ~ c k g r o ~ d . -. . ';;,i,:; : . , .;;:.-: . . . discetion. whee;Jor exlmple. EPA i ::. ~ ~ ~ ~ d i ~ d ~ , . h mdd .

. . - 3 . . - -. - '- .' . *. . - on&ally believed &*area coidd a t t a b . to surctions for iU delay lubmirting . . . '- : (a], ~ ~ i a t i . ~n the-date of.:?. .,.: -- . .. -the P'M-lONMQS by.Decembei~l* :- the W(M SF requ-ent [$ie reciiow . . . . . . uuc%t of *e%v.CAAk;w10 '. -%: .I- but laterdetermines .that it cannot . llo[ml ind 1791; Further, rrdasisution , . - me.et@ the.qudmcations

il"'* :attain For e~ lmp le , E P A i a y find an .. ; the appliuble atta-cat ble ; . . . . . . . . 8e$pp?q[dl(r1@1 of thcamendedAtt:' : ,a m o t pracdcably ittain by: + . that *dditiohal cbihl - :,- - - . weppesi@atedpona-ent by .:: . :: ~ ~ k b i i 31,.1k rffer.?viewing he -..;; opedt i~on ,o f~~w.~The~se '~as i n ~ u d e d : . -~&,~&b~f i~ , l w . ~ ~ Nbmittal for an measures in addition t.0 R A a l . . - . .:. . . . .

.... serious beas must implenient best - . . - I"mur 5 2 - ared.'Or, if a Stdte fails to submit a PM- . avahble conhl mea?ei(B,,O.Il, arr . . . m293s? (Au8ust 7 9 1 clarified ..... 10 S p foi E M Eidd ch&lude ...

5799 (Odober.31*.19901* and ... . that the -a could not' pra=ticably' . -, , implemented sooner and will +edite

. .. ....... @ i s *olit& the Ph4-10' amh bl the the application of mGre Yhi~geat t e t r source review requirements to tie area prior to Januq 1*'.1989 [mmy--' att.idmint date based for example. on 188(blll) and lBE(b~[lll. ., ere %as were also identified in the .. he ieverity.of the ndnhna-&t .; . .

. . Similarly, where an area subnits a October 311189a Federal Re@Stff .' :' problem. the feasibility of tiontrol;: and timely moderate SIP, EPA Eky cot notice)..fl o*er.ar.eai were de3.i@ated o&er pertinefit fadon. Any decision bv un$assPable. A Federal Register notice to &dajiih, an area serious d i ~ o v e r t h a t the area carnot m o ~ c i n 8 of the areas designated . be based on facts specific to the _ practic~bly attain until s&e k e after

it begins implementing its mo6erz:e area nonattainment for PM-10 at enactment '. . conetta-ent me a t i s h e and will . . of the 1990 CAAA and classified a s -. - . . . . . control measures. The P A e e = z a y .moderate. was published in FR .

18 he ,ma,r g;;ationed wbe&e: EP.4 baa want to reclassify the area in orzer to - Ofarch 15,1991). A subsequent notice disnjorury .u tbor i~ ro an -st any facilitate the development correcting certain information in the . h e ' DAdetermina the cannot practicably implementati0Il of BACbl Fiairy, a . )*larch. 15,1991 notice was published in Qe nf-10 atm- by h e appli-ble reclassified area must demomta:e 58 FR 3 7 ~ ( ~ ~ ~ ~ ~ t 8,1991). Subsequent rnde"'e attainment date Under he plain att'ainment "as ex-peditiously 2; -

rnemiq of Lhe term of section 188fb)[l) D A bas to the ~ W O CAAA enactment date, EPA . genetll &-tion to dl,,* .t my ~e prac'Licable" and no later than s;eciEed nay redesignate any of these the applicajle attainment date m y area D.+ dates [see section 188(c](2)). unclassjfiable areas to nonattainment in ' d e ! e d r . e =mot practicably atbin the ath?dnrds Accor&.g! EPA may rec!assi:: 22

by scch date. Acardir..gly. =&on 188[bl(:J is a and conclude t5at the ccsi accordance with section 107(d)(31' On gezeral cqression of delegated rulemakjra April 22 1991 EPA announced in 58 FR UPA AT;^).. .dditioR a u b p a m F a p ~ [AJ lP.d ( B J Of e.~peditious attainnent da!e ?=:"able 16274 that it had initiated the wc2co ISB(~J(I] nardate that EPA =da~,i[y at for t!!e area is a tine prior to !z:es? redesignation process for 16 areas. a~ec2Ced tk~e!ramer m y v e r r it d t t e m k o possible attai-ent deadli~e.

approp+ate for rcdaaaification at those dates. . . . . . Clas3ficati0ns and attainment nele nrbp-pb do not =#trict he genc.al For areas designated nor.a::2ker.t

&otes. Once an aiea is designafed ' . auCcriw but baf minimum after enactment of the ( 3 . k k A - EPA nonattainment. section 188 of the . . . must be exercised mt ert.in times. ~ h i a . must reclassiiy appropriate a r ea as

- amended Act outlines the process for ' h k 7 ~ u d o n w e n the overuchias pwle of . serious. within 18 months of &e re",uired dassifiution of the area and establishes - 2: & ' ~ : ~ o ~ ~ ~ ~~~?;"~Lm'',"~'f~Ib~~ submittal date foi the'rnoderate c e a .

..the area's dtainrnent date. 1x1 . : . rihadon h d r ifter the aondnl;d . Sp. Taken together with the staktory ' , accordance with section lm(a).'at ,the ' dasni5cation rulemaking and before the requirement that these SIP'S be . . . '

time of desipation. all PM-10 . : . . ap9Eable a t t a h e n t d.tr. that area a ~ o t . submitted 18 months after bek3 . I nonattainmeni areas are initially . . . . . . pndub'yatUhthe aUndardr.Thir in . designated nonattainment'Be szt;lte .. woddexpeditc ultimate attairrment of Ole W I O . classified as moderate by operation of ,-dardr ln 8ummuy; ~ p , , believe# it . . . ' thus requires that EPA rec!assL? e e law.,A moderate.&a can subsequently. -I reawnable interpretation m d consistent uih h e ' appropriate noderate aria as setous ' .

plain lngdmgc ofthe atahto to construe ret ion . . . within 3 yean of the nonattah=er.l . . . . be redassified as

before . ~sa(bl(ll ~UC!Y that it muthori~ea FPA lo mdassify an . designatiOL : . . . . . . . . . . . . . . . . . . the applicable moderate area *"ainment .. ,, ,a a p p m p ~ t i 81 8ny +e hfom he . . . . - . I ,

. .

... . . date. if a t any time EPA detqmines the .mL.uble .tl.inmcnthte &dmandate, haL ..-: Finally. in thoshcasgs w~eri+.4 . area cannot'~practicab1y~ attain the ...... -us EPAmake this h q u i y at 8 p d e d rimel 7 determines that an area has fagel to . . . . . . . . . . . -. . . - .

. .I3538 Federal Register / .VOL -57, .No. 74 1 ~hrirada~, April 16, 1992 / Proposed Rules .

- . : attain ~ ~ ~ N M Q S by'the applicable .; - .this discussion of mClQ$PA has i- I. h se&n wj, the te= @jjor .- .attainment date, the area is reclassffied clarified the -1aMonship between - .. : %.stationary source means any s t a t i o w .

as serious by operation of law. ?he EPA . s u p p a I-and 4. S p a must also - - . . aoura which' directly emits. cr has &e . . must publish a noticeh-the-Federal- .;- -meet the applicab1e:regalator~ :: . -. - -: --potential to-emit 100 tonspet peer cr : Reghter of such,determinatfons and r e q h m e n h set forth *CFRP& 51 ' more of ,CClO.?he emissions offssst . \ : cansequent dassif icat ioni within 0 .. . except to the extent tho?e r e q h e n h . ratio for such poarces is 4 u d to or I 1

months following the applicable . .' are inconsistent with the amended.. : , .. -grater than as epedfied in sectic3 attainment date. .-. .' . : . . _ . ' . A&'* ?he EPAewiR provide guidance at rn[c]. .. .' . -- - - ..

. s i n e &js Gen& 1.: . , . . a later date for those SIP requhmenh : . . - . . & ~ O ~ ~ s a ( e ] &&S he a n b l '

.- . addresses only the control measures - . hot a d h 8 e a l r i General Preamblg .requirem&ti applicable to majot - ' . reammended for.modmt;e W O . .. - -.- The di8mssion below.fr intended 10 - rta~o'nary 01 ~ 1 q &

nonatt-ainment =as;the following : -.''>. .provide addt ionalbaCbund on some . - applicable to.ipal&:station-q 80-s 'discussion has been limited to &k.:-. ' . ' of th$8tahltOfy req-enb for ;. . of-10 p n e w r p F o r Lhe'pwposes o -

- .. attainme& dates for modcnt= < ;.- 3 . .' moderate Phi-10 nonatt+hnienl.uee '::. !hple iqa t iq ~ e . ~ C I 1 ~ t r o f . . . -. nonatbinm&t Section 188[c)[l] '- . ' S F 8 and h . k m e to pmiride';-.'-. 1 q e h .:;..--'-.

of the amended Act ppedfies that the . '. - .guidance on Lheiee'bto!Y - . -A :. : : s e c o n ~ y - l y n i e d PM-10 may indude : .Initial moderapnopattalnment areas .i : ~q*menF* :? -:' " z"i ' - .-.- . . VOCs khich f o m se&qdary organic .

[thoredesignated nonattainmmt upon ' - Id ] NsRpedtpr;8& k t i o n - '- ' . .co~~otlqds, SO, which form s a a k enactment of the 1990 CAM] &re to : . i8g[a)[11 of theyamended A d provides - canpounds; and NOx which form n i h t l

- . attain the.PM-10 N M Q S as - - . .'' ' that for the puqoae of meetin# the . . c o m p o u n ~ . ~ ~ ~ f o r e ; the control : '

ixpqlitiously as practicable but do later - =quiremenh 0fsec*~n172[~](51, each' , requirements applicable under Phf-10 than December 31.1994, unless they are a PMlo nonittainmentm S P s for major stitionary , m q e s ci .

-. . reclassified as serious [as described - - dasssed as mukit submit an . . PM-10 shall ah0 bpply tomajor . . . above]. Areas designated nonattainmirnt . +p1ementation plan which contains a - ' statioiisy r iunqd bf these patintiel . ;after enactment of the 1990 CAAA and Perrmt P r o m the' .. . . . preninors. exceptwhere the' .: . .. - .

.. classi&d.aj moderate must attain the . . . . ,~quiremenh of action173 forthe' -:' :. . .Administrator determines that su& . ' PM-lO N M Q S as expeditiously as ' . . . . ~ 0 ~ ~ ~ t i ~ ~ of new and modified major sourdes do hot signifiCantIy a n ~ b u t e .pradticable but no later than the end of ' stationary sOurces'of PM-10 [and in . : . 'to Ph4-10 levels thit a c e e d the -0

. the sixth ulehdar year aftqthe .mass lome cases %lo d G k o n ] . F o r t h e . .-ambicgt standards in the area.'Ihe Act designatiqn'ai nonaitainment . .. . Initial pawlo nonattainment : leaves yaddressed.the question of

[c] Cen&Sp&4YiRden&. hi , '. "as d e s i ~ t d acco* to s d o n .- .whether each ~ ~ ~ d f i s . p M . 1 0 * a - o r . - discussed abdve, States must develop . 1*(d)[4]m States must lubmit the NSR ' ' ' - :should be considered together or ind subqit a SIP providing for the : permit prosam SIPrevisiOn E P A b ~ . ' independently in determining major . attainment of the PM-10 N M Q S for : - Iue 30*1992. -Io nOnattainrnent . source size'and the applicibility oi : ' '

e v e area designated ionattain.ment ... areas enactment of the section 173 (e.8. permit requireme-h). \ and classified as moderate for PY-10

' Igg0 GWL States rmu! submit a . . However. with respect td ozone. D.4'3 - -under the amended Act Under section the NSR permit Program practice has been to codsider eac5 - . 189(a)[2), States must subbit a SIP "- after specific ozone pre-or lridependertly .

revision [e.g. RACMlRACT and . . each area.The =A intends to . when makiq similar determiaatioy. - attainment demonspation) for the issue proposed redat ions for the NSR Accordingly, PA proposes to h a t . moderate p ~ 1 0 meas des@ted program SIP's. However, in today's . 10 precrtnon analogous 40 ozone . nonattainment upon enactment of the . has pm\i2ed . precursors and also consider ea& . 1990 CAAA by November 15.1992. The 8Uidance On the NSR permit ProPam .specific precunor independeztly when NSR pmgram provisions for these areas =quiremen& which is intended to assist dstermlning souFe size and whe~!er are due June 30,1992. States must States in developing and timely section'l73 provisions apply. No*&-.g ii

' submit SIP'S for those PM-10 areas ' . subnitting their June 301 132NSR SIP this guidance. however, would prcc!zd~ designated nonattainment after . revision fcrthe initial moderate PSI-10 a State from adopting a stric!er stt-<a] ! enactment of the 1990 C M within 18 lionattainment areas*.and any NSR SIP

' acd, thus. proposing to consieer 2 1

months of these areas' b e b ~ designated revision submittal due for E Y .specific Psi-10 precursors together. nonaitainrnent for PSI-10. additional areas designated . (4 Serious areas. Section 169,arD)(:]

The specific Phi-10 SIP requirements nOna:tabment for PM-10 before the defines the tern, "mejor , o ~ ~ e " a.-.d applicable to moderate nonattainment NSii regdati0ns are "major stationary source" to hclcee a; y

(1 J ,ifoderate areas. To meet the arras ere Set fop& in the PM-lO subpa? r ~ q ~ y m e I t s of 172(Cl(jJ, stater stationary socce or p u p oi statkzaq

[subpart 4 of part D. title I]. These sources located within a contig~txs an 2

requirement3 inclvde section 189(a) must &plement permit propam that and under c o w o n control tL.ate&S, r (XSR permit prcgram,.attainment meets all the permit requirements of has the potential to emit. at le2st 70 to:

. demonstration. and RACSfIUCT): section 173 for the constmction and per year of PM-10. Such new &nd section 189(~) (quantitative milestones); operalion new and modified major modified major stations* scux-s kat and section 189(e) (PM-10 precursors). PM-IO. As defmed emit Phi-10 are subject to the p e d t The SIP'S for moderate P W O . . requirements of section 173 &.d k e Ph - nonattainment areas must also meet the " n e l m a h~dudes l Caeral Sab* . ' 10 precursor pmvisions of section :S~( I 1. .

Clause (ree =Son 1~31 whlch provides that '

general provisioqs applicable to rrgultiom (or guidanca t l e ] In e5tct btfom the [e) Attainment dernonstrcf!on. S c c 5 1 nonattainment areas set forth in subpart e,,me,~ or the - ened 189(a](l)[B) provides that Stetes wi5 1 of part D. title I of the amended Act to - af lu EractmenL However. U I ~ Savings Clause also ' moderate Phi-10 nonattainnent areas

' the extent that these provisions are not pmvid- ~ u c h = d a d o n a (orguidan- e l 4 must submit a demonstration (indudin othe-se subsumed by, or integrally . - .. a h a in tfl-t'uapt to the t x t t n ~

othewbe provided under Lhia Ad. Inwnsi~tent air quality modeling) shodiring related to, the.more specific PM-10 . with a v pmvtion 01 rhb or r e v f d by attairiment by the applicable attakzzel t - requirements. Wheneverpossible during Adminirhtor.'Id a . . - - . . .. date;Altematively. the State nust S!I~

- F e d d ,Rcgb(er./vol. 51. N& 74 / Thrksday. April 16 1992 I Propbed ~ u I ; i . . . -9

: ... . . that a t & e ~ by the applicable date is date d / o r k e i t the PM-TO attainment milestone require&+ for thLe m a r . impraciicib1e.TM~ SIP submittal L due ' date if there is nu next milestone.

' '

This is ccimbteql with the purpase of , on NOYernber~S. $392 for the m o d e t e - nen is a gap in the'law that the ' k t . the mirestone requLeny?.nt which is to a m designated nonattainment for PM-, of section18(c] doe?-not a r t i da t e the : . "provide for &ion reductiw 10 at enactment of Ute 199Q CAAA and. starting point for counting the 3-yeat . adequate to acbieye the st indar t by within 18 months for those moderate' '1 . ' . : .pcr:od The EPA believer .it fr . . . tiie applicable attainment date" IKR. areas desipsted nons$t&unent after :. . reasonable to begin counting the 3-year . Rep. No. 490. lait Cong, 2d Sess 267 c n a m e n t of &el990 W & e ; '.. . milesbne deadline from the due date for (1990)). Howevet. the Administ;a:or is n - w adJMct to tht d a t r a t i o $ app~bIe'knpleuientation pIan . . - required lo &&mine ;within 6 m n b of a t t e e n $ & sp submittaf m*t ' .. revhiand &ntainbg the contra1 ' ' ' ' . after the a p p I i e att@ment date . . m a a & m p & ~ j W s i-teL -: . , .: measurer for the. area. The EPA b'&eves - whetbu a nona t t ahkn t irea has . . . curtent ~ t o v ~ o f a + I d s s i ~ . it in reasonable to key' the mileitone : .attained the rtandaids{~ans ug(c] . h m an Mqier UPM-10 fa'lhq.ima, a s ': dock to the SIP revision . .- ; ahd 188(?1)(2)~~eref~ %-@ttnt pre-i& frr j&jmOLt'1~G)(3J. '. ; , . contmI m e a s ~ w h i c h wiII give rise to with the d t s t o ~ e rh+.ment, within

. h g,&:rgt--d&j&& d + ' emission reductiod. Furthe'r* conti01 . - . 80 days after the altainment datr. States lor the Initial mdehte -am&t . . : measures must be impIeziented in less, must.bxutrate that the SF has bem

, h d d fond the -w : . . than 3 yeamaft* t k m ~ v i s i o n . . hplemeitedad the .&a h'as at&-^ . .modeb tgdhk . d b r s a m-10 containing them is reqiiied to be . the s t e m aI.ternatively. q d i f h

sr?bmittecL~erefore. i t is reasonable to for a 1-year extension of the attainment lea- mloSIPDmlqment - . ' ' . exped that some,reduction in emissions . date [ s~ t i o r t lea(d]&The EPAwiU issue G'dehe"mi xddel@on : , will have dt-d 3 ieK. an the futurrgrib& & &e WIguantibtiYe Air Quality Models--@dsed); memoMb.~h ,oseph marl a r l ~ d revision due dateiThe P A believes that d e s t o q e r e c p i r b b t s for those areas Rebut BiPmm,d.td (ULd mea- the %year puiod from the SlP design.a(ul mod-& PM-lo-.: - .

. revision due date i s ebo'reasollabl& . . : nonattafnmPnt aher m - c e e p t oi the. any app'ub'e =datory requitem?? . BsmtiZny. =A &&yes it +&Jd be . - 199o CAM &d foi the scrim . '

The EPA eldo bas dioeloped a 'I-.:.., supplemintd ittaimnentdemoidratian .. uare,~9onabIe to begin coantiq the 3- . . nonattaixqent'arbitL .. . ... ' .' - .' . . . . '. : ' . . .

- poliq thpl mai b t - . .; y e n period whenever the SIP m L i o n is ' :(g) PM-lop-rs Section lffi(e) .

subiqitted in disregard of ib due date. - . .,provides that tbe applicabE w h l . mderate.PM10 e a t t i i ~ . ~ ~ ' i i t &as. n e mnw rpeac SIP . . fa cins.-d:.. . . . . m a t . : . . . . . requiremenb onder PhGio. .: . . submittal and attahment deadlines. , . ,. ' ' nonatt-t ateg S P s in efied for poUcg atatiiiient i. provided io ~ p p m d i ~ ~ nes dei&er

. . : major stationary a.ourb of Phf-10 are Anaidmmt demolub.tions they set up inform EPAs Lnterprrbtion also apphable to m j o r ahtionary.

" - moderate areas.designated after ' . of this r e q h e n t Here, EPA believes sources of W I O precurson. w t . . . ecactme't be that the hw contemplatn that same : w h e ~ det&w that the wwce. d e w & h accirdence with the general ippmvlment a lir qulity of W f 0 p m x m r s do not contibute @hce adking RI-lu' 'led - . between the SIP submittal due date and s@ifim* io levels .

and my otheramli*ble EPA ensr$g S y m hmemrnk Fmther, to exceed P h u O in the ayh guidarice o r regulations. The':. ' begincountinghmtbedateofactnd. Thisdeter;ninationwillbeWupon s u p p l e m e n u l p o ~ ~ d s o noted above SKP submittal and not itr due date w o a d air q u g t y d y & w h i d S b n ..

, will not apply. to these areas. '

allow those Slat& that submit SIP'S late arueu the c o n ~ b t i o n of p r e m r s . (f) .~/&mti~a'ri~t? milestone9. I h e -10 defer meting their qnantitafive The contribution of precursors =y be

mGIOnonaMinment .Iea mu3t . cilertones ad, mnsequmtly, to defer * nones$-t Mt-tivdy, if p-07~ include quantitative emissions .. making RFP toward attairm-t of the . do contribute to nonattainment Sbtes redcctions dlestones w s c h are to be ni-10 candard nus, the first will need to consider both the s~urce- adieved every 3 years and which, qumtitative milestone d e a d h e for the receptor relationship and the - demonsmte RFP* a8 defined in sedan h i E d F h M O modeate n o n e t t d e n t significance of p-sor con~ i i150 r s I?I(I]. until the area is redesignated c e a s is November 15.1W: 3 years after to over.a.U nonattainment Factm w'nic! attainment (section 18g(cll. Under the Noclnber 1 5 . 1 ~ 1 w h m SIP ;evi~ionr may be r n n s i d e ~ d in dele.- ihe ~i!estor.e requirement the States mtst . ccntzinir.p RACM [ i . u & 4 rezsonably source-receptorrelatinnship ire2Se denonstrate to EPA that tke SIP . svzilable control technology) ue due for .source & and dimity, nona:t&mzqt - neasures are behg implexented and 1.' arezs. area size. meteiirology, and tcppaphy. fie d e s t o n e s have been met, within 90 F,, the initial n1-10 . In makirq a determination regai&qg days af:er the milestone due date. The areas the emissions s ignif iace end the need to cochl EP-A must then de tmnke whether Or reductions pm-ss made between the . precvsors in o specific area @.A. will the Stete's dernonstzatioais adeVste* SIP submi~al [due date of Novenber 15. rely in part on the technical i n i c ~ a t i o a within 90 days of receiving the .. . . l g g ~ ] and the attainment date of : contained.in the Slate's submit'd demonstration. - December 31.1944 (ody 48 days beyond including filter analysis, the relative

Under section 189(c). the state i s . the Piovembez 15 1994 milestorie date) contribution of precurson~o o v d required to subrnit'a SIPre\iision if it will satisiy the f i j t qwt i ta t ive .-.nonatia.hment, aria the State's RACT/ fails to submit the quantitative '. . - . milestone. The de minimis tirring . R A M smtegjr; a m o k other f2c:ors. mi!estone demonstration or EPA ' makes it administratively Slates. however, are encouraged to detenoines &at a mileslone was not ' icpracticable to qnire separate submit addisonal miterial for met The SIP revision isdue within 9 . milestone and attainment consideration. with all hdirigs r?,rde on ,

months of either the missed reporting de=onshtions.'rhus. EPA'a policy is to a case-by-case basis due to the EEj date orEPA's determination that a deem that the emissions reductions . degree of variability among . . milestone was missed. The SIPTkiisfon progress mede between the SIP

. nonattainment arean Tbere .will be - must assure'tbat the State will adhiwe . . submittd due date and the'attainment . . variability. for ex;impIe. in the the next miledme by the applicable ' . date wiU satisfy the quantitative' - . . characteristics of the aria-wide .

. . .. .

~ederd Rqhter 1 VoL 57, NO. 74 / Thuisday, April 16,1992 1 Proposed Rdw . 13S1 area to.which the SIP appliegh the 1931, August 1SE8. Thew docmnents guidance on the wahation of h e case of public sector souras and control have been in use for several yean and . technologjcal and economic fetsibility measnms, this evaluation should - are based on substantial mpot h m of control t&ology for exiskg coiuider the impact of the - : State and local agencies. bade grwpa statimary soanes is contained in reasonableness of-the measum on the and asda t ions , and ~ t r o l everts. . appendix C(. municipal or otber governmental entity - "Control of O M W t i v e k t *es" (c) phl-J0pmtUrSon.-SectiGn 189(e] that must bea rLe respon~iility for ' may acme as an example in and-8 - of the am+nded ~ c t provider b t for all their implementation [tg; paving of control costa fora @en area. Copies of -10 nomttainment -3, control

. mpared p ~ b E c mads). It fs important to d m m b be obtained Z e m e n b applicable dn&r m-10 note that a State should a d d e r the ' cantacting ~ a t i o n a l ~echnical' - . s P ' ~ effect for major statianary

. feasibility of bplementing measures h' Information sm.e* 5285 Port ROY$ ' sourc& ofmgl(y are & appija61e to part when fmphentation mdd be R o d SpWeI ld . v i a a m . - . -major ~ l t i o p u y 50-3 of ~ ~ 1 0 infeasible. The SIP subrxittal to EPA (b) RACT. This @dance loUows .precunon. exqzpt where EPA

. shodd contain a rea4dned justification DA'a historic ddhkion of RAm as the determines b t sd rourca do not lowed emission limitation that a

' - for partial or full r e jMon of any .. contribute signScantly to PSf-101eveL . available control m m m . Ineluding ~ h ~ u l ~ a o m e ~ meeh(l which exceed (he P.KIo NMQ$, in be those considered or presented during the by the a ~ ~ l i a t i o n o f a ~ ~ b ~ l f h o l o g ~ nw for beecause . State's public hearing proem, that that h reasonably available amsidering modura ,,,on.thEt plea - eqlainawith appropriate - * tecbo1ogicd end eamdc SIP'r should cantain RACT for major

.documentation, why eat5 rejected - feasibaty-" m e RACT ~ F P E ~ S to the sbtionary sounes of p ~ ~ ~ , by control measure fs infeasible or . "existing sources" of PM-10 stack, otherwise -asonable When the - process fugitive, and fugitive dust should also contain RACT for major .

sta tianary soutces of P&10 p m ~ ~ o n . process of determining RACM lor an LPis~ioni (e-g- haul madre mpaved . dar d e t m a area is completed the individual 3ta&g bk iecSm l7qcIb)?- section lm(el .ha rq- bt =A measures s h d d then be converted into The EPA recommends that major , a legally en fo ryb le vehicle (e-g, a - - stationary aumxs be the ~~~~ issue guidancm for the cdntrol of Psi-10

regulation or permit program) (see . st* point for RACT anaksis- - preauum. This discusion represents

sections l72(c)(6) and 110(a)(2)(A)). Tbe &nerdy* P A reammends that -. . EPA's guidance for controhq Fhi-10

- ledation. or ohr ma- shodd avdable C U I I ~ I technology be applied PreCIMon for rtstioncf meet EPA's criteria regarding the to those ep'sting sources in the in moderate P W 0 nonattakmmt

enforceebaty 4 and SIP reuisions. nonattainment area that are reasonable - - - . Thesecriteriawerestatedina' . to mtro1 in light-of the attainment AJ explained earlier [see section September 2 x 1 ~ rnenorandum (with needs of the area and the feasibility of lII-C-l-Mlm pursuant to the r e q ~ e n e n t attachments) from J. b i g Potter, su& controls. Thus. EPA recommends of Section 1We). EPA intends to make a Assistant Administrator for Air and that a Slate's control technology formal determination as to w ' r d e r Radiation: Thomas tho dams. Jr., analyses for existing stationary sources major stationary s O m 3 ofRf-=O Assistant Administrator for . go beyond major stationary sources in Pre-On contribute ai@mtv to Edorcement and Compliance h e m a a d that States require PM-10 leveh in a part idar area wher. Monitoring; and Francis S Blake. techology for other sources in the area it takm d a a h g action on tAe dene& amel offie of the Genera] that are reasonable to control in light of individual moderate area SP3- Counsel, entitled "Review of State the area's attainment needs and the However, a determination w2 'ce base? hplem-btion Rans and Revisions for feasibility of such controL20 Specific On air qualib' analY3e91 on any Enforceability and Legal Sufficiency." additional tecLnicra1 i n f m a t m As stated in that memonnduxu SIP'S I* ~ c t . for example. u FR 53725 ( S q ~ e ~ b e r I:. - discwered by individual States llxriiqg

and SIP revisions whi& fad to satisfy 1s;3j m d fooeotr 3 of thatnoca. ?;a& bat EPX. SIP deve!~pment. and or. any c5e: he enforceability criteria not be e z s a m u p o k y atatcment hu d d e d &at studies conducted by the State cr E?.\ . foruarded for approval If they are k e UCT mquirrrnent may be w t s ~ by whic! nay he!p to indicate wte5er

'A-'RACT-dcnr -Md*om mhjor statiocary sources oi s;ecSc submitted. they will be disapproved 3, k a ~ X S W ~ O - .

in EPA's judgment they fail to satisfy a D .Vc2 bt &,,- has rrsd word P ~ ~ C ~ O T S contribute s i p 2 ct - .dy to ~n c^n]u=cacn w t h UCT ~n h euLer law Phi-10 concentations in a p ~ e c ~ l a r

stabtoy rrgulato* o v a now anended Sbus. It is paasLI, that a S U I area. Therefore, while the rubtrgzer.t requirements. Ceno~ttratr that an m a t q a m in JJI di3cu3sion pml.ides @dbqce e5 to The technical guidance Pa t discusses r ~ a shouidnot h n b j a t D l W ~ I A ~ A I W I O ~ EPA.3 hpIewntation of src'jc.l in detail the s u g g ~ t e d initial m e a i m e s ; e a l l ~ w h a ruth c r r o d b u n r r a m b l e h in appendices and and a "st 0'". .maas a tu-ea '4, d e a a h h and gives an indication of some oi tte

E v n PD.4 w-a required to impoar w n m l factors that will guide EPA's fc%igs State should consider in d e t e d g t ~ - J O I O W on ~ e v nd.&g S U ~ ~ Y -. . uder t - reclop none of (te gt,eral which of the -measure3 in appendices CI. w b e ~ a s u t e demansuaie~ tb* . v ~ I . anml views erprr33ed nrr htezded to CZ and CJ are technically feasible and t e - k fam 1. LPfr.nbIc or ~ t h u v i . = preclude s~ecific f:adings b a s e cn

econom'ca'y =a30'ab1e in a parddar ZZb'$ZtGc1t~$Z2& for h a t reviews individual fcr 3 ~ 1 0 area is contained in four dot~umts : . SO, - ~ t j ~ , , ,do,. ,,td d i ~ c ~ ~ d ~ . nonatta-mt "Control of Open Fugitive h t . that no o m d t e b l o g y h LDe 80- u

SOUTIXS," [EPA450/3-88-008) hasonably" ave~lable. h nfemnttd above. The following discllssion is kitended

september 1988; w~uidance nocment N - C ~ J 1 7 3 ~ ) of the amended A n prov~Ces &at to provide initial @dance *$ ' for Residential Wood Combustion abouid rppb l o - d a t i n g aouxe~ m the m a . 10 eacfi of k e above naned jx:ezSal

la the runr Iengmge lhui appewd b, ee / Emission Control Measurej." P A 4 5 0 ) R A G rrqmrrmeat rmdcr rhe CM to the 1-

2-5) September 1- %"led bee becdca 172fbH3) d dx ~ 1 9 9 0 . adop(rb EPA'r p i m h ? c ~ a f l n of X4CT (we.

~i~~ smoke ~~~~~~~~t cdde- (MFS bur UDd.r b e p m m & law. EPA b r . g & l@ZaXZXA] d b e f i ~ M

No. n g ) , February 1983 a d ef?& w e d Ib. p h w ' d a t t q roorm b the also aedcm Irr, of tba rndtd As. (¶a+- c!a.ae m' *a fi h Lnt-d h. EPA Wjmrs ~ ! r 1 preccmfq p r ' ! D A pidance e x q - ~ rkr

"FktscribedFire Plan Guide" (k NO. a- plscrd ha ~rrprf iruhrra tfwc . bcoru~almt wrh the Cean Nr Act A=-.enb;).

.3542 , ~ ~ d e ~ l .R&ter / .Vole 57. No. 74 1 ~h&day; April 16. 1992 1 Proposed Rules ' .

'1,-10 p r e m o n . Since the potential 01 sections below addressing control - Thus. aloni with their information and NOz emissiom to contribute requirements for PM-lO nonattairment addressing whether VOCs contribute - .

iignificantly to PM-10 exceedinces is . areas that do/do not demonstrate . . . - . significantly to mi-10 nonattainment in nore regionally dependent than VOC . . . attainment - . their area. States may wish to include in emissions. the following discussion ' Unlike the u i e in the western United ' their SIP submittals a showing that - focuses on general regional States, as a general matter. pollutant .' control i f VOC emissions under-oher sharaderistia atmbutable. to S& ihd - trinspon between airshed. in the . .Act nqujrments may s f i c e to relieve NOx emissions. In the western United . - Eastern United States can be . - .. . them of the need to adopt Ph4-10 . . States. (&sidered west of thel@ .- ' :responsible for a mlativdy large portion precursor controls under sectjon la(e]. : meridian for &e purpose of this . . of secondary particle concentrations in . Any such finding will be made by EPA discussion). EPA belie.ves that sources . , nonatlahment areas. Thus, the . - :' - based on information provided the - of SO., ahd NOx emissions ,pay !. a. .. . : aetemination a s to whether sources of' . individual SIP submittal. Other Act '-.

contribute to exceedances of Pbi-10 ; Phf-10 precursors the nonattainment control requirements which could be levels in several h j o r metropolitan - .. . area wpuld. contribute sign*.=nfly.to -. . considered as contributing to VOC areas (e.8- Los Angeles. Salt Lake - PM-10 concrnfntions i. the same area - . reductions are whire. for ex&i$le.-&<as . . County. Utah Count$ Denver and the . ' is cg~espondin8lY.more difficult- . . which are nonattainment for PM-10 are Sari Joaquk Valley). The EPXs - -. . '.: Moreover. the characteristic I' - . also nonattaiprnent for ozone and. thus. conclusion wjth,respect to these areas is conlributio~s of the subject precursors . =re already required to apply RACT or. based on the preserice'of. facton which , - vary. Sulfate compounds. for. example. ' 'sources of VOC "rider section 182(b)(2). enhance the likelihood of secondary -:. are generally k n ' o ~ to be Present in The VOC reductions may also be -

formation from these precursors. such a s significant quantities in many eastern realized from new or modSed.rnajot. * source mixand density. nonat taKent areas. while historically. nitrate . . . 'stationaiy s o u , e s due to the .:

area size. ~arti+Iar meteofology. e d - . compounds have been measured in. . imprementation of NSR programs in .. . topography. Where nonattainment areas ' relatively low conen@tion?,throughout . ozone_nofiattainment or a t t a i ~ e n t : .

are relatively small in'site! p ~ c i v s o t s . . = the East As exglained ear@- and as . areas: WhCn reviewing a SIP.submittal . are usually tiansported out 01 the area .: with VOcs . EPA will determine the . -. . . containing a request for an ejtemption before secondary particles can fonn in ' applicability of section 189(el base3 on , from phf-10 precur>orcon~~ls under-.- significant quantity. However, due to the technical and any other available . .' se= t i a 189(e) i i pat because of actual or greater size ,of the areas mentioned . . , ; .information pmvlded bY.Stdtes @their expected VOC reductiom from olher . . . . above. pollutant transport between .: .. individual SLP submittals.'~owever; - -: conlml requirements of the 1990 A C ~ . - - .

.- a h h e d s is considerably diminished: . when considering whether sources in ... .w; dete&inati&,=*ii%i;& an -. corisequently. locally emitted PM-10 . . Ps1-F nonattainmentareas should be . . of the of &e

, precursor3 remain in the area long 'qurrcd to adopt Pbl-10 precursor . . subrr.ission. This assessment by EPA. enou& to form secondary particles and . control. EPA will assess the .

will take into accoknt the possible : make a sjvificanl contribution to the reasonableness of the SIP submittal in

, significance ofdiiferences between - PSf-lO.problem in that area.? The . light of the fact that substantial regioc- contra] strategies for pM-10 and other \ particular combination of source mix. ' ' wide reductions of SQ. NOx. and VOC pollutants (e.g., requirements imposiRg rnetemlogj, and topdgraphy in these . emissions are expected to result from B ~ ~ T as opposed to and . . major metropolitan areas rarely.occurs the implementation of the Ac t These .differences in deadlines). in other areas in the West. For this emissions reductiohi may mitigate (dj Condensible PIM-10. Condmsible reason. EPA believes that sources of .. precursor contributions due to PM-iO .particulate matter (~ph1) refen to

.SQ and KOx emissions are not as likely concentrations. The EPA will also take particles whic5 form in the atmosphere to be significant contributors to the - into account the historically low nitiate - as the exhaust gases from a source ccoi. nonattainment problem in those other . concentrations in the Eastern United The cpsl emissions form particles in the . lnes. areas. Ther_efore. if EPA deterr?' States.

The ED.\ willalso consider the PSI-10 size range and are considered based on ififormation contained in SIP

iniomztion submitted by States PL1-10 emissions (see, e.g.. "Phi-10 Si? sutmittals and any other available Development Guideline." (June lc87) 2 : infomation. that major statio~ary containing major stationary sources ol p- 5.32 and 5 j FR (October I?-

. sources of S& and,NOx in the Westen VOC's in areas which are in nonattai~mezt for Phl-10 to deterrke 1990)). The EPA issued guidance on

United States do not contribute to exceedances of the PM-' whether VOC em.issions from suck CPhl in:a Decercber 21.1990

memordandum from John Calcagni azc 10 standard. such sources would not be sourcesdoldo n'ot contribute expected to meet the requirezents that significancy to exceedances of the William Laxton entitled "Interim

apply to major stationary sources of: ' - .ambient standard in their particular Guidance on Emission Limits and Stack Test Methods for Inclusion in FN-10 . PM-10. (e.g. RAW. Further discussion area,. In considering the reductions to be . SIP.sT Generally, RACT for souKes of .

on the qeed to apply Win in PSl-lO achieved by controlling PM-10 nonattainment areas is found in the precunon under section 189(e). CPM will be reviewed consistent wit! - . . . . . . . ; . . Congresshas indicated that EPA should it this is guidance. rea!onable In and addition. therefore EPA believes

. . I ne focus hem and clP;whem'on lmmporl take into account reductions achievable . - between ainhedr and on the charscteF~tiu of the from-control requirements imposed by. nonattainment area flow from the statutory . other sections or tit!eb of the 1990 Act.22 the CL4 in adb-essiea precurson. The House I n ~ u a w of =!ion 189(e) which slates that in Repor! staler as followr m e Commiltn expu:s detem.ining not to rtquim RACT for major ' - the Administration to Lmonize the PSI-10

- acationay rourco of prrcunon. EPA must find that a* CongreaJ eccgnized &el so&ces of PSI-10 reduction objective pf this section with ober the soiTrcrs do not contribute significantly to PSI-10 precwon may be otherwise controlled. For applicable reg?lhtions of t+is Act regarding PSI-?0

1 . levels which cxcecd the N I U Q S 'in rhe area.' . .e.xample. the Horse Reporl atales that 'ltjhe . precunon.'auch as NOx' (H.R Rep. No. 4W at Sal Thus. tLir provision EP.4 may determine,that major Committn notes that some of thew precunon may Throughout,the disc~ssion olPM-10 precmon E?:

, . . atationary sourcn of p r w n o n in a nonattainment well be conlrolld undu other provisions of the h a relied on h e ac~uai and expected rrGuctionr area should not be subitct.to MCT bco$se $e . ,. ..A;:'. (lU&Rep. KO. 49Q lOlst Cong, 2d Scss.-a :from other CU requirements and has a!te=?!d !I

r o ~ s do not contribute signiCanUy to P > ~ I O ,; . (1990)). Moreover. Congress crprcrsiy - reconcile these with k e ChS's PSf-10 attain=e.:t , * P levels in the same aka . ,.. . . . . . . - . , . - .. ... . . .-recommended.Lhai EPA consider other p&siom of objective. . . . . .. . . . . . . . . -. . .

. . . .

. F d e d Register I VoL 57, No. 74 1. Thursday. -April 16. 1962 1 Fbposedkules: 13333

ccx!itutes R A m to contrel CPM only h &ose PM-10 notiattainment areas result in atGinment any faster. then a ,-. - CFJM is a si&cat portion of that do not have previously-approved .. plan whit3 requires impleme$tation oi

the emissions from an mting . . . part D TSP nonattainment area p l m , lcss than all tec0nologicdy and stationary s0ufia.z~ Further guidance on the particulate matter regulations for ecowrcically available mearms may ke identification of s-es where a' . . existing sources should be reviewed to be approvedzs The EPA believes it '

. . State's ma aalys* should consid& - . determine if: -. - " - . '.' . .. would be unreasonable to kp* that a BM is found in "Assessment of the : [I] Additional controls are necessary - . plan which demonstrates attaiiment .

~ontrollability'of Condensible .' ' . -; . to meet R4CT requiremenb. . . .. indude all technologically a d . - - Particulate Matter," published in .' . . . (2) T h e - i a t i o n s meet EPKs - economically available,control

. . October 1990. The EPA recognizes that criteria. S i a r l y , . - measures even though su& measures thfs docuuient fs i n t e e guidance.and is existing regulatiom controlling . would not expedite at ta inmat Thus. for . still subject to revfew. Also. note that ' l. emissions of ipecific PM-10 precursors . some sources in areas yhich' . EPA bas recently proposed to'add a :.: should bti reviewed on a case-by-case - :: demonstrate.attainm.e_nt it is possible

. . - method f?r m e a m CPM emissipis .: 7 b u i s for major stationmy s oms in - -: that some available control m e a r m from sfabonary sources to a p p e n h hi : ' those m a ? and RA(X analysis . .'-..:: :' - . n a y not be "riasonablyn available

- of 40 CFR part 51 (55 FR41546, - . October conducted d e s j the Administrator .- . -.. . be.cacse theu implementation k o d d not . - 12 1990). ;;:; , ..-. . ' . . . .:. : t..-:;.;.--- determines the source'does not. . . expedite attainment :' '.:- ' "' -

[e) ~ o h l syspendedparticulate mPI contxibute significantly to Phf-10 levels . As irovided in sitt i t i~l?2(c~(9)bf the . Rrlm. Siqce !979, D A has take^ action which exceed the N M Q S in the area. . . amended Act. all midirate . . . .. to approve a number of TSP :.-. :. : .- . . Section 110(n)(l) of the amended Act nonattainment area'SIP!_that - nonittainment m a S q s .that require .: . that all TSP SIP'S. icduding demonstrate attaipment must kdu l e '

.- R A m for egsting s t a t i o n g sources of any revisions. that were approved or ' contingency measure;. These ceasures TSP. As a t e w c a l matt& M m . l e v i l . ~mmulgated by EPA before ehactment . must be submitted b*j.the'initid ' " . . . measures, to cop-1 TSP emissions .: .:; . of the 1990 ,- shall remain in effect moderate nonattainment ateasno later generally utilize technology that d s o .; until EP~ . i+ves 'or prom&ates a - than November IS; 1?93,(See redtion .' effectively'contri,LL~f~ e m i ~ b i d b - . . revision to the SIP iiider the new law. - 172(b)).za These n i e a s h s become. . Thus. EPA believes it .h reasonable to . .: Further, the Gen=fal S a w , Clause, '

effective without further'adtitjn by the '

gemrally presume *at cbntrol ' ; section 193 of the amended Act states State or EPA, upon determir.at2on by '

technology'which represents R A m for that any iontrol requirement in effect or . EPA that the'area has failed to make .. . TS~.emisgiqnq.from a s o h e sati?fies . .. required to be.adopted by a,SIP in effect RFP or to' attain the Phi-lO.NA4QS by -

. the.te's'+ment of RAm.for.PM-;o,..'. ' beforz enactment of the 19SO CAAA for t!!e applicabld.sta,&tory deadke:.nese . . erdisiionj:&de?be-G;ndedPct ... ... - 1, .I' - any area that is a nonatt-ent area . contingency measures should consist o i

Howevei, the reasonableness of this '. . . for my air pollutant may not be other available coitro! measc-s that control technology may be &!ed for a - . modified unless the mo&fication . are not included in the conk01 strategy. particular SO& in a ?%lo ' . . , w u r e s equivalent or greater emissions . One basis EPA relommekd J for - nonattainment area . ' reductions of such air pollutant Thus. . determining the rnagiiitude bf which indicates that a level of PM-10 '

rnder section 110(~)(1), egsm . contingency measures is the ==aunt oi con@~l Seater than &at achieved by the provisions of TSP SIPS remain in effect ectual phf-10 emissions re&;ccJons , . TSPRACT constitute such provisions are revised under required by &e S F c o r b l s*:egy tc Phi-10. with respect cOnhls the new law. Aha. under seceon 193. ' . attain the standa;ls. wen l ~ ; ~ ! q p k g a cn stack and process fugitive emission ' modificitions to TSP control skate= and dexozsk=L?g points that represent BAm in currently- requirements. such as TSP ~ q m , attainment wit!! dispersion cdel ing. a??roved TSP SIP'S. specifically c u ~ k ~ t be approved unless 21 a the State may determine ke t S S ~ O recommends that the eaission lirnits be , M ~ they ensure equivele-.t actcal eixissions must be rcdnced 2nd reviewed in light of improvements in emission reductions of Phi-i~." a!so s axe allowab!e emission 'h'its conbol techology and reductions in c-npol costs t jat may now make lower 3- SIP'S That Denonstrste A:ttinment must b reduced to tke le.~e!s 2 a t tl.2 .

sources are a c ~ ~ a l l y erni1tir.g. emission limits reasonable- In addition. The SIP'S for moderete r.on~::ainme"t ~h~ ccr.tinger.cj ;;leesces := 5e regulations submitted as part cf the PM- sreas should provide for tte implerne~ted if ar. area does 2 ~ ' ; a::ak should be reviewed ta determine h~lerr.entation of control metsures fcr the star.d2rds on schedde shcdd be a whether they meet EPA criteria erea sources and control :echology for por5cn of the emissiorJ regarding enfgrceabilit)., as noted abo'je stationarj souces of PLt-10 exissijns reduccor,s req?lired by the sz control (lee sections 172(~1(61 and 110(a1(21(A)1-- u.'aic!! demonstrate a t t a i ~ e ~ t of the . . straiea to bring about atteiruTe..t. Consistent with the previous discussion Phi-10 N U Q S as expeditiousiy 2s Thereiore, tke contingency ~.-,issicns cn RAW, EPA will not approve any ' practic~ble and no later tha the . reductions should be approxkete!y Phf-10 contaw.2 R A m measures applicable statutory attakent dates. equal to the emissions reduc~c2s that fail to meet applicable statutorj Therefore, if e State adopts less than all and regulatory req-airements for SIP e.aforceabili:y. availab1e but demons'ates~ zs see. e.k. 3X175 (-\pril 4.1-f See 3

adequately and appropriately. that (a1 . - lFtburary ll. 1991). RFP and attainment of the FA!-10 This Ctidline ccns~tutes &C lod

. Where CP%~ emissions r n & i b l e portion N M Q S is assured. and application of ertablisken: of the schedule to wtic5 of the emissions from an +sting amtionly n o u r u . all such available measb-es not the initial PSCIO moderate nonattak=ct areas EPA'r policy is that ruch conml may be excluded . . must submit the conlingency rneasu.7 .v,ukcaenr rs bekg unreasonable for ' h t source (See'also . . The Initial PM-10 nonat';linncnt m a s were .

Alabama Power Ca v. Cosrlr 633 F2d 3 2 3 . W " A mderate P.M-10 area is r nc:a:>ixnent . .designated nonattai~ment upcn e n a e c t by @.C Ci. 1979). dljcured above). RACT for the - area for m y air pollutant w i h n fie maring of operation of low. See rection lUi(d:(4;(3: Under *.e sourcr would therefore be no contml or. rtated ~ecf ion 1- Thu. for these areas. m y =odificatiom rckedule catablkhed today. a n L m ~ 3 c f aeasures rltcrnatively. EPA would coaduda h a t coobal to a Y wnhol requirements. Lndu&ngTSP. would must be rubmitted nolater ban 3 y e a !=om the - trfirrology for the souru ir not h.yoaably"

. . . have ecaurt equivalent emirjion r&ctioni of : . nonattainnent deaignationr for thew m a r whi& available. ; . r.-... ; . . - .. .! .. . - - - W I Q ; - -. .: .. . -. . . . . . . _ _ . . . : . Ln ~3 imtance. i; no later than Nove=kr IS. 1993. - . . . . . . . .

13544 Federal Register / Vol. 57. No. 74 1 Thursday. April 18. 1992 / proposed Rules - - necessary to demonstrate RFP for one &rear that do not demonstrate instances. the installation of p ~llution year. For instance. reductions equal to attainment. controls reptesenting RACX m ly involve 25 percent of the total strategy wotlld be Amas that mmot practj&lly subutantial capital expendit~ a. In h e appropriate for a moderate demonstrate attainment of the PM-IO event that BACT ir later requi ed for nonattainment area since the control #tandar& by the appljceble attainment those mUrce8. this may requir controls rtrategy must generally be implemented date will be reclae8ifid as refiour areas mipMc~ntly incompatible wit those within a 3- to 4-year period between SIP under rection lw(b) and be reenlly installed as RACT, la gely development and the attainment date. require, to implement BACM, wasting those rccent expendi~ uer. and since RFP generally requires annunl include, the application of BACT to Under much circumstances. th~ incremental reddctlonr in emirrions to cxirting installation of conbols in the 1 rrt round attain the rtandards. Rep. No. dm, l a s t Cow.. 2d Serr. 276 SIP be lmnable-

The contiwenc~ measuns rhould (1990)). ~s d i r c u r d below, for tho= Accordi@y. SIPS for the i i t i ~1 consist of other available control that ,,,ill be =clardfied m~demte areas reclassified a aeriour in measurer beyond thore required to EPA believer it may be rearonable in ~e~~~~~ ~~~~~~~ not attain the s t andub and may go beyond linlted -t mgs, for st;tn RACM. It ir important not to allow contingency measurer to obviate an to consider the mmpatibility of RACM WuIrr -jar the ' 'ntrol

and RACT with the and BAm wrtems for rpecific stack and process adequate and appmpriate control m o m whm a State reaaonr bly rtrategy demonstratiom that be demonstrates that nu& &an8 r will be

Contingency m e a m r mudt be under the reriow area plane for thore arear. significantly incompatible wii I the

implemented immediately after EPA application of BACT-level coz ml determiner the area bar fail& to make the cam 0fRACM for source% -terns. A State'r demomba on r h d d RFP or to attain the rtandardr. i.c. if the EPA lnticipater that any fuhue include. for example. rhowine what the rhortfall conrtituter a &action of the implementation of BACM for there State believer RACT and BAt T are for

. area'r annual reduction t q e t . the mourctr will be additive to, and hence the rource and why they are measurer to be implemented rhould address the specific deficiency

com~t ib le with, WiCM. Thb because significantly incompatible. BACM will ~ n e m u ~ comirt of a mom l, the caw of fugitive dust 4 s-ated indentity. The purpose of the extensive implementation of the RACM ndth romes, lntidpatn

contingency measure provirions to measurer (e.8, pa* more unpaved the implementation ofw ,,,ill be ensure that rxrrective measures will roads strengthening the camponentr of the btion of autometically become ~ e c t i v e at the a S ~ O ~ C management pmlpam. imporing R A ~ - b bared on the fa :t that time that EPA makes EU& a additional requfrementa to hprove the conbol of ruth emirmiom ~d ;r B A ~ detenhation. The L. =quind to perforrance of wood budIlg devices). gaanlly be lo I

w'thin B0 dayr after receiving Since EPA anticipates that RACM and conbob (is&, congirt of a mar a b m i v e a milestone demonstration and within 8 B A ~ for thew rourctr will be months after the attainment date [or I or compatible, the for there

application of fugltive dmt ex ltrol %, 1 2 yearn later if extensions of the measurer imposed as RAW fierefore,

should reflect the applicetion of EPA expectr that to the extex that attainment date an lpantedE whether available control measurer to existing control of there 80-r ir these requirementr have been met (sections ~fS(c), lee@]~z] and lSg(c)(2]). roU'Ce' in moderate technologically and economic ~lly Contingency measures rnurt be fully by analpis fearible. the SIP8 for the= cu far must adopted and take effect within 1 year de8cribed above for ItACM. reflect the application of avd nble without further legislative action once As discasred previourrly. the control technology to a d h r r fugitive EPA makes such determinations. determination of RACT for specific dust emirriom arrociated wi h

Moderate areas that EPA finds have rtack and Procerr m-8 indudes stationary sources. failed to attain the rtandards by the consideration of the technological and (a) Attujmnent dare ww've~ applicable date are redarrified as economic feasibility of control nonanrhropogenic wurceo) Z nder rerious areas by operation of law mearurer. In the care of thooe moderate ~ c t i o n lBe(f1 of the amended Act (wction 188@)(2)). Guidance for serious PM-10 areas that were designated may waive attainment dater ar a areas addrersing the contingency nonattainment upon enactment of the udera te w h m de rrmfneu measure requirement will be issued at a lseO CAAA, EPA plans to rscLarrify that nonanthro~ogedc ~~ I of -0 later date. thore areas which EPA belime =mot umhibute rignificantly to a v olation of

4. SIP'S Tbat Do Not Demomtrate practicebly attain by December 31,1994. the -I0 N"QS the an r.Thu* Implementation of BACT will be those Stateu having modemtc PM-IO

Atta~nxnent required for rourcea In the krttial nonattainment m a r where r &cant

In thore modemte PM-10 moderate areas that EPA ro ndarrfier contributiOnr -lo Om nonattainment areas where the State's a p p r o ~ a t e l y he deadline e m W'VCCS not caused by b u n a ~ control rtrategy cannot demonrtrete for implementation o f m m . ~ many k t l y or indirectly may nq leut an attainment by the applicable date attainment date waiver. How !vet, EPA mandated In the Act tbe State rbould - may only waive tbe attainme ~t date for document that ita control strategy .* Unda omion lf4.L -01 mu thore modemte areas that ful y r epwnta the appli*tian of RACw d..ls".t" ~~~t .I mmmt mwt

lmplemmt R A W (iacludirq RACT) by D # m k r implement their moderate rn r SIP consistent with the "determination of ,a lorn. d- nquirementa (aee HR. Rep. I o. 480. RACM" dircurrion above, to existhu rriow mcut imlcmmt B A ~ B A C ~ lmrt Cona. zd Sers. 285 1189 3L Thus. -- rourcer. The EPA believer It b

- drhL, r m n .h.r ndudfiatioa 6 u EPA any suteXaving a

reclronable for all available conbol 2 ~ ~ ~ m b w ~ ~ B A ~ ~ h y nonattainment area that the ! tate / measures that are technologically and 2 mn .hm w m h wcmrnutb believer may qualify for an r tainment I 9 economically fearible to be adopted for h d l ~ n t rw urn. date waiver rhould be never1 ulerr

. . . . .- .:: I' Federal ~ e g i s t e r /;VoL 57; No. -74 / .Thursday; hpril -16, 1992 1 proposed :Rules . . : - 13535 pmceeed with.SIP development and , . - of modeling ofmonitoring information- ..: : improvement in air quality is due to . .

. . implementation. -..- .. ? .. . . . . . which indicates attainment or - -. : : .. . . -. permanent and enforceable emissions .In addition. the legislative history nonattainment of the NAAQS. For 1 .'.: reductions. the area has a maintenance

suggests that Congress contemplated a . example, an area might bedesignated .. . plan meeting the requiremenb of section narrow definition of what may qualify nonattainment for violation of the, .-.:' .. . 17Sh and the area meets all applicable as monanhpoger+cU and would limit . . primary SO1 NAAQS, the secondary L . . :.-. requirements under section 110 and part it to activities where the human role id . SO1 NAAQS, or both.'' More detailed . : D. The Agency will issuedetailed ' - - the causation of the pollution b highly,. . . idormation about the basis for .. : ; .- ., . guidance for States seeking - . . . ;

attenuated (see generally =.Rep. No. designations under the new law is ..:.: ' redesignation of nqnat-t areas to 490). l~ntbropogenic source?' .. :-provided in .the following discussions.- ::: - attainment at'4 later'date. . .. ..: - ... . - - : i. btended to indude actidties that are : .a [c]Mefhods of designations. Some .-: - - ;2 cl&s&.ti;~.:,T , L ~ ~ ~ . : ; ~ ~ ... . . .

.. : a n ~ p o g ~ c . i n ' o ~ ~ Ancxam*le of :--. areas weie desQna.ted :b~.pperatioqof :, - . . , , ... ..! .-:. ,, . . ..- . .. ::.. - . . .

; suchsp-, sb the drg lake beds at .I.;:= .:- 1aw":upon enactment of the~lse0 CAM.. - 'l'& classification @&@ions (section. : Owe& and ~ ~ n i Lakes in-California.;: . based upon their'status . i iediately,- :..;..17Z(a)[1j] ~ v e EPA theeay@qritg to '- . - . .ivhich give .rise to, dust.stoinu that are a .. : befoe enactment Are* which were';&. .., classify nonat taiyiet -as for.the. :'.

tesult of the diyenion of that :;::: .:.des@ated nonattainment by operation '. . purposes, of applying attainmat dates : wodd.dtherivise flow to such lakes and c of law.(section ~q/(dl(l](C)] .- listed in., . (section 172(a](2)(~));%1 &erdjing this .

&q,dd,be considered anhpoge@c . : 40 part 81.1:: :': :-...; :: . . . . . . . . . ... - 1:. ..: . .. - authority. EPA may consider's:^?? . .

sources: piR. Rep. No. 4% at 2S). The ... The =A now authority lo . :. - : facton j s Gseverit); of the ! - PA intendJ to issue additional. . . .. redesignate additional areas as ': , : . . bona&&ent p&ble&br the . . '. guidance on the scope of the waiver ,. j . nonattainment for SQIThe first step in. i availability Hnd Zeasibility'of the "

. . p d ~ i o f r a~ it applies !<both moderate this Process . for EPA to notify .the - : : po~dtio'n co&trol mea,sures. Based upon and i&ous phf-10 ?onattainment areas :- affected State's Governor that available I the dasiificatiod EPAA&ay'iet later .

-. -. in the nearfuture.. ' - - ' - . . - . information~hdicates that the : . .: - . i - . dates for &th more : ..[b).ln&maffonol border@ai..~nder :, des i~a t i on of in the State..::.-: .::: :severe air quality'pmbli&'(secg6n iectioi1'179B pf,the-.mended Ac t aSP - .- sho!d be, revls,ed (sectio? 10~(dl(3l(All. I - 172(a](z)(~]].:~t t h d ~ k s e n t time'EP.4 ' - :

.. for a moderate pM+io nonattai-ent . . Sechon 10;I(d1(3l(Al provides that =A- ... : does not intend to'estabbsh a specific ' . . . af&iffect+ Ky.emissioni orightating .. may act (i.e, notify the Governor that an :-.classificatioi scheme for areas which.

hni stjii+i+ outsiddthi Uriited States, . a k a should b!! redesignatedl ?on the --r.-... violate the primary.oi the secondary .: . . shaU b&app&k,id .-.basis of a u quality da!a. planning and :; :. SO, NMQS... ..;.;:. .<.. r .- :; r :': --

. .- .-.. . .. , .-.; . . ... . . p f < ~ + i d r.v& pl& neeij,ij,a]] the ji. ;. ; conlro!~~ons~erations, or, any other a i r .. . ' ' ' ' - - , ' . ' . . . . . '

applicable ~ ~ . & ~ ~ b G . i r i i ~ e ' f ' ~ ~ ti- quality related considerations the ,...:, 3. Plan ~ u b & ~ ~ i ~ n ~ e a d L i n e s ... - . .- :. :. . .: - [mdudiig. for example.RAChl/RACr). , . Administrator deems appropriate.*:No ~ub&ssio. deadlinii foi States to

other thin ii"riqbireir.ent that such a ' later than 120 days after receiving this submit implementation plans (part D . '

plan or reyision demonstrates ' : notification. the Gqvernor should submit plans] for SG NUQS are given in a t t a h k i i t of the PSI-10 NAA.QS by the '. appropriate redesignations to EPA ' : . , section 191. Explicit plan jibmission applicable moderate .?a attainment . (section 107(d](3)IB]J. Lf the Governor deadlines are given for honat:a:ment datei and the SIP demonstrates that the fails to act within 120 days of thjs areas which violate the primary S G area would attain by that date. but Zor notification. EPA shall promulgate the N.WQS (section 1911. Explicit plan the emissionj emanating from outside of appropriate designation (section . submission deadlines an not @;en for the United States. Generally. EPA 107(d](3][C)). If the Governor does .' nonat tahent areas that vio1a:e only expects .that such areas will be adjacent respond. within 120 days after EPA . the secondary or both the prirzry and to international borders (e.g.. El Paso. receives the Governor's response. EPA ,secondary S G NAAQS. however. .

Texas; Nogales. Wiona: Imperial nust promulgate a redesignation making (a] Initial nonattainment c .~cs . States Valley, California). " -my modifications EPA deems necessary with existing nonattaiment c2as for

D. Sulfur Dioxide (section 107(dI(3](C]]. I i EPA ifitends to &e primary SG NAAQS whex those modify the Governor's redesignation . areas la& fully approved SLF~,

1. Desipations submittal, then EPA must cotify the inc!uding part D plans, must s 5 n i t The Act, following be'1977 CAAA Governor of the rnodi5ca'Lions no later ihplezentation plans (s,ssccn ~c l (b ) ) .

5an 60 d a ~ s ' ~ r i o r to the date EP.4 .These implementation plans zest mee: gave the primary for initiating promulgates the redesignation (sec,tion he reguiremels of 9ubplrt 1 cf part D, designations to State Governors. W~(dl(3j(CII. Although State Governors continue to and key nust be submitted ufL!in l a

(dl Citeria for redesignation. The have authority to initiaie h e designation sets - months after enactment of the 1%0 P ~ O C ~ S S (section 107(dl(3)(D)I. the 1990 requirements which the CAAA (i.e.. by hlay IS, 1S92). C m also give the the authority redesignation of an area from (b] Subsequent nonottcincien! arecs. to initiate and to promulgate States with areas that are designated cr designations (sections l ~ ( d ) ( l ] ; (3)). nonattainment to.attainment [section redesignated, after 19w

(a) CIassifiation categories. In 107(d1(31[EIl- The particular criteria for enacment as nonattainment &Pas for general. areas may be designated as redesignating nonattainment areas to . the pbary SO, N ~ Q S must submit nonattainment attainment or . attainment (section 107(dI(31(EIl include implementation plans (section 191(all. undassifiable for the N U Q S (section the foilouing:The area has attained the These inplemectation plans zust mee! 107(d](l](C]], and they provide authority NhAQS the area hr3 a the requiremenb of part D a;d h e plazs and schedules for designations of areas (sec!ion llO(k!j

. . pian! the ,,st be submitted within l a zonths oi ''I following promulgation of a new or. : . .. . . . _ . . . . - . . . . . - . . the desipation or redesignaticn. $ revised NAAQS (section 107(d](l](A]. la The Primary SO1 NGQS. Is LL.at level which is [c] secondorl NAAQS. In L ? ~ past,

. . [Bll. . . -. . . . ;; : . .. - - . . . .. . .- . :. . - . - - ~ u i n i t e to pmtect the public btalrh' [section .

. . lW(b)(l)).Th& hecondq c& N ~ Q S . i, that level . and the A g e n e has required

(b) Basis of designation..The SOs .: - ~ h i c l r i, -r+~uir i te to the .. . :-more expeditious resolution of . . - designgtions can be made on the basis -. [ a d o n lCe(b)(z)]. - :::;:. r ; .;.. .:... t . :: - . - 0 . .. , -. . - . . ;.nonattaiment for primary NAAQS h n

-33598 .a:... ~ & . ~ ~ - ~ ; Y d ~ , ~ o ~ 4 - / i ~ d a 1 1 ~ 1 9 8 ~ ~ / . ~ o p o s e d ~ ~ - - I . . . ... _ _ _._._ -... . . . . . . . . - . . ..... - .

for exam& of this - ~ u t h ~ n ' Q b n t r b b h Drdble !r::-:~~.-. - i. - a & A .bodd &dy pol '

arr: the dvoilabilitjrofl6-moDth :..i ?=s... ettainment d a t a {section y2(aH2)(A)- .-: exceed 3 years from planadz&al I..:: :-: . ' . . - . . - . . e h..hpkmatatidn plan :. '_..:,: - (C)]. this f l o a i d o e , notady t t ~ . -. -. (sectionllD(a#Z)(A)).Thir h p l h that . -

. su&nnittat&x~ttdaryNMQS -.-.. :,I.; are=whichhavzapecificat' t .:I-- t h e d y f t d f o r & a ~ b i b t y o f ~ - . - ' ( s eq t ion~~~@~) ,d .~ .d i s&et ion ;--:::,-. d a t e s [ s & t i o n y Y 3 ( 2 ] @ ) ~ ~ , : . ~ N A A Q S a t t a i n m e n t d a t e b - . . : 'alb.+hdattyfot8ttainmentof ... ;...c r. the &xibwd= not rpply b'.>:~.=...;.:. - a r ~ & ~ & t e b?u 5->:--.r . .

. . aecon* W Q S (kction .:::- ::::-- : : :: .! . . ettaimmcnt af !he SQ'NAAQS i i . txpeditiody as pmctreable- - . 1lO(a)(2)(A)]. 'ri..: .I;. ! -..f ;; -i ; ;; : -:. ; ;:.; ' became t,h a-&& s p m . 172(am])-:::*: .:$.:!?::t -.-:' : . .... : Fdr.amm whit)! vjolate b& primary ::. for primary SOi ' tarear .>:::,-.:. T?'*- - ~ t g && -;'; :

1, & d s k p d a r y NAqQS, all- > .. ,::la. (sectioaS92). h t it doii applyld-:;-.l..-.~:;: p-*~~91m to-dgoi ;.'. '. . separate schedules for secolidary and ; .: secondary SOI NAAQS becaasi the .. -: -- a w - *.-NARQS .'. -. . . p ~ ! a r y - p l p l a n s - ~ ~ ~ s s a ~ ~ ::;.... .... . : :' . I ~ ~ o C A A A & ~ ~ ~ ~ ~ ~Z.?;':'C:.:-::]. w & w on hebash d m b '-: . .

mnptfcatq plin i m p h k n h k ' :' '. . .:a ttainment date Fqr .pmdary -!:-.--: ixpedj~&* &-jai9a-i~~i.iagq;-:-; . . ,_ . . -- *.-1g;r ..L -.. . -... ... - *u ;ati n&a&&nt .". and,procbdng .=fme,W& a'pccts '; nonat&inmmt ;:yv7? ;y.-: F-,: . ;:.-:-:.< .:.- see* NAAQS #tainqent plans to :;. ' . (a) ~ L i d n 6 ~ t ~ c : A r e a n - : ' s&ddarpi~?N~~~s.&ayb<&j&j -'

be urboritted on-& same d e d & a8 whida were de'ngnated hiinatt-! :fS-:-: a d d i t f d bmg fo!'attaiament -.: .

. pl+&:f$:* W u - 9 ~ fc;r these 1: at the h e d B.&-+h ~:i!r+ . t h -dded $jf&= pdmdy' . . . >....' .. areas. ..-;';::A sliT.zi:? ;::?;; > ::)<z:L:;;:, which are nonatt.aiqment bf--liG 7.2 N M Q s fn g- w ~ a - a y ' & & ..

. ' I As'a result 0 t t h e . M .W Em :: 1::. of la*. m ~ ~ t attam'the d e NAAQS .&brM+ *j&'~iKf~ 5 1 ~ - . . . has a e authority,to &a@& a khedrrle .; as expediti~dy~!8"practicab1e & ';'-' (subpart R] sdete-k +.c! .y.G-r5:,?- ;-''

for submiM-bf a.r-daryNMw, 1 ::,..;later than's years aftei;' enictai&ni al &&;. expe&-md:*ai3>-';. ?3.1!3?.~~.:Ii;. .. (wn uz(bf]. :I,,(: l g g ~ - ( i e , b i ~ - ~ ~ ~ , ~ g g 5 ) - . ; ~ - . ..&.-.:*-.-'- *?.

=---.- ... .;A .... are n ~ ~ ~ n t for ;:. .i

-. " wbbbh &is r&e&& at ,; ( s ~ l ~ ~ . ' : ; . ~ $ j ~ 5 { ~ . 2 ~ : * i i j . ~ sw.r;;:2 bdth the' &&d3-,5:y "-,-

the time of -& honatt-t -3::;. ., ., .; (b] Subsepe@t nbn&&3i=--.::~~ NUQS may rpbt their i s ..... '--+ - ' . -. 8 , . . . .d&"; ~ d . 6 ~ & g + ? ~ T J ~ ~ : ::- , des ip t i - p e S I P . q ! be iubmitted .;i' Areas which 9ie re&-@iti?d &'J:::'.':.::-

. no h e & 3 yean 'from h e dare' of ~e . . noh*6awii i u q : 1;::e .I< withih 5 .a-*;ihe %&i.i&j* .- ' . .... -- ' nonatt@une$ d t 2 d g b t i o n . M :.:.! No&mbqlS;iSg) datedf ~ ~ * & ~ ~ % ; ' ~ C : - . N A A Q S ~j~&&id;rslyyaj;~i$"&&bl~e:~ . the law d o w s up to 3yean form..-:.,::z~mud attain &e @m%xMQS "as ?'':'{ . ' l " h j ; a & *Mdp&ideaw 4;

aubmitbI, k a m e the k~d'vf e t m l is i ' expeditioudy as p*i&c@cableT bat not ' =';. the s l d G - a B i i & i 2;;- 1 ' ... no difficult to establijh &an for :!: 2. later &an 5 g e m aner the...:71.":...: / ;':.! : se- NAAQS -*s*wed:ri : .' the prha iy ~AAQ~,*d+bsent, -; : . . ,, . . . - no'natta-ment desi@tidi, f3'don .", L>-! withia the .same G*= *;;-.- :c ': ' . . urmpelli* j a & _ t r o n ba State, R A ... 1 9 ~ ( ~ ) ) . . :: ' ':::., :-;::~~...~~ :<-:: ;:;-.-:.':..::> p + + w ~ . ; ~ ; ~ ~ 7 ~ s ~ 2 ~ . . . . . x;<:.<:..-: ':

... , .> ...". - .. .-2,:- - .... .: ;:;T;! :c-y:. : .-.:. will require SIP'S for h e r e areas within ' (c) ZnodepGtip1an &&]SF c d +-a 5. NOnadmiPkn .:.; ,-. .

. 1 8 monthjof mnattainment designation.'.. areas). Some ndnattahment area; ha= . . . . :' --. . . . . . . a e . . . . . plans wEch &r;e'ippmved by EPA 1 ' - ' (a) 0vervi*.-~h=1* ~d&b-&d' i - . . . . . . . 4. Att.&&;ni~natek i,.: -3.:. . :*

I

.... ; , . . . . . . . . before enactment of the 1990 + K i States to submit irnpkm+ati&iddns -ij&congress . subsequent to ihe plane* approval, @A ' w h i d wodd indicate how ih;'State . 1; apeciEic anlinment dates for finds that su& a plan ia substantially '

would attain and maintain the NAAQS. - nonattahbent areas which were found inadequate. the'plan must be revised to The requitemeits far these general SIPa

. to viola& t h p* SO, NAAQS." provide for attaigment The revised pl-q . w6re listed in* A section 11.0. In fie . Attainment dates for nonattainment mu3t provide attainment of the primary . 1977 CAAk reqdnem~& far ' . . areas violati~g either ju8t.ke d m n d h ~ NfL4QS within 5 years from the f b d k g ' impkme~tationplazu in noiattabmect .

. Qr both the P ~ W 4 semndaCj SOJ of inadequacy (section 192(c)). areas were given in part D (section1;l- NAAQS were Got specified although. id) Attainment ofsecondary NAAQS. .178). These reqoriements addressed a Cmgreg deleted the requirement The 1977 CAAAset the attaimnent date number of issues including, bat not the Becaadq NAAQS be attained by a for secondary N M Q S as "a reasonable limited to, attainment dates, p m - t "reasonable" tiw for attainment of Cme" (3ection110(a)(Z)(A)).This wzs requirements. and planning pmcedurer secondary N M Q S (section . ,

. . consistent the requirements of tke The 1990 CMA have not made

lio(a)(z)(A11. - . . 1970 Act. At the same time. for the cew significant changes in the plan The 1990 CAAA require a t t h e g t 0; part D nonattairrment areas. section reqnir,dents for SO, nonattainment

.both the primary and secondary 172(a)(l) established the attainme~t date areas (section 172). For this reason. NAAQS "as expeditiously as for secondary NAAQS as "as States may generally continue to rely on practicable" { d o n ~2(a1(21 [A) and expeditiously as practic+le.' T h e D A past guidance furs& p r n g a m s . n s @]I. Although the 1990 gi\z EPA reiterated in regulations that -a posificzo. in further supported by the I

. . . . . . reasonable tinie" after plan approval Genka Savinga Clause contained in . - Thr rw7 ~ 1 1 ~ t o n h tbt requiremen1 . was allowed for attainment of the - section 193. A summary of existing h m the 19;0 Lhal %lei a r b d l lmplcmcotrtion p 1 ~ 0 whi& provided Ior

secondary NAAQS (40 CFR S1..110(cl(l)l. - policy and guidanee may be foundin !he * .

.lt.iermt( d m NMQS'ar up&mly a, In the 1990 CAAk Conlpess provided 'SO, Gui&linco the 'Y;uideline On Air pm- b l - - hw rhu . for attainment 'as expeditiously as -' ' Quality Modek ( d s e d ) . M and otber y r ~ ~ - f t w n t h e datcuf~pprwal d t h p h practipbl.emin both primary and . . .documents listed in AppendixB. Despite

~ o ( a ) ( z M ~ F n r v c o * . second* nonattainment areas [se&n the '&ued validity of pad.guidance' N M W ' a ' l w u rrqukdwdthin'a

. E-auez3nion n q a X a ( ~ ) rft- 19;7 l i Z [ a ] D ) - C o ~ e s s set.. in the implementaticm of the amended . . . CAM). . . . : . . .. : attainment date of 5 years fur primary ' . Act f o r m NAAQS.tbere gn some ' , -

For prrc D +I--- ~h 157 C ~ M - - N M Q S (see above) but did not set a - - - - areas of policy that n - 4 to be dariEed. r fguirrd~currmat for both primrry a d caondrry ape& deadline for ettattaiinnent ol . . - One a& &at will need $&cy di : : . - - hAAQS aorunahmma! y e 0 0 'u e&tiowly u

. ' pnctiablC but fcr primary a n d m du&e secondary M Q S laectioni92J At .;- da+ication is the gsue ofplan, i -1. . :-. . . . e ~ ~ c c r m ~ a t s g t w , o . l . , , g i w , , ~ n . ~ ~ :.same the Congress deleted&dh. . ,::..... appiovaSTk EPA h t d a td cohsider.: . . . . . . .

.... 1,33~4 CAM).: :; :. .......: -? : .. ; 110(a)[Z][~A). which had stated that : - . _.'' 'only& E n a l m d e n i ~ &Wd& ' '- : .

. . . - . . . . ; :- Fe- Re*&. ./ :w. 57. ~a 74 j , . ~ h w d a i , ~~=ii lti 1992 1. . ~ o ~ o s e d Ruler.. . . 13547-

. . .. . - . . . - . . . . . - . . - - 'SIP at the &e & & i i e A t jn ; 1: ...,: definitiin of R A ~ T for L that . - :* meart& shall &List of othu h l a b l e

/-...: Aatioship. to the req--tseof the, . ; con* technology which b necessary'to control measures that are not induded 1990 is by i s t en t with the ;: . 'achieve the NAAQS (40 CFR 5l.100 (0)). . in the control strategy.---,: :.. :';. . :I . .- $aviqr C1.au~h for &cis- planan . . . . S h e SQ RACT*.eady d e b e d as . . . . The =A interprets the & t in&&~~ ' .

- . p&sions.(sectioa llO(n](l)]..If the --.:.;:..-j-t.he kdna~ogy n e e u a r y to achieve :,: ;..: me.ararc pmvisims as primdy . -.-. .. - . nonattainment area had a part D plan :-.;,:NAAQq c o n e l t eeo logy which 2.: &:: 'directed at general pmgmm which can that wai appmiied ptior to ~ c t m h t ; ;, failed& achieve the SO1 N M Q S -- : ..:: = ' be undeitaken on an areawide bashi' .

.. . the =A 'a not require a iiew-p& D .:r .. .would, by definition. f d to be SO1 -:- - &'& SO, p m a b sped& al-2'.i..r;.-:- .. . . Sp, For thme'are&,-a&w p&D.w..:.k . RACT. .. ..'! .:e2.- '' '. -12 " - ' '- .!:q.-:-L:I.;~..?::-:;. ' ' :. - 5 . -, pmiderat im. for d& : *. : . -

. . a io(bereQ&d Natdlesr ,of :I: :;;,;: ,:,: >' The.EPq intendsf0 Httlinue de6uing : dteria pohtant&'theana]fld - ... _ whether, the a t t h e n t date for .the &a RACT fo: SP aa.U! control techndogy . toob for quautifjdq the Aatio&p ;. . . '

.... . ... . - -. had passed at .the t@ie@endw?tpf ..;,whi& wdl achieve .the, NAAQS *thin -:;. behv-du- iip&&' u ..: ;- . . 2- .q , . . .- _. . . the 1990 C&?#&,Howqef, if the ' . ~ . ~ ~ ' ~ I ; i ~ . ~ a @ ~ t ~ ~ ' t i m e ~ e s ~ ~ : ; . ~ : . : ,::. I- :-< !ij:.. -:. ..-sioru'and re* &*@axtj; :? :.;.. :: - . - _. . _ appmiid.plan was nota part DpIan;: .,-. -(2) REP!. WO? lT(11 pf the ahended :.impmvements -aimsubject ti, .-:$ . . . - . . - . the State wfllati'e'to'shbmit a complete. ;Aedefqea f~~ch'kmd..f<-::::.-.:: ;ai&-t uncewtjes; ine&iihst ' : - . -: : - p a D pl* to EPA for appmval becaee .I incrempta! r e d u c t f o ~ .in.e&siom of -2- .with p d d f o r p o U ~ t a n b ' ~ c h 'is -.. .. . - . . . .. ' .part.D pla&--&$qhded for,';':::i-.;1:;;,:,;: .:the .eq-+t aifpbUutant a! are required =:,$,gcond earnion q s f i a t ~ 'and . . - . . nonattainmegt @as'(section,l?l(bJ).: i: :r .:.by.hs part @e DJ or may reasonably-.-.-. attainment anal* canbe r h d y . . . -. - - .. . - - :.- .-

Fob j clarification h aLo needed :i"..'!--be .muired by P A for the purpoie of. i." .: influenced by o v ~ ~ O p ~ ~ s ~ c ~ : :;.-:. : concerning the btatuj-tuj-'of,are+th+ lack ':: - e m attauwent of the applicable ..i.,. assumptiom a b t conbi,kffid& .

..- _ . .. . .. . _ . ... . appmved patt . D . . p l a b and that contain .. . : . national ambient &. qud ty .standard by . - a d rates of compliaan& form- . . . . '-. . ;:. . . a SO, Cmisaion so-& that has ::;<I'.:. . . the applicable da+ycThia definition is r- ' bo- ih &fibs&&& for ~ 0 1 are - .,. ; permanenuy shut do&- A G h h ~ p f -:-..most ap'propriate.for poUutan@ which .- rndent&j and'are fail& wne: z;: . - . . ' hvo'actioru are required for.States :, ' '" are emitted by nrrpreroeroiis and divefse ;.:':.-to &dain ty . since s~;'&&,jl ;::. ..;. I.. . . . -: - .: . . .. - . . . - .wish& to'eitablish that - - th&e .,.... .+bas .sanrces, where the relatiosihip &tween -, & by dkfini~& based . .. .-: . i. . . . . . - inoperatiite' for .. s ?~y;i+::i : '.':any individual 80- and, the overall air - what js directly &d bantifiablf! -:. .'. . . ' ?.:I.: ', I. '. The k t a+on is that the Slate mmt;.. quality is notexplicitly.quantified, and : :;' n e w ? s q to atla@ the SO; FJAAQ$ it ..- . "'- . -.:prbvide EPA 9 t h r idfiabt e*d@+o:.-. where the exnission reductiom ..: ; ..-;s.J;=.~would be d e l y for an aka to-!.-. .. .; -, .-q: ;. .. . . . . ., - . : e s t a W that the'ioriicl! hab in fact ,,= : . : ? . n d & a- are .';; ; -. . hplenieDt the djskk ' . . ' - - . . . -* - ! . beenprmakkdy h t donm.Three ii.::i:'. invgntorg-yide,ne definitionis ;.;. . ;;: : yet'fail to a&i the N ~ Q s : . . ' . % a i t h -t for ~ t a b & h h g p€TJI?Wnt.; generally l e s i , ~ e n t t t o pohtantJ <;-. : Th&brG for SO, $+j, E ~ A -: .. .. ,.: :c.. - - 3 .. <.' rource phutdo,yhi.Th&e criteria . r e q e -r: such as SO, which & u d y have a _L:: -. interpkb to - . . , =a. . . proof that the source ha8 been 1 :'<i 2. . .. . l a t e d number of &tiamhips ' mean that the state ha j a : . - .

. . i n o p t i v e for at least the 2 preceding .-: .between individual so-. &d air.. :. c o m p d e n s I w program.to jdentjfI :. . ' . ? ;. yean. that the sourceis precluded from. : quality which are ielatively well . : .. ; - :- s- ofvjo~ations of the SG N ~ Q S . - . --.

..'. resuming operatioms and that the wnfce dehed. and.emissions control measures .and to =dertake an aWssive follow- . . .. . bas been withdrawn.fmm the State's . - 5 . ' a& re& in swift and dramatic : ' . .

up for compli&ce and en. f~ .=ent . ; -. . -. . emissions inventory. '.. .. :.. . . . - . imprO~Ement h quality. That i a for . :' incJuding expedted procedures for ,

:- The .secondaction is that the Sh te ; sa, &,is i.ingle .ltepw.. : e3tabfi3bg enforrrable cohat . . . : . must estabhh Ihat fu!y-appmved NSR between p w ~ b o l nonattainm,ent m d - agmminb pending the idoption of . ,

and PSD P v .are placero that. . pofi-trol betw-.-ntrol . : sps. , . - - - ,.: . . the so= would be requimd to ~ d - 0 . n o n a m m t m d port-control - . . . . .ms d e ~ t i r n of . ... ' . . ' .. NSR prior to start-up if it were' -' attainment ." .. : reactivated.. . contingency measures for SO, d&s not

. . Therefore. for SU. with it9 discernible a State from reqairing . . ARer the State has compIeted these'. . - - r,!ati&p between e ~ 3 s i o r u and air

actions, EPA will consider additiona1 - additional.contingeocy measure3 that . - qu&@ and and immediate are enforceable and appropriate for a . . plan requirements of sucfr areas on a , impmvemmts, R~~ particular souice or source ca'tegory.

- . ascbyuse basis. A1tcmativelyl the continue to be construed as "adherence 141 sled hejghf jsue3 andE3hd. .State may choose to submit complete to , - . pa,? D plans to EPA for these areas.:As . O . . . . . . ' Three pmvisions 01 the s t a d c h e s t discussed in a previous section on ' ' . (3) c ~ ~ ~ ~ ~ ~ , ~ ~ ~ ~ ~ ~ , ~ ktion

ndes have been remanded to EP.4 as a redesigation. section 1rn[d)[3) provides . 17t(c](9] of the amended ~~t defines resuit of the court decision in PO!! v. that a nonattainment area must meet all contingent, mearms as meam$ in a.

Thomas. 838 P2d 1224 (D.C Cir.]. cert. the requirements set forth in section - . SF ae to be implemented if an

denied. 109 S.Ct a 9 [19M]. The EPA has allowed Sta!es to move'ahead on

. 107[d)[3)m* a mafnte-ce area I d s to make WP or fails to attain affec!ed SIP levtriois without rrgvd to pIan consistent with seclion.175A : . .

. .. . . the NAAQS by the applicable befork it may be redesipated to the remanded section of there d e s . but

. . attainment date. Contingency measures .with the caveat tha.t the ~ t ~ ! ~ ~ must . attainmenr?he EPArrco@es that this.., become effective without further action remain awarr of the shhu of lest . . ' irsue is of to by the State br.EPA.upoi detednatidn rules;md may be required to ae . - ' . .

1 -- !

and PAd . by =A that the area h i s failed 16 [I) -?Pction at a later date to respond to Ndmce mnce* plan =qukmenb. . Gasonable mer p m p s s ~ o ~ (2) rule revisioa resulting b o a the remand and redesi@atio~mu.kmenU in the. at tab .the S a NAAQS by.the applicable -bee , -ht- policy on stad ~~s~ future. . . . . .

[b) ~ s u ~ ; - - ( ~ ) RACT. For most dea.&e.These .. . . . . _ .. . A . _. conFgency . - : Regulatory Actio~." J. Craig Potter,. citeria pollutants, RA(=T is control . . . . . " - April 22,1988) . . :

.>' u s ~ ~ v k o & t d Gtktion b c c y . Ofiice , - . (5) B h g m & ~ ~ ~ r o ~ ~ . The technology that is reasonably available . of fi hY)lv Sdd %dm- , : -. considering technologic~l and economic won ,-. ... amended Act requires submittal of a . -

2 - > . , . feasibility bee m ~ o r a n d u m born R. . :. . , . . ~ a n h l fiG-.m- we pukPuk ;;-icomplete SIP18 montha fmm macbnent , . ,

StreIow; December 9,19761. Tbe.' '- . ... - N d Camlinr: Janpay a. ~7.1881~ pcge .. -. :..:or nonattdihnent dmigiiition [?ection . . , : l, :;>.::- . - . . . .. . . . . .

. . .- . . . : 13'& : ..-. :. .,' . . . __ _.. , . ~ ~ d ~ a R ~ $ & ':l-fil. $7;. k0>74. . . i : ~ h & & ~ i A ~ A , ia;'iG2 1 . &p6jed :,kt& . .: ' . . ' - . . . .* . . . I

. . . . . . . _ - . _ . . . . . . . . . . . . . . . - . . . . . . - . ..'I-.. .. . -:

. .+ . '.. -. ~%j..ihis i&ino& GGbmittal. bippdiqd. . iny utility b&l& hiat phy~k&y ;nee< - : &&ing'afi pkG&stiig.&quirements. : . . . . r . by a (yuideliie'rn6deL-nibst beGmpleted :the applicabili.&'ieqii'~fements of 40 CFR.:-, i r ea j whi&:are-desigqated :=.'-- .' - . . : .

. . . . . . even in cases .whiie the niodeling ' .'.:': .':: 'pait 60. subpart Da.:whether it b q'':.; -:, . nonattaiginent by op@rationd law.. .

. - - pmto&l is c-nuy under review ::, .:i:nuj~thg b0qef'wiilei.a CFR part 60. --:? i(s&tioh'l~[dl(ll(~[i)), & yell as,aie I j- : . . . !. . Equivalent models to those approved for: -.:subpar! D a or not-miist have CEM!3'for'?.~:which:& designated nonattainmeni i I.\ - . _ . . .;: . ' -regulatory use iri EPX? :Guideline on.; : : :.NSPS pmpliahviiric! should therefore' :*:;;-the fuhG (&&on 1Md)(3));&t all .' 1 :: . . . . ...... ..Air Quality'ModeL.(Revised): might.not . . ..'..ely on cE?lS for S ,P &mpli%ce is .: :?;: i u b ~ f i ... h;a'q&&&-filam . befo& the] . . . . , =::j.>. s;2::'=:.5 t; ;:.: ;::-.:'3j.::..::::F >:..- ,:

- .. . . . I. ' be approved in suffi&nt h e 40 k::.y;:-,c. -..iag'be:ieded$at+ to'ittainmeni ' ' ' '., . . . . I . compleh ~ .de~e lopmi in i . and :F*.:z:::.:. :::ii. Any ~o--~&d has oth&-5i G:??~:-:L GI- . . . . . . . =,..,. .. .TheEP~.will.h~ue'pidan&i OD the . . . . . , .. .:;. 7 - submittal within the ~~tuto~deadlin&~(~:-regulatory ~ q h m i t i ' i ; v i t h ' ~ S . a ~ . : ~ ; ' & ~ t ~ n b of 6 ~ c ~ & ~ 1 7 $ ~ ~ a & t e ~ c e

,.+;$,:.-;*.:..".;.. ' - .: . :.I-.+, . .-ne&fo&, shft j i rhovld pbseed.with:+?:ee*mmpliincc inethbdihogd n l y on'?:: ,::pw-iti ldte$dat&: -;.=.:.:,.; -:. .:.. :.:;: . . . . . . . : ' \:::r-hldrting'guidel&le m~de l~ ; ;w i th~~! k*:e?~.CEhlS as the ~~~~~~~~~nci mGthSd i s +s?-:(gj

gS@On2302 d,. : . . . . . . . ...,. .. .I... ;.-.:... r .. .a ...-:..,-- *..;.. 4's .-. . ,,. - ..:; .::.deviatisn,fnj@ the model guidpIlne;.to i:p-:%yeU. ~ ' ~ ~ ~ i ~ < ~ ~ ~ ~ ~ ~ - ~ ~ ~ ~ ~ ~ : - ~ L ~ 7 7 . 3 2 ; 2 1 c : ~ ~ ~ t . ~ ~ 3 n ~ & ~ e b ~ ?fias ,thgjLFm -.. ;- , ., ;: '. . . . : ' - ': i:rfum the .&q&menb of t h e . l 8 + n o n ~ ; i + . ~ f+ibh@ of U?-9 CD(S a~-ile~~:~+jiji$~*ad,i&$ r d m $ $ i ~ ?ny;; : - - . ..-. ..<. :.-. . . .-.. -.. C - . .. ..:-::?Sp s~b~t~~+~~i&f&~~~~LT@;i;:~~~:~.~~mplimu method has h d y bey. ~ . , , s ~ a ~ ~ ~ m s O ~ - t ; ; r ~ & ~ d ~ ~ ~ Y y ~ ~ i ~ : ,:: . . : :

..... . : . ,..- . . -.-'::.-IfS~.tes a d l o r source o*q,.~.sh;.iii established f q ioixrc6ithat .--.:. fall . into-:i?:$.;f6<b<~th.~ P.9tj-riq=l toiscim t b q cr : . . . .i -3.- to complete :work on alternative models.!; . t he?e .W~~~tegor i e2 fo r examijle;in :I?:;? y eai,orpao~;of : :, 1. . :

. .

. ; ...--&& . . mai &j&~m)&$b .thei.?:.,:; denloping ~ ~ ~ $ - t h ~ ~ - & ~ c j ; - b ; a s ~ ~ ~ ~ ~ ~ . = ? ~ : ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ . . ,-_ . .;tti;fi-i72(t1(51;S;dl i . . . : ' -:. : altemative~models,~ then:theSIP may b i -<alcady ~nsid.e$dosk-envim~ental ;::mm&ttirib~ttg b&it.bk-- &it k: ;. - \ . ' . . . . . . - . . . revised accor~yY:However . i f the ;:;s a n ~ n e w . i m p a c t s for t h e s e : b t ~ d a ~ d ~ ~ . i . ~ + ~ ~ ~ ; i ; e ~ t ~ ~ & + e ~ ~ ~ C ~ . .

. . . . . . :; , .. . . : altema.tive~mod~liinot completed in a.i:;:Wheni CEMS &n# t e c h n i c ~ l l y ' o r R ~ ~ ~ ~ ~ ~ ~ ~ ~ & ~ ~ f b r a i ~ ~ ~ ~ ~ o ; ~d 1: 1. 2

. . . ..... - . . - ; . .aelyJashiop o r if jhe altemitive is , ~ : i ~ . e ~ ~ n o @ & U y fea@b?e, inininother +sesiy?- :-:op,p,~~onOf.~~.~i~~a~~&;d !.--- : - :,. :'; I: -'? . . . . .. :-: &&ep&ble a n ,acceptable w a t i o n ,i:oth@ a p p m p r i a t ~ ~ o n ~ ~ o ~ m ~ n i t o r i n ~ ' ~ ~ - ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ - ~ ~ S O , ; ~ ~ z ~ ~ t . ~ ' . .

-.i .--.. . . . . . . . be in-bl;&fo+s~$ eqe&aour :,<: !e,&isu+,.such a s ~ n ~ u o u s ..;:.? 5. ~~5 .... .-...- ....... .: . e . 2 . -- -. .- - - -- ' - - - * 2 . 5 . ":- . . ..: . - I . . . - . _; 6. Soyi6iqof . . . - . SO, ... Polieand Guidancc :-i: - i i , . . : :. attaipmen! an-d.10 avoid sqct iops for .,:.;.c cprnpliance'of relevant pijxes<.f..i"? ,:-::+< :,!.+. -- ..%... ---..* . .,.... . . . . . ;; i: :.:-+ fail& tol$xpjtia, . . S.P;(s~c~~n.+>~i,i!.~~;~-$arametem or rlteni&ivei~~irb&d .by <:.$:u$.ej=;?$~n;ise not(& the guidant e .:.

... j .:.: ... -.;-17~c)(~))..:<-xrIi+;j1'i:>~~52s'~,~zt t+;jtL-l? k2: PA under title N; +odd 5e ~;;,:4ji'~;.e ;,documents ~ d i o k s listed b e l h : ..;../ . " ' ,. .... :.I:..7_.~he Actzagamended in.1990 $ve-;.7;< app&priate..-:.,:5?.:j~:;.~;:,<~<z+:$1,:~~:.'~w~ie' deiieloped.by'thC EPKs.O@ceb .:

.:'.".& Qua]itj;pl&&g.hd Stand&. I, : :-.. ,: ....... - i . :. 7.. EPA au&orijy to *rles-t$be plgde.ling'.;:.;?:; : .: (7) Enfok!bbility:The ~IP*measims iL. . . . . .: . :: .. '.: pmcedur'es .to deteiminF:*e.tiff$ct qf-XA:,-:.shbuld be converted.@tba lt+lly--',<I:~;.<r:(9AQB] located in~esdarch ?riarig1 - . . . - . - .! . . . . - _ ;. :: : i . ~ ~ . . e & s ~ ~ ~ ~ - , & - ~ ~ b i e n t . air &lit$ [Part D !; enfokable?#@le' (e.& a. ,r~~a~on.~r:$i .?*k;-:~srth . ~ l ~ a . : ~ & ~ ~ < p l , a ~ 1 9 I I .

. - -: - . ?,@c~o~?;~(~] (z ]~( i ) ) . . f i e .PA : ~ ~ ~ f ; i ~ ~ e n n i 1 ) . The r e ~ a t i O ~ ~ r ' O t h ~ r ~ ~ - $ . . : i j!:<; a d d k s a'dditioial poFcycyqu2stioru b: - ' ..i

...... :;: - : . . . - p]am toi+Jy ,on it? .!!Guidelin9 ,oT?Air : I : . i . measuies should meet EPA'r'txiteria'ilr2i ('peridcallji'iisuing rnimoryduiu '-a . ' . ' - ' . -I-. Quality Model$ (ReGsGd)" as the basis :';. reiarding the enforce&ibii; of SIp'i'ghd :.:which offer gtiidaice'irl a question-an I-

. . . . . - - . . . . .-. . for.all pjbs&id *+c-dures,and is in:.:,.. SIP revision;. ;* . - . j 1. :. .:..;-.' aXlS~er'f~ITna< See al~~f:=:i.= f . :--- .. i . . . .. :. ; :: ... th6 proc&? bf-&ds@i& cFR'part '51 to .: .: :. Guidance on enforceability :: ;l<.:- .!!fi:.-, ::(a)'SG Guidance ...:?<?i{ c+.;i-: ... --: !:

. - . . . \ . .

. . . .. . . . . effect Us requiremrht! '.2..::r.; _;I>) ;+ ;j:::.'req~medts has bean provided, to .: - ;: (l).SO, ~uideline.' 0ctobei 1969. i . . . . . . . . . . . , . . ! ; .

. (6) T6st hifhods and avemging times. ; Regional Offices in ve i ju s rremoranda;: (2) SQ Guideline ~ ~ ~ e , i $ c e s ; :. . .' . . The NAAQS aie'expressed as m a ) c i m ~ - '(see Baiman/Biondi and Potter/Adams/ - October 1989. ;:-:, ' :.:.'-"-"- . .- - 1

I I , I . - ambient-nciriuitioni (hit . . . arr-t? by., i: 'Blake memoranda listed in i i c t i on - . , ..; .: :(3) Let!er from William Reilly to .' : 1 . .... !.) . . . . : met on a continuou<basis. -.I..:;;. I ,.,::. m.D.6. of this preamble. Those SIP'S and Representative John'Dingel1,'in respor je

11 : II - Consequently,'States must demonst+te .: SIP revisions which fail to satisfy the . !..: to questions and GAO report. Apfi I( I! : - . . . . . . . . . . . . . . . . . . that source e ~ s s - i o n liinitations. ,enforceability criteria should not be : ; 1991. . .

.. averaging time;. and cohplianje -.:. . forwarded for approval. If they are . (4) Flemorand* bornCraig ~e t ie i i . I !, monitoring methods are sufficient to '.:- submitted. they will be disapproved ii. ... Thomas.Adams. and Francis Blake to . l i

f . . -assure compliance with the air quality , :in D l ' s judgement. they'fail to satisfy - Air Divisicn Director. Regions I-X -

.. ' standards. The choice'of a monitoring ' .applicablestatutory and regulatory . . "Review of State Imp!emehtation P!zr j technique should consider regulatory , 'requiieaents, ' ' . ! . . . 'and Revisions for Enforceability ar;d needs. rconitoring technology costs. and . (81 Elci~!enanceplons. AS diicussed ' Legal Sufficiency." September 23.:C8:

d . the relative benefits of one technique, ' prek-iouslv. section l ~ ( d J ( 3 1 of the '. - . [$) hlemorandum from Gerald -4. I versus another. . ' amended Act (see subparagraphs A and Emison. Director. 0AQPS.to Air ' ' . 1. . . -. Continuous emission monitoring '. E of section 107(d](3) as well as section Division Director. Regions I-)C I

I l : systems [CE!!lS) are a reliable'technique 175A) reqni:es that nonattainment areas . 'Transmittal'of Reissued OAQPS Ct\ :S

.! . for coniinlious!y monitoring emissions of nus: have a fully-approved maintenance : Policy," March 31.1988. . . . . :. . SQ for many source categories. . ' plan meeting the requirements of section (6) "Apbroval and Proiulgaticn cf . ' Detailed guidance documents for- . , 175.4 before they can be redesignatedsto-' .hplementatidn Plans: Dearbom. Lrk, .!. . determining'CEMS feasibility in . . . . . . . . attairmenl Sectionl75A(al mandates. ..: a id Porter Colii'ties. Indiana. ': s m. . .

3 . indiviudal casesare listed jn section . among other things; that a State must - .-;:.:; 6 l z ~ ~ ~ h * 9 , i@g... .:.' : :: : . . L . .

4 . . B . . : IILD.6. of this preamble (see 1etters.frdm ' submit a SIP revision whijr prdvides for '. (7) Mei-,,o.&duh fro* &d& Bauz ir. p : ;!

- \rV. Reilly to J. Dingell. April 10,199l). ::'% 'maintenance of the NAAQS for at least -.; .and Rich Biondi t o m ~ i r BFalich Chiefs. ' , . . . . . 4 i Further guidance is being developed. In 10 years after the redesignation to .- ."SO, SIP Deficieidy Chbcklist.'l. -. ., . > - - general. the crikria Jor determining' f ':.,:,: attakuDent (section 175A(a)). A :. : . . - i Noiember 3 1090, ' . .: .- - . . . - , .

. - when C M S are . appropriateare . a s " :., subsequent SIP're%ion providing for. -, . . 'PI ~~~~~~d~~ f ro@~era]d follow;: ;- ;-.- . . . . . . - " - . " :maintenance.of the NAAQS for an '. ; . Director, OAQE, to David,Kee, additional 10 yean is duj 8 yeaisinto . . . Director. ~i~ hfanagement Divis the first 10-ye+ maintenance period. : ..-':' Region v , - N ~ & for a SkortrTe& BA :?he law does not provide' any-: . : .. 5.. ~ ~ ~ ! ~ ~ i , k ~ the ~ o ~ o ; ~ ~ . ~ i l l i a m A.

e~cep]ions 10 the maintendnce plan.: ,?':! .zimmer ~ ~ ~ ~ ~ ~ ~ j ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ b ~ . . . .... . . . . . . .

-.: :..:I-.:

:requirement. Therefore. in dditiod to..';.:- 1986. :. =..:.. . . . --. . .-. . :, . - . ; . . t - . . - - - . . - . . . . . . . . - . . . . - . - . .

. . . . . . . - . . . . . . . . . . . . - . . - . . - . . ~ . . -. . . . .

. . . . . . . . . . - . . . - . . _ . :

. - . :. .: -Fdpll w t e r ' : ] . : ~ o i . . 9; &.~74 / G d a ~ p l -16,.'i992 / . . ~ p & ~ d r ~ u l e s : -.. - . .13549 . . . . . . . .

.. .:-. y

(b) s]p.~u;dmcp.. (1) ~ i d ~ c e :.::.. 1 - : nonattahmmt designations and plan the perimeter oithe county inwhich the D o ~ e n ~ f o r ~ ~ o ~ c ~ o n of Part D SIP'S.'. revisions mder part D: -- :cE- ..:I:-:. L-';.: ' ambient lead monitor[s) ~coid iPg the'

. ... for Nonattai&ent h a s ; january P, *; : -. lhe Act.as.amended;cleatly defines 0::. violation is located; In addition if the - . . . .

1984.. .. :.,, :-;:.-:.g,r:': ;:? I- .:: - .:: - .. .<; . EPA's authority to designate are& for..---7'.ambient monitor measuring violations is . : (21 Mems-dd fr;om R ~treldw to . c; - lead. Section 107[d)(5] authorizes EPA to' : located near another buhty. then EPA .

. Regiod A l lm;n i a~ - to r ,Reg i~ ?."r: =quire S t a e des-te areas (or.,: ::: ~~~.mrecommends that the other county.also - ~ ~ i d ~ ~ & ' f o r , ~ ~ t u m i n i n g - ::.;.~-:~.?;-<;<.~ .portiozu thereof) as nonattainment .. ,r ..-::. be designated as ionattaaen! for lead.

. . --. Acceptability of SIP Regulatio& @ No*-. . ;a+eht or anclassSable with ;:.?.:';;:::.. In sdme'situatibns,'how+er, aboundary .- . _ .._ - . q t m e n t &as; December 8, m a 1:3xrespec? to .*dead NAAQS $effea+ <<:-other than the couirtfpeiimeter may be . . . . . - . . (C) ~ o d , $ ~ C U ) Y ~ & ( ~ ) y ~ d d ~ b & T . .of the date of enactment of the 1990 ,':':;;i'.appmpiiate. S t a t ~ ' h y &dose : :: .. . . . . . . -. ........ .. -. :on QualityModeh".(Reeed),. .... J*dr< CAAkafb pr6yiddhisectipn.' ;:I.:::: % al t - t iv~~to.defin~ the lead .:?:'..- .-:: ... ". 1988 =:: ... :'";;,$.:... - < \.- . . . -. , - _._ .. .:-.,.,,,us, ,:+..>:it ;;; .A7.i!2>-:ci< - 1107(d)(S], the?e &ad areas &.to be:-:.c2:5! : ~ ~ n a t t a i p i n ~ ~ ~ b ~ & d ~ ' b j ; ~ ~ &j , : . . -. . . . -4 : .- (2) "hterim mdM foi.Ev4uating -: d d p a t q d punua@ to.the p d w .~)i :one, &.acoib5itfi&f the foUo-g . , .. - . . .- - - . E x p e r i ~ a *.& $.--& outhned ~q qection ?W(d)(I)(A) and @] :.&. bchniqGei: Q&utatiie-&+is, spatial :

. -. ..... ;1.. . . . . . . . . .JqlementatioaT Jdy J985;.r:.j>:..+--+ :; .-e%&pt .that ~ e 1 t d I l ~ ~ e f a m e ~ of .~;:."';i inie+o]&n df a* G&htoring data;br . - .:f : :-.: -. . . . . - ' 4 3 ) Model ~ l ~ ~ ~ & ~ . ~ ~ - ~ + ; - ~ < . i ~ ~ ~ . t i . - ~ u b p ~ ~ p h (B) have bM.modified by!.? air quality '-aatioi' b$ .hpenion -.. -

- .... .- - . . :. . . . ., .:(dl New Sq&+ Review.Cuidmce. (11 .:: section ~ ~ l d l ( ~ l ~ . ~ ~ ~ ~ ~ ~ ' ~ ~ ( d l ( ~ l ( A l ~ ~ ~ ~ ~ ~ ~ inddelinglheie te&iqu6s.afe more .

... -. : . . . . . . . MehorandG o m Richard Rhoads,::$ ; .permits EPA to m q m t h e . a ~ e m o n . o f -::fay described fn "pr&=d&j for ' . . DirpctorBDD, tq Division mctor, . . ; ::.: affected States to submitrecommended .1, .EstimatinjjPmbabilitytyof NOnattairuiient . . :. .

. . Resons &X, f:GrodResMctions in f:-:+..designations for. the areas , A reek3 . t.!':.. of a WO N M Q S Using Tota] '. < ,. -. . . . . . . .

... -- .. . . . . . . . . . . . s e c a n d G . ~ u ~ s Nonat@&ent ...<: "desbated @ a timeframe that 1 :+-;-' .Sup&d&j ~ s a d t ~ ' ~ ~ ~0 Data," i.,. . . . . Areas,'!.O&ober 2g,1~.--.~-2~~:.~,.;i,-:..i-. deems reasonable.,% l i m e e e , - ,.., . :I, : ~ ~ ~ b & EPA re'&jcommends .. ..... .3.

:-. ... - .': .. (2) N & S ~ & ~ : R ~ ~ ~ ~ h i&t io iof :.:a-however,;e.be no~qooner than 120 .:--..&-: that the sGte bubmit 6 def&ible.:. ., - ' .

. . . . si@cant-~eteri&ation and 2: 'yj.ii;..::,-G:. nor later . , than.1.~- aft- the date <'. rationale for b e bouqdaly ihom,'*& . . I . . s-- .

. . .. - . - ~ ~ ~ ~ t * ~ t @a Guidalicte ;'z?:j,.~~..;:-:$ notifies the Ste'te,pf.the . . . . . *.:;.-:-,::':-.>2-~ the ~ ~ ~ ~ ~ i ~ ~ * ~ d&@,ation for.&, area. ....... y:.. .. -_. . . . . . . . ..- . , ~ ~ t ~ b ~ ~ k . ~ * ~ a 1988: ix-r :; :,::.; :; ;-:. .-quirepent to-rubmil, such :;. r.::t ::;: .-: .;;;+:; ..(C~ ~ l ~ ~ i f i ~ ~ ~ i ~ ~ a ~ ~~,ti~~ - -. .:--' .. '

s, . . : - - _ . : 5. .: *.. .. , 2 .. .. (3) Guiaan&*on State Operating-.I,,.: :;:. .designations- Sedlonl07[d)(l1@1...':; ; .-1 172(a][l](A] of h e ~ e n d e d A c t ..:

. . . : ... ' . . . . . .;-,. pe rd l b P a & , . ~ d @ Rdsbr.::- .;;":requires that EPA.mi+t then promulgate : a,ithorizes tb daiiify : ..- - - . . . . . T :. . notice, Juqe.1@9. ;::;::.-xf_--.. r.:;,. :..: ::.... : f: .these designations no later than l..year..... f-. d e s ~ a t e d . a s ' n o ~ ~ t & ~ t for the .. -7 -. . . - .' ;.Y. .;--..' . . [4] pJSR ~ l e c b - $ c B d ~ t i n Board. :,?.:;..-after notifying the S@te ofthe : i :.' 'i.. -..:. purpos~s of &lying-&*ttainmen! date . i;:: . . - . ~oinpiti-d compiI.dioqcif ~rev ipus . I > .=Wmen?.!o ++ate areas for lead.:. . pmuant to section-172[al(~l or rot .. r.: . and L;ateit NSR'Policy klemoianb and -::...nepAmaY make .Ply modififations... : r$asons. I, dele- thqappmpriate .

.... - Technical, 1nfo;ni'ati.on It-. Federal ; '..: 'deemed necessary t.0 the aesimtions classifjcatibn. may consider lu& ' ~ , R-ter notice, Janiary 1990. - - - . -:% submitted by .the State (see g m ~ d y . fadors as the severity pf the .- :.: . i . - ... (5) ."Draft W p h h o p Manual for New section 1m(dJ(lIlB) of the Act]. .' nonattainmenf problem and the . . . . . . . .

. . . . - .. .. .... . S o w e Re4ew ~ S R ] ~rograms,",.. :, ..However. no later &ah lz0 days before .availability and feasibility of be . . . . . . . ... . . . . Decembqlg?o...:'- 1.. . : . - : ' - 'Pmmulgating a.mo'dified are& P A must : pollution control measures.(see-sectim (61 Memqraqdum hi 1. %itis'-.- . . . I . nohfY the affected State and Provide an 172(a](l][A] of the amended Act]. The

. . . OAQPS, to Air Division Director, opportunity for the State to demonstrate PA may, but is not mquired to, dassify. - . Regions I-X, "New SO- Review . . - why ~ r o ~ o s ' e d modififation is . . . . . . . lead nonatta-at areas ~t this time, . WSR] Program Transitional Guidance." . i n a ~ ~ o r ~ r i a t e - . ' ' ' . . .

. . . P A does not intend to das i fy lead. . . . . MarchI1.119qli.. ,; . :. ' . . If the Governor of &'affected State. . nonattainment arras with rrspect to be

E~~~ '. - . . . . fa& to submit the .iequired lead lead NAAQS in effect on date oi . . ' ' :, d e s ~ t i o n s , whole or in part. EPA is enachat of the 1990 ~h~~ is,

I. ~tatutoijl ~ a c k g r o d d . ' .. '. required to promulgate the desiaation while 172(a)(l)(i\) provides a it deems for m y area. medanjsn to dassify nonatta-ent

La] In Igla when (or portion thereof) not designated by areas, section 172(al(21(~1 pmddes that promulgated the lead NMQS. EPA . t+e state. believed that implementation and t5k attainment dateaxtensions boundaries- 'late' should descibed in section 172(a](2](A] do not maintenance of the lead N U Q S should identiiy the boundaries of be- be in accordance with the SIP . noxttainment areas when t u b d t h g apec5ed apply to nonattainment att-ent dates areas wder having oher requirements set forth in section 110 and nd3attiinment desipations for lead. A not part D. The EPA believed that lead nonattainment area consisb of that provisions of provides part D. Section .a attainnent 192(a] date section 107-and and part D -

j .

I . area does not meet (or that ' for areas designated as n o n a t k e n t I requirement*wen intended by . contributes 10 ambient air q u a l i q h a . for the lead NMQS in efiect the date 1 . Conpss to applyonly lo N"QS nearby area that does dot meet) the l e ad of enactment of the

j - which were set prior to 19irla.h these . , NMQS re t ion 1 ~ ( d ) ( l ) of he cases. S p a had already been adopted, amelided hctl. Generally, . . . ..- Therefore. EPA has legal authority to

classify lead nonattiinment arcis. but -the attainment dates had already.. ';. - hat the lead . . . . . . . . . . . . :. passed-=d the Spa had proven be ,onattainment boundary be d&ned by - 2 -

.inadequate. The designation p m s s . . . : . . . . : . . a~ It b irirpurlant to note that &aaiEado& md

. . . . . ..... . . . . . . . was intended as amech+ism to initiate- .

. . . desigmtloru rrr =parate mncrptr Duigutionr

new nvlslons for those estins . . " %on 1mldIlS) of h e d d An doer noi .. refer IO am -.a at@inmcnt s t a m ( i i tix m a b h&le that all m a r of h e Slate =mi ba ' . ' .

' designated rraianxnl ~ a r l U . k s a X or . Since the attainment date for ' - . d w t d At m a timcEPA h a only rquesied.. ond.sai'rable). a.~alficationr'ue applied to u e . 3

Lhe lead N U Q S at that time had not :.: bhal a p d i d r m r within a f l ~ ~ e d S~atrr be . :.-- ' : desipated nonattrkrmcnt md ue me&& fqr ...... . . . yet no,lead S y s had yet been : d - b t d Thd-moit .%ta md tb. ,.st ad&@ difXeren~~ unong m t t a i n n a t m a r

m.jorlV of he r m r within d u l d Stater will still For urampk c+ifiatiuna urcnlly r d l tn : -.. proven Ina'dequate.Conseq'ent!~* lead ;. -. bn b h t i o i u ; *rill be wd ;, applying mcuMl pe 1 ilr-..:. . - - did not miet .hi ' lm* ~ h i c b ~ i . . l u ~ m r - ~ ~ ~ ~ . ~ ~ duIcfor" .- lolyuat*t hdtl~a&ou rTu bnq

. ... initiaui rndted=&d for:;,.:- >:.ii,:;: 1e.d -I-;! $=;:,;,:cr:,;, .;.,< ,-.A :, ,;; ; ... .- . . . . - *.:. mom wriou~ Mmclnairsent pmblemr' 5 . -. :. . . . . . . . . . C

. . . . . ._ . : . 1354 !':Fad&l .~&ter ./ *voL 51. NO.' d / l Thudis*~~.~pri) 113;-1992 :/..kob~sid .R;1eS . . a , . . . . . .

. . . . ... . . . . . . . . ...... . . . . . . . . . . : .

. . . - . . . . ..... 1 <

. : .. . . . . . . . .

. .

. . . . . .

. . . . . . . .

..

. .

Z. : - .

. . . . . . . . . .

.. . . . . . . : . . .

. . . .

. . . .

.

. . . . .: :

. . .

. . . . . . 3. Transition issues - . . . .

- - . . . - . - . .

. ....... . . . . . . .

.. . . . .

. . . more detailed guidance on the part D .: further information for lead emissions -':-.. the amended &t.Tbe 1990 ClAA indude r ; . . . . . ... . .

. . . lead Sp requirements as it pmcedds . . . . : inventory development. Draft Manual ' ;.-.. .Gne"'svi~sUauJe whi*pmvides ht: .-- ..; : : rtgula lions (or guida~cc e~c] in c f f a ~ beto? c e

.- - &h nonattainment designa!ionb for, , -.:. :; "Updated Information on Ayproval and " :ena5meat h i n d m e n h ,h,u ,s,i, in , ~ e i l A ' . .- lead. - ... ..;? .-. '<'" . . . . . . . . . . . . - 2 - .. .=.. :- . . :. . Promulgation of Lead Implementation I.., 1 after enactment (3ee i t d o h 153). However. k c - . r

(a] h.'ondttiinminl NSR P~~Gou;~;;.. , . Plan?." EPA. July 1983; -"Guideline -. : .: -:: Svins, C l a w rho pmvide, bat audi q ~ l a t i c c ~ : - . .

- : .areas that were not ittdining th= lead 1 :.:i. Serie~; Developme@t of an Example ;.'. ::- i. (or 8"id'"m abll =-in in tnecr__.ue;' '0. ' . - -

. . - - - the extent o&en*iqe piovided under &h.Ac!- ' : . . . . . . . .-.- , .. : . ... :. . - . . -: NAAQS were not de4ignated.a~: t5.lr. 1 :r. .Cont~ulStrategyf~r Lead.";April 1979: i.::i:.inGn,i81qnl riith.&i pmiijit;dr 6[ ~ i ; A c t o r : ~ c . ' . -.

. . . . . . . ...' no&ttai-ent and therefoii! we& not ::,-:: a n d "Guideline SeriesrSupplt&ntary ;:.. :, m v i - 4 by t h e . ~ d m i ~ i , & t o ~ ' , . - - - . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . : . . . : . . - . . . . . . . - - . . . .

. . . . . . . . . .. ' . .- . . . . - .. . . - . . . .-

- . . . . . : . . . Federal Register I Vol. S i . No.'74 1 .Thursday. ~ ~ r i 16, 1992 ./ Proposed Rules 13551

and States were required to submit S P s . SIP shall remain in effect unless and . .': Maintenance" under IIlH.6 of 15:s . - ... . . . in accordance with section 110. The. until EPA approves a revision under the . document . . , _ . . ._ _ . ' .

amended law, a s discussed, now- :-.. . , new law (see section llO[n][l]]: ' -; - _ . ..... ._. -. : . 2. ~ l a = ~ & & i n b . ,.. .: .; - ..

,~.uthorizes EPA to designate areas for . F. Niltosen ni id^. :... , . .- .:, , . , . . B . . . " 1ead.There are transitional issues raised - . . -- . . - . - - - - . Submission deadlines for States to - by the ewes in the new law indriding, 'I!& s e k o n applies primarily toLothe - submit implementation plans $art D - for w p l e . the status of the obligation South Coast'Air Basin of California. . . .. Plans] for NOr are giveqin section la. to submit adeduate section 110 SIP'S .'-: which is the only designated NOr . : . Plan submission deadlines are explidtIy

. ~ d e r the pre-amended law and the .. nonattaiirment area in the Nation The ..-- ' given for nonattainment.areas'which status of any approved section 110 SIP'S. basin was designated nonattaiment by. - ' violate the primary NOi NAAQS ' .

. (b] ~'~ppmved orhqdequ& section. .. opiratiori of law (section lOl(d](l](C]. - .,:. (section 191). The NOr primary a d . . ' .110 SLpLP'J.-.-Before enacbent of the:1990 -.?. =The requiremeiits described in this .. ' ' . . . secondary ,NAAQS.are identiial Thus.

. W r S t a k may have failed to :,- : --. section would also generally apply to ..' the South Coast Air Basin i nb t submit . -. - s u b d t a section 110 SIP to PA, it may .- . ahy subiequently'designated NOr : '. -' -.an implementation plan that ~ e e b the. '

havdsubmitted a secEon 110 SIP.w&& I:. ?~?onattahInen! areas. N0&g in Lhii ' . requiremenb of subpart 1 of pait D. and was pot approvkd b.y =A, or it h a y .. guidance'preventi a SF. foia .: -- : ' - -' the plan must be subxiittea *thin 18 have submitted and had approved a ': - : . - n~nalti?iIUne'nt area from cos!aining . . - months after enactment of the 1 9 ' - -

W (i.e, by May IS, 1992). ':-" : 'i section 110 SIP EPA subsequently - E ~ Z S T S mbre'stringent t!!m the " . '

found substantially inadequate. The last . g u d a c e f e c o ~ e n d s - . . . . . '

States with areas that ye deii&ted situation is true of at least three States. ... - h general,.the Ac t as anecded in .. ' or redesignated, afier'enachent 29 .

SpedficalIy,.prior to the enactment.of ..-::. IS%. does not quire signiiiunt '. . . nonattainment areas for'the NO: '

the CAAA. EPAissued SIP calls for ..' r. revisions in the NOi NAAQS program. . . NAAQS must submit implementation . -. . .

three States having substaatially -. .-: .' .. ' The Gepenl Savings Clause (section ' . ,' . plvls [section ~ ~ l [ a ] ] : These . . ' .. . . .

,. . : inadequate~ection 110 S y s . Except for - 193) provides for general progren : . implementation plans must meet h e those areas designated nonattainment ::I continu$' by explicitly presen+g . ' '1 - requireaents of part D aqd the plans for lead, qection 110(n](2] requires these existing rules. policies, and guidance must be submitted.within 18 monihs of States to continue their.aection 110 . - .. . that are not affected by Ac: changes. the designetion or redesipation. . . . . . . . . . . . . . .....

. plamina inaccordance with the SIP ' Deripation, I:. . . . . .. . . . . . . - . . . 3. Attainment Dates . . '. -1 .::..- .' calla (or, as the case may be. in response . .. -. . - .. - . . . .. . - . 'I . to =A's 1978 promdgation of the .;: .. :..:. . . .The 1977:~ct gave-the p r i m e '. ln'the 1990 ' k A h , CO&~&S set -. . quarterly'l+ pg/m' lead standard]-and . authority for.initiating designations to 'specific attainment dates for' . . . .

to a ~ a i n the N M Q S by the applicable State Governors. Although State : nonattainrnent areas that were found tu date spedfied in eecticn llO(m](2]. &y Governors continue to have anthority to xiolate the N G NAAQS. The IE%I area in these States that is designated iiitiate &e designation process [section CAAA retpire akaiment of the

. . nonattainrnent wider the new law for -.- 107(dl[3lID]). the 1990 C.A-3-4 also give NAAQS "as expeditiously as . . . the existing lead NAAQS must instead :- the Administrator the auhofty'to . practicable" [section 172[a][2] [A) and

submit a part D SIP tliat comports with initiate and to promulgate designations [B]). Although the 19W C4hA give E3.1 the applicable requirements in subpart 1 [secson 107(d) (1) and (31). authority to establish flexible . - . and subpart 5, including the S D . In geceral. areas Icay be desipated ' attainment dates (section 172[a](l] (A)- submittal material deadlires and as nonattainment. a t t s i r i e z t or . (CJJ. this flexibility doernot a p l y to

. attainment dates in sections 191 and 192 ~xlass iqable for the NA4QS [section areas &a! have specific at:air=ent of snbpart 5. .. Igi[d](I](A] (i], [ii]. and Ki]]. The 1SCo dates (section 172(a](2)(D]]. Speci5call:~.

The EPA intends to ensure tkat a C.=4 provide for desiprtiocs of areas the flexibility does not apply !o Sta!e whose SIP needed correction prior b ~ j e d upon the attainment s tzks for L!e atteimer.t oi the NG N M Q S because to e~mc*ment of the 19W C M and that m ~ e z : N M Q S [sectior, IE[~:(~](C]]; .L!e attaiment date is sce&?e",n exc,ec's to have an area designated a5 L?ey also pfovide a u t h o r i ~ t z d - section 192. nozatiaiment ur.der the new law, s;L.cdu!es for desigaetic?:~ of rreas ' Arras that were designate2 continues' to progress with its plan fol!o;viiqg promulga tioil oi a ce;v or noiattainzent at the time of ezztt~.ent develo?r,ect and imp:e=entatim for . r~ \ f sed S.k4CS [section lOi{d)[l] (A] [i.e.. a r e a ha! are nona:takx..er.t by

- L!at area as provided in section and El]. operation of law) mrrst attain 122 IiO(~][Z]. Once areas u e designa!ed The revised law sets for& s;eciiic prii-aiy standard as expediticcsiy as ncnattaiment for the existing lead require+e-ts &at govern tje piatticable, bu! not later tkan 5 years N.4AQS. the'State must comp!ete a SIP re?esigzaticr, of an ~ e a from after enac'mect of the lS90 CAA-4 (i.e.. providing for attainment by the date that nonattainmen! to attahmezt [jectior. by November 15,19951 [secgon 152(5]]. is 2s expeditious as "practicable" for 1~i(dj[3]@]]. The p=rt icdz c:i!eria for This requirement applies :o the SOUL! ariy such newlyderigzated . redesigating nonatteinment t r a s to Ccast Air Basin. . . n c n a t t a b e n t area. In reviewing =y ' a:tai.w.eat (section 107[d](3]F]) inclade Areas that are redesipa!ed as

s F~ture SIP'S under sections 191 and 192. . Be follo~ina detcnninatior.s: The area ponattainment, subsequ@nt*t~ EPA will consider what progress could kas attained the NAAQS, the area has a November 15,1990 date of enackeat. reasonably have been accomplished F d y approved (section IIC[~]] . must attain the primary stanCa:d as

- ' both prior to enactment of the new law hpleaentation plan. the inpro.;ement . eipetjitiocsly as practicable. but not , ~

and after enactment but before the area . i? air quality is due to pe-~qent and - later than s years after the . . '. .cI was designated noi~attainmeaL - a erfoxeable emissions reduc5ons. the nonattaivent designation (sec5on . . . ; ; [c] Approvedsection 110SIP's. In the area his a maintenance plan meeting 192[a]). . . . . . - . . 8 ,

situation where a State submitted and . L4e requirements of section 175.4. and . . - . - 4. ~oi~att&qent Plan hovisiors . .. .

, , ..._ . - EPA approved or promulgated a section . the areameets all applica5le . : ' - . . _ . . _ - , - - .. . 110.lead SIP before ('rAAA: . - - requirements bnder section 110 &id part : . .The'1970 Act required Slates to - , ' . , '.". . , ' ' enacbint ' then all provisions of such .. :. D- See 'lledesipation9 dnd .' - ' '

- . submit implementation plans'lhat would ,,', I:*. I .-A I ,

I .<:: 1 , : .:4, .-.' ---

. ' 13552 -Federal Re@ster / Vol. 57. No. 7 4 . ~ 1 Thursday;.April'la 1992 / Proposed Rdes - hdicate how &=State would attain &id ~ e c e ~ b e r 31.1982.All other : ' ' . . . offsets already cbntahed in section 173

- . maintain th'e NMQS. The requirements construction bans imposed pursuant:to' - of part D:Moreover. in limiting &e - for these general SIPIS wkre listed in . - section 110(a)(2)(I) .are lifted as a result . States' opportrinities to set up a growth part & section 110. In the 1977 CAAh ' of the new statutory provision In . . allowance (described in s d o h 11LG3). ( requirements for implementation plans accordance with new section 110(n)[3). ' .the 1990 CAAA establish emh iom . ''.

fn nonattzhment'areas were given fn .' -the comtruction bans that are retained offsets al'the primaryregulatory : part D (sections In-l78]..These . - . . : remain &I effect until the EPA . . . : me&-= for accommodating major .

. . requirements addresied a number of : determines that the SIP meets either the. new no- growth without j w p e g issues including. but not limited to. - . new part D permit requirements or the the Act's mandate for reasonable attainment date;, permit req-ents. . . new requirements far attainment.of the. : ' p m p u toward N M Q S attainmeot In and planning pmcedues. 5 : ..- .. -. . . NAAQS for S01 under ?ubpart 5 of part . light of *a stab;tory &anga

. . . .The 1990 have not made - .: . D, as applicable. :r . i21:-i: --. :.--.:. -.:.... .. ;. s t a h s b u l d review the emissions o&et . significant changes h-the plan I..- Section 173 and the various subparts ,. requiremc'nb fn its -nt NSR As . .

requirements for NOI nonattainment .':-.. of title I .of the amended Act contain the and deteimlne what ~ v i s i o m . . . areas (section, 172(c)). For thir.reason. . . . requirements f o r . f s s ~ c e of a NSR ::; ..: necessay to conform those ralrnetd . - States may gerierally continue to rely on - contruction p e d t .to a new.or modified the criteria described below. -;-:.: : ..

.past @dance for.NOI.programs &I ...- -. major source in a nonattainment .%a or , , ,. m. ne,basic k q i k m e n t . . , - meeting those req*ements. ThiJ .. . . . -. . ozone transport . ~ g i o n . T o issue such . ... 8ection 173(a](l,] remab in : : position is further supported by the . permits. the permit authority must firat .'., 'ht to issue a ti^ , . ..

- . General Savings.Clause'contained i n : find per sec!ion 173(a](4) that "the :demomhte bt the new mwfi . . . - . . - section 193:. It,::: :.: .,., , ?.. ., . -. . . .%'.., .- . . - . Administrator has not detirmined that I ' doeb not interfere the appmvd.:, . .. . C(fiev S&,rCe~.&~jeici~h'S~l 1- :.I:. . '. the eppli%ble implemen!atio'n plan .:. demonrhtion.6f rpubmble pmgrrrs .

Nonuthinherit P e s t Requiremen~s~ Is+ : not belhig adequately implemented for . . for the a,. such ,,*,iults hrn

.- . . ... __ _ ... . :. .... .. . the nonatta@nerit areay.in akmrdahce . new or potebti+l ,, ~hk ' sec t ion of the..$-neral ~ k m b l e . with the requirements df pan D. If the . . bm ,ioi well :: . ' . describes, thenew or;!eesed NSR . . '. . ' ' Adnhbtrator determines .that the SIP I: hm , ~ s i o n r f r o m .

.- ' nonattainmentpekpit p h ~ b : : . . : for the part D requhiments:bhot bebg I pd vnacrunted for by .he cmoD~ '. ~ q u k m e n t s under part D of the ..' ' . . . adequate!^ implemented for the '

' - . . strategy in the EPA-approved SIP : amended Act and generally explain. . nonattaiment area where the new -' . . :The mA hterpretr .: . - =A's interpretation of these .. . . . . s o m e or modification wants to lccate.

.in(a)bl(Al to nlify mnt . , .: . . . . requkments.'Fot$era new Or revised, permitithat would 6 t h e h e meet t he , k.latiodr requiring the emisions .. : . pmv*i~n* the p m v i ? i o ~ d i ? ~ ~ ~ e d . : . requirements of section 173 camiot be . - ;baseline for purposes be . below are the'rnhipum statutory ' issued ..._.: _ . . . _ . . < . . - . . . . . - . . . .

require.m=nts States must use to revise N W e DA iolicy generally is to : in a manner with their existing NSR nonattainment pennit impose a FIP.where States fail to adopt - the emissions baseline used to plan provisions (or.to adopt such Clean ~ c t NSR provisions, section demons'bte RFP- Regarding the =Ounl . provisions if no'ne'exist] which mud b e 113(a)(S) of the amended Act provides . that is necessary lo show submitted to EPA for-approval by'the that EPA may prohibit the conshction noninterference with RFP. EPA will

- ideadines set forth in.fie C A M of 19%. or rrodification of any mijor stationary presume that long as a new I In keeping ki th past practice. EPA ' s o m e h any area, including an ', obtains offsets in in amount equal to or : .intends to issue readations setting fort.$ a t t a i ~ z e i t &a, where there is a greater than the amount specified in h e i in more detail the requirements for an violeeon of the statute's NSR applicable oKset ratio (or. where tke' : approvable NSR program. requireslects. Specifically. EPA may statute does not specify an offset ra5o. 9 . . . . . .

apply s c s o n 113(a)(5) the in an amount greater than 1:11. the =ew 1. ~ o r h u c t i o n Bans

AGrbistrator finds. on fie basis of .source will represent RFP. In general. Under the 1977 Amendments to t!!e infomation, that a state is not this presumption may be overcome only

Act. section 110(al(2lIIl of the statute ac:ir.g i3 compliance with any if the applicable'SIP expressly re!: les on required EiJA to place certain requizment or prohibition of the Act . S.OLVCeS lo generate a pate: nonattainment areas under a federally- re!ati?g to construction of new sources amount of reductions than set for:? i? imposed construction moratoi?urn (ban) or be rYofification of sources. the s \ % t u t o ~ offset ratios. The offse:s that prohibited the construction of all Upon such a finding, the A&inistrator Still must satisfy the secticn 17z(c) new or modified major stationary may issue an order prohibi!ing the requirements as discussed below. sources in nonattainment areas where const;.~ction or modification of any The EPA regu!ations at 40 CFX

! the State failed to have an major s:atior,ary source in ar.p area to 51.165(a](3)[i) presently r e q u h ha: implementation plan meeting all of the wl-ict sz& requirement applies. issue offset be based on allowable or ackal requirements of part D of the Act. The an a&sbative penalty order in emissions, depending on which,c+=nc:

'

amended Act repeals the provisions accodacce with the requirements of is used for RFP and attainment .

! . . previously found in section 110(a)(2](1). seceoc 113(d); or bring a action . . demonstration purposes. Historica ll:... - . . The amended Act also contains a under section l l j (b) , Nothing in section RFP often has been tracked prima5iy b~ I .. Savings Clause' in section 110(n)(3] that ' 113(a)(S] pmdudes the EPA fron taking a yearly assessment of the net a h 2 1 - -

preserves certain existing section . . . . other enforcement action or . . einissions reductions that have 110(a)(2)(I) construction bans in place . co-enc:q a -inal action under occurred. because actual emissions tesl before November 15.1990. if the ban section 113(c) at any time for any such correlate with ambient air quality ' . was imposed by w t u e of e finding that viola~oa. &tion 113(a](5) is.&scussed concentrations~Ln'such'~cases~ EPA the plan for the area did not contain an in greater detail in,section N B ~ . regulations disallow the 'use oi "psper' adequate NSR permitting program as - . . ,. offsets based on SIP allowable

.required by section 17~(b)(6] bl the 1 9 7 hissiOruoffsets : - . . . ., . .. : . . - . . . emissions in excess of actual e m i s s i o ~ :Act. or the plan failed to provide for The 1% cl&y.&d expand ; ,- and the ~tatutory changes do not fo

- . - . - timely attainment of the SOI NAAQS by . the basic requirements for e-sions ;. .- any changi in this approach. : . - - . . . . -. . .

-. . . / . . .. . . ; . - . .-: i: .gaed :~e&tet ' . / Val. 57,. NO'. N /.Thursday.' April -16. im / ~ m - ~ o s i d Rules

13553

. (b) Geographic location of offseb- . Total tonnage of increased ernbsians . . eai-ly reductiom, an existing s o w e :- New section 1n(c)( l ) stipulates that hm the new Or modified be may. under certain conditioru outlined

o!?set by equd.or amaunt as . - below, meet an alternative e&sion cmirsionS off3i.b g e n e d ~ must be ,ppbublz in the actud -i- of air. obtained by.the name s ~ u r c e or other p u ~ t m t from $e same or ather so-s 5 limit in lieu of meeting an appliiable .

. ~d~tiTig80-3inthes-e :'a:...'* t!x ma.' ' . .. . . . . . . . . MACX rtandard for a pcriod of 8 years . . . . .. : - : hmthecompllancedateofm. '. ' . ., noriatphnient area. H o w e v e r 3 e '' ' me wa3 pndou;ly ,aenl on . . o&,*e applicable MACT - . ~ U t ~ t o w p m h i ~ does dow'of faeb lo issue; howeve?, E ~ A ' ~ -at policy . be obtained in mother nona t ta ihen t

'

the bsrtlin( for e@,,iom . Except a s folIows. to obtain the MACT compliance extension the reduction. area under ~ ~ ~ ~ p e ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ a ? . F*3t ofiec* as'contiined in thepart SI tJSR .. be before (6e .

the other nonattaixnnent &a m u t have nona*ent r e ~ i t i 9 n ? , p+@de3 that applicable standard is k t p+sed. A m e'4u.l orhi&er.nOmment 'c . the oEset b a i k b e is the e@ssions limit . ,ouce may .Lo oba.m extCTUion Ilil -A$$s=t iod the n0 l l l tmeht :-c: : .. . " . .under theheapplic&ble SIP in effect i t the - . : the edy mductiou lhn the . - area .-. which .... the 80- would: ?::. . . - timi the permit application fled'.. : . -. pmposd d *ppliuble hUm ,. . . .

. COIU~+P aPPl~lng lhi! ~ + ~ ~ ~ 9 the ' unless th i State'r dembnrtration bf.RFP : limit.tion ht.befom other nonatt-~nt are? r n u f have an . . a a d NAAQS a t t i iynen th based bn -: :. . ,d

m*e3 .n edomsble, -. . q u a 1 or E&er nondt-gt :.;'.. a m a l emissions. or the appliuble SIP, : . .commihe*t to achicve.,nch duction. classificauon for the same b o u u t a l Tor does not contain an emissions limit=tion befin the pmpoul of,Le x4tT - examp?e. a Pmpo;ed.major new s o w e for that particular 3ou;ceor sovrce . amdud . ,. : .:: ., .. . . . .

of VOC seeking to lo.*te in a :: .. . . category (see existing 4 51.165(a)(3)(i)). . ' - nonattaQmi+*t m a classified as'serious ne new statutory requhmiht pmvide3 F~71i3si0ri3 reductions of hazardous

- for ozoqe..+$d possibly.obtain, emis3ion . b a t emissiom inaease i trdm the dew air pollumts listed in rection112@)(l) offset; in anpther.ozoxie rionattaininent or modified r o u r p must be'offset by . - to meet a $ . W a r d .bder i e e o n 112(d].

-. &a.if,riich aieh'w.ek de~ignated , . real rrductions in actual ehssiom. 6 ..' including emissio.m.eductions to meet

(erious. s ~ v e q or extreme for ozone. . noted above.? m d attainment- :.,/ . .. the reductions =rl-amts of . . . . . . .. - n e ~ = i n d co,.idilon is that& : . Cemons~~t ionr gene&y'&ba3ed on . I 3ect iod1~(i l (~l , are not aiditable . ' .

emisiioa! tom su& , . ' actual emissions. However. to the .extent ' . e-Go= mductions.'I'hese &ductions nmana-ent m a must conhibute to's' t E ~ t these p1.m are based on allbwable : re9uled bythe A d *d Lerefom

, violation bf the ~JAAQS in the . . . edisions. offset credit f o r m d u c t i o ~ in : are not kdihbleforbffse* noqatta+ent rnei & the s o m e allowable emi3sions (a3 necesgary to- , ' i n a a 3 e 3 bdederbdD (iection

. . 173(c)(2]]* .;': :.:. ,;*.; . , - : : . would const+ m e stowing that such- conform with the requirements of.. . . ..

conhibcsoii toi secSon173[a)(1]) i$ appipria!e, but a ' ~ o w e v e r . ' . d ~ e & ~ ~ i 5 0 in nonatfainmefit uea essts should be ., be deemed inadequate if there'is not a , exces? of the requited ~~ standards adr,owledged md vefied by the , . re21 reduction in actual ernissioxis that . or. in the case.of e k l ~ lyduktio- under permitting authority. Generally. ' . equals or exceeds. a s applicable. the . . section ll2(il(51. any emissiou . . . '

dispenion modeling is used to identify . k c e a s e in emissior~s resulting fro& thi reduction3 in excess 0fOO Pemnt (or h . .

the exjstence of such impacts. - : operation of the major new or modified excess of 95 percent for p b c d a t e s ) . *

source. . should be ,considered surplu and ( ~ 1 of 'ffserr. New p ] Creditable reduc:jo&. The h a l therefom should be creditable for

n3(c)(11 'Iso the that ccndition, added wde: new section , offsetting purposes if d 0 t h ~ any emissions offsets obtained in 172(c](2), prevents emissions reductions applicable requirements are met Also. if conjunction with the issuance of a o5erwise required by the Act from emissions of a pollutant othe- 5 a n oce permit to a new Or modified must bebg credited for purposes of satisfying of the specific pcllutants required to be be. "by the time a new or modified ke part D requirement For controlled are reduced as a result oi

cOm?lences in effect eximple, reductions req&ed to meet complying with a MACT s t a s i u d (e.3.. and enforceable ' " This new - X4CT and acid rain reductions pursuant reductions in nontoxic VOCs Aat are siatutory condition for offsets augments to statutory requirements are not incidental to reductions of a :oxic VOC an existing requirement under scc:ion for emissions that is subject to the MACT s:adard). li3 that provides that must be Ecwever, the statutory Itng- age does 6r if redg=tions are achieved s.lrsuan: !o "legally binding" before a permit may be 2i13w reductions &at are B State requirenent that goes kej.0r.d issued.fie 1990 C w c l a r i f i e d the iSrec t ly pursuant to a requirement of the requirements of the AC: *:A existing requirement by requiring that ce CM (incidental e;lljssion . emissions reductions are corsidered the offsets be federally enforceable :er',uctions) to be credited if they meet. incidefital and. therefore. shodd be before perinit issuance (see revised the other.criteria for offsets contained in considered as creditable redcc5ons ii ol section 173(al]. Accordbgl~. 'wkle it is sx5on 173(c](l) a s described above: . other conditions fcr a ceditable ofiset possible for a State to i ~ s u e a pennit to Section 112 of the CM contains . . are met - . . construct once sufiicient emissions sowce requirements for hazardous air For purposes of equity. b.4 offsets have been identified and made . pollutants. The listed hazardoul air encourages States to allow socrces to federally enforcqable (generally though pollutants in section 112(b](1] are not use pre-enactment banked e&sior.s a pennit condition made to the p e d t of e x e ~ p t from regulation u d e r the reductions credits for ofisetthg the existing source). the State must also rocattainment provisions of part D. . purposes. States may do so as long as ensure that the requi-ed emissions . New and existing sources must,meet, the restored credits meet all oher oiiset reductions actually occur no later than where applicable. the Xf.ACT emissions creditability citeria and su& csdi ts are

., the date on which the new source or hi ta t ions as promulga!ed under section considered by States as part oi the . - modified source . . would commence : 112(dl. As part of the schedule to comply attainment emissions inventor;r when

.-I operation. .. . . .. ' I . - - I . ~ i t h an applicable MiiCT standard. an . . developing their post-enactment '(d) ~ c t u a l emissions reductions. New eksting souice may elect to comply with attainment demonstration-For VOC .

. section 173(c)(l) includes the pro.vision . h e early reductions requirements of ;. r ' - 'offsets. it is important to note that suc3 . . . ._.

that the: . i--: : . . . . . . 3 ; - 0 ; " - . - - S ~ C Y O ~ 112(i)(5]. By electing to achieve . '. reductions.must be used in accordance .

1;Wa : . . . . .F&&. nl:&&stert J.:VOL +sp,i No:. 74 4 . 1 ...Tb &day; Arid 16 /::~ri,~;&l -Rid& . . . ... : . - . . .

. - . . . .

with the .offset ratios n tab l lhed by thb imjllikd that the t & n ? i o h duc t i ods - . *. !. ' A pmg& xhir6 nquim. prior tn 19QO CAAACAAAfor the different ozone. I- .: . used to 'allowu.the new emissions from the lrruaoa of m y Wt.:..'.: m m a l ~ h '

. nonattainment area classi6cations. -.. .:r. the prapo3Cd t w * d b e , w h e d of alterq.tiva ri+ r i t g produetba -:- . . . . . .histing EPA regulations (40 (=FR :r. .:: :':;-. by 'mntrow.ekht@ major siiur&s to ' 'P- md.envimnmmitd eootrd ;

. . SLlss(a)(3](i)(C](1]) prohibits certain. -f. .a fia1er.d- than that k q ~ d by'...:. t echnipfor s a d ptopored mwce wbid pres~actment banked emistions ;: a:-: .:: RAm or by.co$blling b&or.++es:,: ' d*o=mtu that tha -fit? .d . . redueon &iU; 1% reductions .. -. .-.::.% . . ' Co;h&j&te;*wth> kp'ij~e': .; 1: .. & s-tl~ out~eisat

achigved by ahuttipg down w t t n g :--.:A. . p m h i o g ,di m ( l l p l of theelsn -.: . en-a a d u#L? lmpo.)Cd a~ .. 8 o w . o r surWllag p d u c t i o n or .-:: :: M &,-d ~ ~ t i ~ f ~ k i fd D r e d t ofitailouti&&&so+ .. on.-l . . -.-- .

-......................- .. . ...... + -: ,---- _..- i..- -.: . . - -.. - 0 e ~ t i q P o ~ * from k;h in the r ~~~~~ GEw'ia& ;;i7____1 -1. -. a V&~PPF.'!~ a - ~ t j - .... j . ; he lk &s&d'thi;~ :::-- . . p*-,.f pp s*::..;;;::;..i: -, i::; .j? c?;.?. -. - - .-- .--._. -.

.-. . . .io&kihe pe.pim agency.had to :--.- - provision ~ rn ' i ed ion ' l 72 'kid added it 3. d . d i t a b l d E d 8 ' ~ i ~ i ~ n s foi .:.. hi'q-&* thit.;+ijcjp $such Ch as new u&tioi~ *(a)(5). Coniequezttly.. - .Netting ,;-:'..p.:s.*o;;.:i:'f-;. ;:. .j :::c::;:3z: . - . . . . .. - . . . ..pollutant from e e pmi;i,red 80prce:;;:~ id &Jyat a i d d ~ ~ ~ t i o n iire . . . . . . . .-......,<: ..... ,az;.. .... -.,.-'..-, !.'

-. E x ~ i ; t ~ ~ o ~ t & ~ ~ P - m ~ i o ~ ~ f ~ u b i ; i t 2 : ~ w o e not &or &debate to .: :-- ::I;.; id theeij.siu&&ebf any - ,-:,:2..$>.:?2:.;..: 2: . . oi l h e 1 m - ~ *-dY do;*- . emusiom k v e G w h i d .ycceed the.:::;, part D pemiL7?' . .

ndt;aed EPA'i-it . .allow'- p e & t ~ fzZ~tf.yt::.7:-.7:.;<r:=;- 2.; : ;'\ : . ~ ~ : L : ~ G - . C Z ? . ? -:.l-l i-.::.rl%>Ci.. . z ...... .

net& i-sio;ij-de&as= dnd -1 . @ternati~ely, when a major new'orl. ?:-: 6.-Contml T+ology Information -7: .. . . . . - .+ ->: % -_i., - . inmase<(see r e c t i p IU&+).:NFt*' m q e d ~ F f i ~ - m - applied for a . . ' ~ e r i ~ ~ ~ ~ ~ & @ ) ; i h ' i ~ ~ ~ ~ h ~ h i s t . : e@islo@in&aiei agd d e ~ a s e ? . , - ... - Part D P e m t cm t h e , a b . q o f m : --' r . . provjde thgtlbe j x n & l ~ i c h x i o l o ~ :.:

. rhould be dei,ir&-,ed c(jlub&it y: approved p ~ t h &OW&&). '::;:$-< : :,!i . Mbrmibon frofrommP~&tsjj~uid under. mK9i-t m.ges'& Dx?:,: :': :. C O ~ S P O ~ ~ edSe0IlS f i d ~ d d b 9 ';: -7 . s & t i o i l ~ bp'proiptly'i&&i&d to --:. %jib- T m a Pol.* $@ement ' ;. (offsets) weie to be bbtaincd from : r -:'- ms RA~IBXCTILAER .:.; ::'.:.; 1. -. ~ ) - - ( m , ~ . 4382). December'4;19S6J. existing scun%s'as*a pGGliisite de-o&, irj;:oth& ~ b ~ & , - ~ ~ d to the Use of p'+&ac&*t,redi&O+ for,:.;, approvingvingae n&'aJosh@oL:fiese general p u b l i c :..% ,:::: i.!.!::": . - 2 . . : .

. . : . - . nit- d t h *6s't-'enic'tmen't imijsiom '.:. provisions fonyi?p the baeis'for States' to ' ... . . . . . . . . p.:z r:.';.,2-...-.--: 4 _ .

h&$; @ n & & h < e iv+lable.io ' r: ' g m d a40~&;Cds1.b&ek Y : 7. innovative C ~ d t r o h for Rocket ' . . I . - . ; . . -.....

..a. _. . a*.. .c._,# .t;(__y:.-- FJ@ . . . . - - . . . . ..-.:' . y i the -Aent allq*ed ,+ i i ,S t a t e des,'.- :" . Swr.'. :- !: '."- err .;: -.!:a, >.-. a - esandMotors

However,~becaui~ rrduttlo~,.; -,:. ..,& h+id;Ac.g,$*:&=&.iiG !i .:....... >,-:< -: ...-... -: .. --.. . . . . . .-:Under bectioin l*(e) States.&' .......... ...-....... . . . . .

npresent edss!on. t h p t , e . n c t .:.:.;"; allowapzs maybe established grid; ;: - abab-d to dew by :: : : , voi&'certain'e*s&&j* ; ,i --; . . - . ........ indudea ii t h i p 9 0 base year . : . . - . . . . , -

-. . : - . alternative'ori6nbvative means. of h ~ ~ ~ t ( % % ~ t ~ ihb;uld c ~ d d e r the. -;, rUowahcei. Revised pee+oi# YZ(C)(~) - emission inmaj=s bm.mcket edgine poSt&actm.6d & e a g [ l e S ; PO$- ' . . and 173(a)(l](B) limit new grow-& - .

. - and motor firiq. and de* related to enactment decrriies) pd even . allowances to only &ore portions of a , autho-tion .pplies to tho* for ad~ficability W O S ~ the nonat&ment area which have-been , any edsting or m o a e d major Sour- . source's net emissions change is de - ' ' -..' mi-s. .' - .;-' .? :. .. ... . . . fonnally targeted foi6konomic &io& . that test. mht ingin& or moton

. : by the Adzhisbator. in consullation . , irnder thec4n&Yolu found secticc Early d i c t i o n r o f hazardoh a h with the secntary of ~~~i~~ and ,

pollutant [HAP) emissions wder section, Urban hve lqpment New section 173@) l n ( e ) (11 through (41. The conditiocs require that a proposed modification be 112(il(s) may be .aditable - of the Act invalidates by bperatioa of solely for of upanding ke

emissions reductions for netting. The law edrting h* dowane testing of rocket engines or motors a! a EPA considen eerly ducti ions under . any area that eiber

section llZ(1)(5) to be "surplus" under received a notice that the SIP was facility already permitted for such purposes. and that the testing is requhed and creditable netting'h rubskt ial ly inadequate under s e d a n for a pmFm to the natior.d

stated above. early reductiolu cannot be - llO(a)(2)N(ii] of the 1977 Act or used as creditable reductiom for offset receives a notice of inadequacy unf er security as certified in wn'ting by the p u w s e s due to the statutory limitations new sKson llo(kl(ll of the appropriate depriment. and ege=der of section 173(c)(2). of the Federal gove.mnent Also. t!!e A c t Again. section 173(a](I)@) liks t!is . 4. Growth Allowances restriction from targeted economic sourci must have used all reasonabk

growth areas. Where a growth meam to obtain oifsets. all avadable Before the enactment of the 1990

-9. the Act provided in genera that a l l owbw is no longer valid or C ~ E U Q ~ offsets must already have been used.

s h t e s estab&h a pol luat- be estabiished a proposed major new or and offset. must not be

specific allowance for additional growth m 0 d i . E ~ S h t i o n ~ source in a available to the source. Once &ese

my designated nonattainment &a n ~ n a t l b e n t area is mqvirrd 10 obtain criteria the 80- will a=?:?

by conbolling emting 8- emissions emissiolu offsets on a case-bycase with & alternative measure. impose? by beyond the amount of reduction . - bash in to obtain . the permitting authority. designed 10

. . . . . . . . . . . .required to demonstrate RFP. Based on B P P ~ ~ V ~ ' . .__ . . . . offset any emissions increases not

. . . . . . . . . the amount of excess control of existing S. if ~ ~ ~ & & , ~ s . directly offset by the source.

emhions. section 172(b)(5) of the 1977 . - . . - . ' 1n lieu of requiring a~temative o ~ s e ! Act provided that States could - Before the enactment of'the 1990 . . measures, the peimitting authority rrzy 'expressly identify and quantify the - .. :- CAAk d o n ~n of part D contained a impose a n emissioru fee to be paid 13. emissiolu. if any. of any such pollutant - .. proviaion requiring that, in the case of :-. and used by. the State to inaxircize . ,

. . . which will be allowed to result from the implementation plans &at could not emissioru redudions in the &aof tie construction and operation of major new demonsbate attainment of the NAAQS .;. test facility. Section 173(e](4) cape'scck b r m&ed stationary sources" in a ; ..I for ozone or carbon monoxide by .T - ' . :.'. fees at IS timk the 'Hat of stationarj particular nonattainment area Before --.- -December 3l. l ~ ~ i s u c b plaxis must .i -:'-'. ..contml am~'adopted in the ............ area d~.r?+! . the 19m w d e c t b n i f 3 ( l ) ( ~ j :: .:I ;--:. inciude ::: :::.XI. ;-.;is.-:: ;,<:.c,.-.:jr -;? .- - < - ,the pfeviow 3 years. ' . .

. . . .Federal. Register : /. .V& 57, N0..:74 / :.Th@ay, -April 1% 1m -/ Proposed -Rules. : l3!j55 _ _ _ . ._.. . . -_. - . - - - . - . - - - . . .

. .

. .

sources. nonattaimxent areas having a Review (NSR) Program Transitio~d popidation of 350,000 or more. or in 12 Te9porary Clean Coal Tecf.s.ology ~,,id=ce;- p. w a d 11, severe and extreme ozone Denonstration Projects nonattabment areas. , (appendix Dl].

Sec5cn 41S&J(Z) of the amended Act Lf these dea&.es pass wihout S!atm 8. OCS scurce Applicability provides under certain conditiom an - submitting KSR revisions. EP.9 nay

exerrip5on horn the part D reqcirements impose sanctions on delinquent Stttes. Sec50n of the 1 9 9 0 a u adds a of tide I h r the installation operation SpciScaUy, the Act [in two repa-zte new section 328 to'the Act entitled "Air . cessation or removal of a temporary provisions) grants EPA the authority to PoUgtion from Outer Continental . Shelf . . d e a coal technology demonstration . . impose sanctions based on several *ctit4ties".-% section contains . project. Section 415@J[1) a w e s that . different m e s of State failure! kd3dirg . provisiom pertaining to the -kol of . . dean coal technology projects are those a State's failure to submit a SIP or SP air pollution hm OCS SO-- l l e s e

. - b d e d under the Department of Energy- ' element or a State's submitting a3 protisions necessitate t i r e h i o n of the. Clean Coal kzhnology appropriations or . inadequate SIP or SIP element (see Federal NSR regulations under both the - - similar projects funded by EPA and

' . sectioh Na2) . The s-tioru i n d d e PSD and NSR nonattainment permit - : . the applicability of %tion 415 to . reducing a State's W w a y fPn& programs to facilitate iqd-tation of , existkg facilities. .-..- .- a : .

.. (section 179(-bJ[l)) or inceas:iq . . . . .,OCS regulatio&. p e 0 9 regulations . . . U12.c sectiori4isfij(2).:lo qrulifv f& i ' . e m h i m ofisett (to at least 2 . b 11 for Fll be p r o k s d in a separale ?A .. : . thi.e~n;ption. a h n p m q dean c d . - new and modified so- ( d m . .: .

,,.action and d e d a t 40 CFR part 55. . -. demonstration project muat operate for .r: Irs(b)[z)]. In additicm to thew g e d The reader is i f ~ d . b tb-separale .-;- : no nore &an 5 pars. T h e projeft must ;. .: sanctiom. eection 113(a)[5] p r o v i d ~ that ?CS p+ padcage for more specific:; also ,mth'.any applibble SIP for-.:,.v+~ the -bator f i d ~ &it a ::. . .

-mfonnation on Lhe'OCS rule< .:.: ::.. .-:;, ; ;the area in which t k project is l o c a w .::..I Slate & h *& .a,.:. .. . - .

: : . ~ 5 5 6 ..' . - - . Federal Register I VoL 57, Na.74 ,I . n A d * .April 10,.1992 / ~ b j i o & d . ~ u l e i . . -. . . . . . - D -

' : -. . : any reqlFirement or prohibition kla'ting : -that all meask; and other'elementr'in t A d includes the pre-amendment . - . . to NSR the Administrator may issue an the SIP be enforceable. The amended - . . subsection [F) requirement that State5 -

.- order prohibiting the construction or .. . provision specifically authorizes Sllrcl to .' .ensure.that the State and/or local - . modification'of any major stationary . contain certain nontraditional : : :' . -. . - . g o v e e e n t s have adequate resource: )F

source in anyarea yhere such -'- ...- . t e e q u e s for educing polhutio- ; :;: implement the plan This includes a nl { . . . .. requtement? apply. In States that delay economic incentives, marketable :.-: ;i .; :-+.. requirement that the State ensure thal : -. . in revising their SWs to iudude thenew - . pdk and auctions.of cmissiops -, . . ; . : nothing in the SIP is othelyise - ' A' . . . ,= .pteconstruction permittiq requirements .' rigbk-The .DA.nads this language to : - prohibited by any. other State or ~ e d ; ? a1 -. : ' .by the statutory.deacUiue, EPA may ..-: -- >.:. re@ even the?e other me.- of, .. . ,..;:.law. F i y , d a m e [El(i) ad& a nev .__ . .

. . :. . . :'exexhe this authority by p r o d d i n g .;: >; a c h i e m nduct io~ to be enforceable. :;- requirement-that the State relain . : . . . . . . . - . . :-under section 113(a)(S) whehevei a.-:~'-;=~;i Section !a ) (B) , qqe of &general SIP.: i responsibilitj.f9r.en?uriig adequate . .. : , . . .:: patticulai new iource attempts td--%.:iA. reqir-enp f o r ~ q t t a i n q e a t areas. 1.; impleai~htation ~II;?S+ in which it . . . . ' ~ t r u c h y i t h o u t meeting the NSR .;t.T< a h 0 indudei thi? requirement in .: -;: :: &I$ on local implq~ritation of plan

- . ..., - - . . '. I . r e q h e n t s . a d d e d by the' 1990 u- :-*&tidy t h e ' s a m e . w & 1: :.I ; --:..:,;. . p*dsiom, .' -::::I .;::: ;::??: : ':' - - . . . . . . oiby Issuing a 'gene4 -~&pn.ban.. . i . ; . .SU~S@O.II .@) &es f$h the p're-'''.:> i s u b + & & ~ 'forth '- :. : *

; . ' . .. , i . an alternativeithe Administrator .::.-I:. amended subsection (q t e q h m e n t to .: .~qui remenb of pi.e-amen&dsabsecl on . . . . . *sue i.contiog&t .*~i5~:~~;c'...::.:monitor g d compile data on ambient :-;:.. . IFJ that con-ehs~ion.moai!oriq. . - . . - %

. .. . . . prohibi% construction of any major .- - j i air quality:The EPA historically ha;. .: . . '. n i ~ p ~ @rnmhated monitoring . . : . -

. . : , .new or modified t i o m that failed to - . ~roml?gated.regulatiom iq part 58 of the . rndatidns a t 5 5 1 ~ 0 of the &- ant i7 . obtain a p a t that met the amended i '. mhca- the necessary data . : app6n& P to part 51. Under section. 33.

. ' statutory NSR.requirements..The P A .:: ; States need to ?Fed and 3ubmit.a~ part :: the &sting r;egulation, Emah eifect

. . . . . . . : .wil l provide additional idonnation on .-. of the* S? .ne &sting k d a t i o b : -. to the extent they are ndt inco~isten . .

. . . . this issue in its, NSR regulatory package. ... in effect *u.at to section is*.. , wi&-&emnew law. until EPA elects to

. . . . In to fmpojing itatutody. : the extent they in ina t inconsistent ..'. , . amend them. .:.. . .: .: . -. z . . . . . required saactidni,,EPA +.As6 required : with the hew I+'; i t i l EPA e1ec.b to .'. ..; :: : ~ ~ ~ ~ d ~ d 8ubsecijon (GI also czrri . . . . ' . . .- . ,' , , , -. .by t h e . ~ ~ ~ t ~ t o bmmdgate i,m when mend them': ::;,,: ::'::.:II' - . ,.?.. ' ' --'.-,,-:.-. ' - ' .-:. '. .. .. -. ' forth aprovision of pre-amended ...I .

.

.: : . ..it f i n d i h t a S1.t. has f&d to bake a'::" . m e enforcement ~ m + i o m o fd re . . . subs,iction m: sa tes must prod~e.. . . .

. . . ~ i u i r e d SIP submittal or ha. m ~ d e UI ' -.- lmaded fibsection PI now under :...: authority to bring aergensy rctioni . . . . . . ~co&plete iublhirsion ( 9 6 siction - I - .:r - subsecti.0n (q- While thisspm%sion , : - [cornpaable to that to : , . . -

. ' - : w.C). p~riG&t to this'authoiity;EPAis. i . ~~ t h e ' p r e e g s ~ kquiremht .!hat ,,don 3033 in wherr a rocrce a . .. .' .. . _ _ . . . . develop* e m e d NSR n&ations t h a t the a prrsonsmction- . .. . _ . : p u p of present a imminen . . .

.... . .. ..would indude, at 4 0 . m 52 a .-; :-reviewfit all new and modified : . . .. . .

. . . - . ,. and substantial endangerment to the . ': ' .Fcder$.NSR nonattainmeni . s b t i o n ~ Sources. it deletes the

. . - public health. The EPA has also ado1 I

-0. program that P A (or the State pmuant previous pmvisiOn's reference - r&p~ations regarding authority - . to a delegation agreement] could : : . ' lo PMonSbction mviewof . cm 51.150, and these

implement as a FIPin those States that :.. . subject to NSPS- ' : . . . . . . . . remain effective under section 1%. t(

fail to submit NSR regulations by the : Amended ' P I contains the extent they are not incomis:ent \ i statutory deadlines. Because of the . . provisions that essentially remain. - . the new law, until EPA amends &err: importance of he increased offget . .. . "cha"ged* It incor~orate3 language . .

Subsection [ K ) was not revisid by h e ratios, reduced i o u m thresho1ds:and ~ & ~ ' ; ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ @ ) amendments. It still requires States I I

. other NSR changes to States' overall . - dttalnment P A presently intends ~'o'i'ions prohibiting sources from .

. provide for the revision of theii SIP's

emitting pollutants that would [commonly referred to as "SIP calls" in to impose this NSR FIP on any State that conhibute sipifi.ntly to . two circumstances: if the NAAQS w re f a 5 to adopt its own NSR regulations -

nonattainment, interfere revised. or if EPA made a fm&r.g hz wethin the deadlines established by the maiDtenance the standard, or the plan was subs:antiaIIy inac'equa . to Act. In addition. or until such time as the interieie with pSD or

ty.3, attain the standard. New secticn is in place* may any subsection of the amended . 110(I()(5) dves EP.4 the authoE?j to

the sanctions identified above. Of incoqorates one provision kon pre- issue a SIP call. Once it and azelded m!ause (q(ii) Amecded subsection (11 adds a ne c

he EjSRregu1aS0n3. EPA reLdoKeS the section 128 requkement riquiremell to section llO[a](l]. 11 n rrv under ordinary circumstances. withdraw that the SIP contain certaiq s!ates explicitly that any ~ l a n o: p!a the and any sanctions that may have *quirements as to state boa;ds. L~ revision must meet the applicsjie been imposed. . . ' . . . addition, m(i) of tie aEended 'requkements of part D (p:o~isiczs

H. General . . . . . relating to nonattainrnent areas). '4 The p m m e l d e d ,=tion ;lO(aJ(,*;[q $though this is a section 11G(a :2)

subpaillsection S F s to contain a provision prohibiti~ ~ t ~ t i ~ ~ ~ n proYision, i i does not add a z e r Extent Not Covered Under Pollutanp fmm m rir ~ o u u u a f in mounts .. - requirement to the Act as a whole. 'I le Specific) . . ' . . . . . . : wM& will 'prevent attlinment' in another State. : sps for nonattainment areas have

! .- . a ' The mended venion of lbir language requires a SIP . Subsections (A] through @.i) of section . . - p ~ i o n that prohibib e&lsionr will always been required to mee! k e p: -t D 110(a](2) set forth the elements that a 'conuibute signifiundy to nonattainment' in requirements. '

SIP must contain in order to be fully lnorhcr Statr However. EPA inteprcttd the p n - Subsection (J) has also been :e!ail ed approved. ~ l though Congress ' '.' . menddlan~uage in fie manner that Gnlprrr :' in its preeisting form. 11 c-n~?.2es ;e cxpmsd h the unended ACL See hir Pollution substantially amended section 110(a)(2)' M ~ L ,,. US IO;~. 1-3 .. . requirement that SIP'S meet the - : upon enactment of the amended Act. .- . : (6th Cir. ISM). ~n the S a u t e R C ~ O ~ Congrt3a noted applicable PSD and visibility

. . . - many of the basic requirements ?main - bat b e p m a m d e d language prnefitd an : -: i . requirements and the associated ' : . . the same. . : : . - .. : .. : ... : -:'.- - . .. . . . . . impo-ible standard m d noled that 11 wrs adopiing ..consultation and public notif ica~on

' a g u n d y coneibutc' to clarify when a nolation i a Amended subsection [A) includes the: t ofbl rm-k, -. Re,; P4. . .- provisions bf sections in and iji! - . . : . -

,' --. : . . . pre-amended subsection (B)requirement ; 1mst COW 1st ma. (1989). .- : :. , : -. < : respectively. : 1 .. '' .. . -. . i - . .. .

. : ~ = d & ;&gisG / .%L 57, ~ ~ 7 4 ' . / i m d a ~ l April 'lk /.&+;id he; . i3&7. t

Amended subec&n (K) minl&s' - . standard or i c y k u t e d i n t e h - ' '.: : -.- &nformity-tegdatiui~i it is &ely that EPXr authority to require States to do '.:- emission ieductiUIi3 other milestones.. final d a u ~ will &ai;ailablg air qrtality Although is .' ..$ any &&n,; '. :--. i. :... . . .. . .. . . -. _ ._ .. - '

- significantly &fore No+mber 1992 to ..' ?ction 110(a](2) provision EPA bas . '.: . -'ihe intent of ihese provkicim'ia - : -.: allow States to rnbmit SIP reyisiom . .ways Lad the euthorie to requite * .'..-: W l a i ~ d in Committee R e m - uiteuiteuiteuitei addressing conformity by N-br 15,

eppsopriate modeling;This requirement - - ' f h . ~ - & i &&ti& if the ' . 1992 the date the statute'reqihs EPA

will be met if the State submits itr actual. Lhprcia of prdpored projects hfom thy &':' .to call for such rub&tws in I& -. modeling in itr SIP rubmittat and EPA -.: rndntake~ the -ty pmvisia b '.I.- .:' rigulatioa The.DA &dsedaen% . . determines &at,the submitted SIP -'::.r:--:: lo t o r t a h r m g e p w fa ati-tes that ib d d i m i t p . - measures awapp@vable: 'Ihe EPA :!&:-..-. rthhieotd Ilr qdb - . tegnlations, it a mtabbb'a tater date currently doer not have W t i o n s . ~ t d d ~ d ti- h t F e d d , -. . Z. fOl md sIP robmlws -ti.a

rnodehg fm &e !-:.,,,-;:.;: . W* don't m.nrPPafl * are in my m y Incowltent with the effort to _ the im~bssibility'of W O ~ the

demaktration pu rpos~ .? .b~ t bas 5;; .'.:..rchjevc ~ Q S or w~ fail J +... : : .I- '.date. The =A inten& to'irovide Stat- isssed Hdance l e g ' "EPA's Guideline. :? ~ f o p ~ + i ~ e s bdhelp in G::..:..: . w i & i Gaioiible $e&d*.deyelop. .

'on Air Quality Mod&@ (W))--.: ::i. .effortto ~~e the NAAQS. (Committei . .r .conformity ngulafion& h& ad &e year , . : The pre-amended proy&ion.+l:.... , - : . expeea that the new conformity p r o d s h :;. that con- js hid in mi& son :. - concaninj peknitting fees has been :;.'i -, will be espeagy helpful -ruing th.1 air ..: 17qC.(4)(c). EPA gote; for - - -1 carrid over in.sihection &..Allbough -; q u d b ' a m - h w P ~ Y a pslk&i. ddc;aaog that +t;; ,mder . . the bge.;f prohion h g not , . Federally 'iupported tmmportatiaa p h m i q . -

effork which have a major tmpact on air duty tosubmit d o n d t y - w d a t i o n i G g e d in ligbtaf the & * ~ e h i t . - .. . qud5 md ln Smmb ~ u T I t e d - .-until PA promukzit.es its M a t i = : pmeions of ended Ad (tide w; '.! , a.mtid P ~ L of he la : : .; .: a d mt.blishev.dale foi iy& -. ':.: - ' . these ~ ~ e n t ~ h d i i l d ha%.& - Y::,&i.: a&* (mmmiw port- :, sub*tdi ~ ~ m ~ d 8 ; i p ~ - . ~ , i me . .

different *ah &om __ ._...... under _ the . p k . . . . . . - p a : . .: : . . : . , . . . : ovinu c o n f d t y t y P v 9 be . .

__ . __.: .,..: ' . . .:. amended Act,:.,,.: -,..:. - :- .:.:.;. ,.. :: ..-. . - . ' section ~ ~ ( c ] ( r l j rG&d EPA to r': :. + provided in latei r u l e m w actim. .

- Amended s i b ~ e ~ m M b.a h d . . . jmmdgatipeneral crit,,ri? and i;-..- :..;: n e bel+d@&erqSerqss+~ ; pmvision.rPguiri~ States-tO~mvidefor.-~ for det- [X)nfO&,ity .. - .176(c](l)(B)(j~~&~ applied to::. .: : , . c 6 ~ d t a t i 0 n a d putfdpatim by by November 1991.:h me case O f . . . : nonattainmmt Ma*:''>:. : . :: . P O ~ W mbdivi3iom-@ectedb~ the 1- - e a n r p o ~ ~ t i o n p l ~ , b-,

: . .- . . ($1 ;)ta~ljih,& gep;'.s~Onnb~8e& SIP- msSeCtion.builds O'! seve* ?$er. : pmjecb, m ~ ~ d ~ i & b ~ t ~ ~ , wifi ..:;...for -p*~Onn+,aied q ~ 4 N in :, aectio<?l0(aJ(2] z)kq~iiriments that ..-I..: . : -. the con&nce'of the S m t a r y of , - .;:. m n e or C ~ n o K i w @ t are& -

requirt$ conidt.ation &d p&cipa tion h . (T*rration. ,..-i.mqM . . . . rigard.to ipecific . . , . . . - . SIP.ele&nts; :.,i ..... - . .,: . . . ..' - . . g e n e 4 Federal actions xnfiy'riot delay '

.-. -. . / . -. promulgate'criteiia and p d u r e s for " timely at-t of a i t a n d a r d or ,? Conformity .I;!'..-. ,.:ii: :". '." .;"I". :'-. I ' "Cemon~trating a d as&gn .: ' . - ' m y req-d interim emissipas: ,, - -..

(a) Ge~e&i~,j"j,.&e~tSS section . c~nformity by November Section . reductions or other des tones in any .i76[~) pGvides the b e w o + for - . : lfG(c)(~Kq requires EPA to include in . area. More specifically,'after .the interim ensu.winghat Federal actions to ' such procedures a requirement that each period. conformity cannot be.det~,ained air qaslity'plani ' yde r section 110. State submit to EPA and the DOT by - for a transportation p l a n , o r p r o m Ucde: Jection 176[c), before any agency. I'hvember 19g2 a revision to the . .unless a deterxination ha b~ made .

d e p m e n i or b i . b e s t + t J of the . impleneitetim plan that includes - - by the metropolitan planning - . Fede:al Coveirmj'rnt engages ip. .. criteria and procedures for assessing the Grganization that enissions eipec'sd . supports in'iiny way, 'provides finandal c o n f o ~ b of any plan program. or from implementation of such plaru and !,

assistance for, licenses. permits, or . . project ~ u b j d to the mnfornity program are mniistent with estba!es

appkves any activity, h a t agenqihas reguiiments. Until this revision is of emissioru contained in be .appF~ble an agMative responsibilit-,~o ensure approved by EP& exis- confckty SIP. The EPA interprets these p&i,on3

action to h e S p or provisions in the SIP remain in ezect. to mean that the combination of FIP. Theciteriafordetermining . highway capacity expansion. &&way

"Ccrfcmity to an inple=&taticn tIa=~.pofiation conformity d h a t e l y extensio~s. snpport for -it a d Flan" is defined in s d o n lfe(c)(l) (A the existence of SIPS which TCWS in the hnsportation pla3 z d ar.d B) of '3le Act as meaning coctzh esthates of emissions h m program must result in vehile ezissions "codonity to an .mplementation plan's mo!cr vehic!e5. Until such tires as EP.4 that &re not in excess of those ~ c n t & ~ d FLvose of eliminating cr reducing h e apprcves these however, there in the SIPS demonshtion of RFiJ azd ser;erity number of violations of the e d s 9 en hterim period with cri:eka for attainment despite any different: &at na!ional ambient a k quebty standards de!e.mking transportation conformity ' may exist between the area's cur;e:t and achieving expeditous attairrment of w k c ? ~ are different from those that will a d forecasted population. ernp1opent such standards; and that such activities ' ~PP!Y after the SIP is approved. These and travel demand a id &ose that .

not cause of=ontribute to any new interim criteria are contained in section assumed at the time of SIP prepara5on \dolation of any standard bj kiy area; . 17B(c)(3).ne E m and DOT jointly and adoption In other words. the increase the hquen j or severity.of any issued @dance on transportation . , conformity provisions e n e i o n &at the existing violation of i n i . i t u ldad in b y c o n f d t y for this interim period based ' SIP willcreate an emissions budget [for arqa: or.del=y timely attainment of any on these criteria June 1%- . .. a .

the Mteria pollutant .aid its prec~sors) .:. - . . . . . : . . - . . . . .

- The EPA's tr?.nsportation conformityty for highway vehicles. and that the , . ... _.- . . - UDC= the PSD provisions of-.ection Sra '?~ regulations ,are still under development. bansportation p l w pmcese Nill be

.'baa hirt3r;caUy had su& m o d c b d e r ~n coordination with DOT. On October -: required to ~1a.m and p r o p s ~C:JCU. EPA hu ~ e d t h r r r mler a g u h w for 24. ImiEPA and DOT jointly issked . that will result in em.ission?-*~ that 4 t h p v . u qslng Lhc gGdm= as'. baas for - ' - further dance indieting that the - ' . budget For regionalpollutants ( o m e . . . . what a d q u a & &* ms nevmt=c&on 14 '. hterim transportation gujdane bsued - .N&,-CO in soM.ma$ *d in Rquhmenl rnlifiel EPK* par1 r p p b U 0 ~ of rh. . .. n ~ * % as der form purisoi." d-" e d ~ q for . On J u e 7.1991 ~ u l d ~cdritinueln effect :.'-'some &as) .the tmii$dti:+i plarking . olhcrpurpra I,.:' 7.;;: .- ...- . .:. . .:...: ? : .. .... . until th? agencies promulgated final i-"'."' :pmceis is G & e d iG.demon&te

-

13558 . Federal Register '1 VoL.57, No.-74:l-Thursday, April 16, 1992 1 .Proposes ~ u l e s '

I - a$in that the budgeted emission level emissions.Fmally. a SIP that -: ' - *. ' reductions. i.e, that implementation oi . .

.will result h.attainment (For pollutants demonstrates a margin of safety with the plan and p r o w will cause lowel capable of forming hot spots of . . . respect to milestones may identify a . . emissions than if new projects were nl t nonattainment. an air quality : - : . - budget for conformity purposes whichis implemented. This option requires the , determination is required.) . . highei than expected to result h m the least analysis by the State, but . . '

' (1) Areas required to demonskte measures in the SIP. but is consistent . precludes transportation planaused W a n d attainmat For nonattainment : 'with the milestone and attainment date increases in emissions that might i3 fa :t m a s that are requiied.to demonstrate ... requirements, for purposes of providing ' . not interfere with attainment by the RIP and attainment by o future year, the the transportatfon plaaning process with ' deadhe due to the large reductiom SIP r e h i o n that c o n e those ;: -. . ., a a h i o n for inexpected growth or less '. resulting from'other measures. In the demonstratianswill necessarily contain than expected effectiveness from TWs.: : joint EPA/DOT in:eiim conformity ' . . .

- btatemgnts'.of the motor v&de .:*-. :: -!-.- sort of cushion for'ubexpected '. ' - guidance!. these areas were implicitly emisiforis foi future' yean on which : -:'. growth is only a *istion apd EPA". '? :placed under this o p t i d 'md wiU remi ia &qse de,mo~stri;ttons an based. These i. wants ti -its coif ide~ce the SIP : : there unless a SIP reyisioq tixerdsina

. ' s t a t m a t s beconii the - s io i . : planning prpces?, This doe; not c h e e ' - the second option is appnjved, .:'; . - .

budaets &at will be used for later : .i ., . the substantive requiremehts.for . - . . . SIP ::' . . Second option: The State 'me :- - ' . codormity determinati~;Budgets will , .. approval, however. --1.': . :-- :.'.-. .I. . .' - - " - vol~ntarily submit. 8s.a SIP revision; . . i ;I

thereby be defined for a number of . . . .' .. (2 ) ~tbernonatta&meht~&eas. -' . . attainrr?ent demonitration'aid. . . . 1 future dates, depending on the RFP and Transitional, submarginal. and naigirial . cornispocding motor vehicle emission 1

' a t t h e n t showings required for the : ozone n o n a t t a e e n t area!. not-. . : . budget lik'e higher classified m a s . TI is area based on its nonattainment status. .. violating CO a rea s and moderate CO ' . may show that &portation plans il at States s)lould make sure that these - - - . - ateas witb design values of 127 ppm or .- cause emissions .hcreask,iw in fai t

- budgets are stated clearly and - - ..: - .. - less are not required to indudispecific compatible with attainment thereby . unambiguously in the SIP. For example. . attainrrient demonitrations or to show providka the msporlat ion p!aling asslimed tempeiatue inputs and the , ; :. comp1imce'with'f; l te~ ,milestones.

'

. process flexibility to adopt . . such . plan . . -. geographic ivea of-the inventory must : ,: . Consequectly, they 6 notrequired to . later. - . -- . .,' - -.. .. - . ' _ _ . .

be stated so that c ~ m p u t o n s can b e . co~ta in statements of future. emission. . (3) ~ain&xhncc~lmi . More s p e d , - made later on an accurate basis. The . which coirld be used as, e@ssions . . . guidace on the content of maintena~ ;2

RFP niilQtones will usually be d e k e d budget for later conformity - ' . . - . . . .. p l m may be provided a t a date-dost : in temis of typical seasonal weekday .. - - de t eda t i on i . ' Neverheless, ETA

'

.. : to when Sta:es will be prepaiing b e s .

'

. - emissioni like the base and periodic .. . believes that the @tent of section 176(c]'-- plans. For how, States 'should be iwa e inventoryXttainment demonstrations is to make cddormity a.meanizaful . . that transportation planning in areas may be based on mdividual episode . process for these'areas, rather than to :, . 'redesignated to attainment and '. days. however. If so, the SIP must release the transportation planaing operatkg under a maintenance plzn contain'an attainment year inventory - process of all rsponsibility for area-wide also be subject to the enissioru bzdg I

' . expressed on the same basis as the, mctor vehicle ernissio~s. On the other concept A budget for motor vehic!e other milestone inventories. hand, the need to pmvide emissions - emissions must be establishmect h t: e

The 1990 CAAA allow a s i~gle budget citeria for future c o n f o ~ t y maintezance plan and shown to t e for a nonattainmect area f i x a given determinatioxy should not defeat the ccnsis:ent wi:! the maintenazce criteria pollutant or percussor. However, eedent congressional intent to demccssation in l*ht of expected States have the option of specifying the ten~orarily excuse &ese areas f;bm emissions from other sources. bu+eb in more detail or disaggregation. ha\<za to davelop and implezent . ( 4 ) Emisskn budgets during the For example. an ozcne attairment conZo1 strategies beyond vexcie fleet r?.~,'anning,ceriod immediately d~mccsbation u s i q a a d nodel will . turnover, Federal meas-sres. a;.d ' fol!owi.~g fgi!ure to meet a miles:c.te 7r

ccntain estimates of vehicle emissions required measures specified for them in failure to cttcin. Failure to neet a fcr r a n y small grid squares. The SIP the Act 1: also see=$ c!e=r LEat mi1es:oze or to attain by the expectel c a y provide that only t!e s u ~ of vehicle Congess &d not intend these c e a s to date may be due to inaccura:e e~ iss icns from all grids wfthin the be scbject !o any se;ious cocst-aixt oil inventoq3r.g of 19W emission;. nacattaZment area will appiy for V;\fI' and industrial ac!ivi:y ~ o w t h ' inaccara:e air quality modelh,la. exce s

-puqoses of c c r i o m i ~ j ./ete-~.ination. pr;.or to the date on which they ase grbwB in nonvehicle emiss' :ens. c.- cr i: n=y &\ide the area ir.:o subareas vuherabla to bekg reclassified for excess growth in vehicle e-@ssiozs a ~ d establish a budget for each. This failure to attain. To satisfy these hteats. despite t;:e o,nerz:ion of the cor.fo;xi y eppioach would provide a3di:Ional t&;e States should choose fion tvvo process. h sech cases, the adeqcacy ~f assqsrance that trsns~o;'.atior. plans and options as described klo:~. ar.d clearly the e z k i o n s budgets for motor vehi :!2s p r o p n s result eni;sion patterns i?dica!e their selecEon in &e SIP. is called ixto question a d new bz2g !S

&at w4J produce attaininent Such an Fis t option: The State mey e!ect to must be developed as pait of the approach will of course conskain tho ' extend the interim confornrity citeria of ' roplad?g that is required by &e IS! 3 transportation planning process. and it section 176(c](3](A) for the entke period CAAA. Unlil a new SIP is approved r a n a y later be found usefd far the S:ate . prior to EPA approval of either a section Federal plan is promulgated the . to rubnit a SIP revision showing that 1i5[A) maintenance Sl? or-following privious budgats \vill continue to be some other distribution of emissions, or bump a p a SIP that meets RFP and . appliedbfor demcnstrating corJonit: . even 2 different emission total. is also attainnent requirements. These iqterin (c) Idect~icafion mdschedulin~ o consistent with attainment A S P may criteria would otherwise expire when transportation con~olmeasures. also pmvide for a!ternative emission . ETA approves the confonhity S P - ' . ' Section 176(c)[2)(B] requires that - bu.dgets each of which is shown to revision described in section 1IIH.l.a. : : . - transportation improvement p r6p i1 produce milestone compliance and/or The most important of these'criteria is - ..provide for timely implementation o: , . - attainment for example, different. . . that the transportation plan and; : :- : - ..., T W s consistent with s a e d d e s . . . . . .

. combinations . of . VOC apd NO, - - .- program muat contribute to ehissions ' .': . included in the app1icable:SIP. In . ' - .

. . . . . . . . . . . . . . . -. . . - . -... . . _ . - . . . . . :- Fedenl R+ter :I VoL -5): No..74 :I ;~huf3day~ .April l IL 1992 f - w p o ~ & Ruler' 13559

. . . . . .-. . . .- , - . . . ...

:. : .-: ::

.. ..

...

. - . . . . .

... . .

. . . .

. . . .

. .

. . . . .

.

' ..

. . . . ..

.organisation is certifigd, section 174 - .': .: warranted, E P A ' ~ ~ ~ J ~ isslie a pow . . .

; - - require; that organization to indude....: . ".interpretition of the ElT5i that EPA will . .-BY f ptice- EPA is mounting &e

.

. . - --:I -. elected officials or local governments in ' use when applying the EPS for the.SIP a ~ a l l a b h t y of an information dement .

--- . - the affected area and representatives of : approval process. .-' . " - .:.. of the accelerated retirement of vehicles . the State air quality planning agency. , . . The 1990 ch l .A encourage i;movation : pmgrams. as mui red under section '

-.:-. the State transportation planning through the use of market-based 108(fJ. The document outlines, the t3eor-j ' agency. the metropolitan planning , approades, not only in the title acid behind accelerated vehicle retirezez!. - . oganhation designated to conduct the .rain program. but also in title I SIP considen desirable elements of p r c ~ a n

continuing cooperative and provisions. The use of economic design. and discusses the experiesce of comprehensive transportation planning . incentives are explicitly allowed for in a pilot Program sponsored by UEoCx

--- . process for the area under section 134 of . the general SIP requirements (section Corporation in'southern Californie. - title 23. U.S.C.. the organization 110(a](2)]. the general provisions for States may indude scrappage

- -1- responsible for the air quality. ' . nonattainment S P s (section 172(c)(6]). . programs in SIP submissions. Scras2age ' maintenance planning process. and any . and in thesystem of regulations for , emissions reductions will get full c e & t

- > . other organization with responsibilities . controlling of emissions from consumer toward SIP attainment demonstra~ons. . . . . . . -i:-. - for developing, submitting, or - - .:or c o m m e ~ . a l products (section . -To the extent permissible by law. cedits

. . . . .- generated though'scrappage progrms -; - . implementin# wy 'aspects of the SIP. ' . 183(e)(4)). . ' . ' . . . . . . - . . .. -.. :. . The EPA encourages the States to . . . . Beyond these general allowances for. ; . may be used to meet air quality . . . . . . '2 . certify either the previous organization . economic incentives, use or considering ' ; limitations. .

, ., : . . . . - . ... .: . : or a new organization well before the . . . the use of irn option to implement - - - . - . . . . The EPA intirprets 182(~) (4) (~] as

-7- ' '. November 1992 deadline. Early ' . . . economic incentives is mandated in . . : . allowing a broad rarige of market-based . - -.. - . -t . . . certification will be helpful to the . . .-: . certain cases..These.eses include State :strategies;ThiState pmgram is to be . . . . . .. .... --: -- various agencies that muat meet ,failure to submit a compliance ,.' .- .-. "nondis.

- . f : . . criminatory" and consistent with

.. . . . . : . . . . . . . deadlines by this date:.:'.: .' .-.> : demonstration or to meet applicable - interState commerce laws (section :Additional guidance on the new . . ' . . ._; milestones for RFP for serious, sevem, .: -1 182(g)(4)(A)).- ; :. . . . r ..: ; .:-. :. . -.: ;. .

' . , I - -. .

dection 174 proGsions is contained in . - and extreme ozone nknattainment areas, ::. The EPA'e -&ono&c incentive d e s ;:-?f! :'-. the update of.the1978 ~rahsportation- : .. .; ( s e c t i o ~ l ~ ( g ) ( 3 ] and l&!(h)].add Stat&-.::are td,indydi model plan provisiomi'for . , !--.-." -. :. . : . - ;L-* .-- Air ~ u a l i t j , , ~ l & ~ Cqidelines by P A - = . :failure to submita-milestone . . . . . . . . 5%; A,:.;. - - . ;. .-t;t:pi-ttid itationary.v&es, &re= -7:- . . : . .

. I-ZC-C-.. .+-:.; . - and DOT,'duein . . . . . ~ o ~ r n b e r . 1 9 9 l ; ~ . ;::-i:lr.:'; demonshti& to-med a required::- . . :;:: mobile sources;.as.weU i s . : *-.. ... : . . . . . . . . . . . . . . . . - . . . . _ < . . ..-. _ . . . -- -. - . . - . B e . . -. . . . . . . g. ;-:7.. - . . . . : . ' ' - # . . .

. . $2:' . _ - . : ' , . . ... . . . .

- . - . . . . . >

.*.?&?.- . . - . . . . . . . - . .

.+.$-vj . .