Approval and Promulgation of Implementation Plans; Ohio

ENVIRONMENTAL PROTECTION AGENCY

40 CFR Part 52

[OH80-1-6979; FRL-5256-2]

Approval and Promulgation of Implementation Plans; Ohio

AGENCY: United States Environmental Protection Agency (USEPA).

ACTION: Proposed rule.

-----------------------------------------------------------------------

SUMMARY: The USEPA is proposing to approve Ohio's 1990 base-year ozone

precursor emissions inventories for the Canton, Cleveland, Cincinnati

and Youngstown ozone nonattainment areas as revisions to the ozone

portion of the Ohio State Implementation Plan (SIP). The emissions

inventories were submitted to satisfy a Federal requirement that States

containing ozone nonattainment areas submit inventories of actual ozone

precursor emissions for the year 1990. The Ohio ozone nonattainment

areas covered by this rulemaking are Canton (Stark County); Cincinnati

(Butler, Clermont, Hamilton and Warren Counties); Cleveland (Ashtabula,

Cuyahoga, Geauga, Lake, Lorain, Medina, Portage and Summit Counties);

and Youngstown (Mahoning and Trumbull Counties). Initial notification

of such approval would be by letter to the State of Ohio.

DATES: Comments on this action must be received by August 9, 1995.

ADDRESSES: Written comments should be mailed to: William L. MacDowell,

Chief, Regulation Development Section, Air Enforcement Branch (AE-17J),

USEPA, Region 5, 77 West Jackson Boulevard, Chicago, Illinois 60604.

Copies of the State submittal and USEPA's analysis of it are

available for inspection at: Regulation Development Section, Air

Enforcement Branch (AE-17J), USEPA, Region 5, 77 West Jackson

Boulevard, Chicago, Illinois 60604.

FOR FURTHER INFORMATION CONTACT: Richard Schleyer, Environmental

Engineer, Regulation Development Section, Air Enforcement Branch (AE-

17J), USEPA, Region 5, 77 West Jackson Boulevard, Chicago, Illinois

60604, (312) 353-5089.

SUPPLEMENTARY INFORMATION:

I. Background

Section 182(a)(1) of the Clean Air Act Amendments of 1990 (Act)

requires States with ozone nonattainment areas to submit a

comprehensive, accurate and current inventory of actual ozone precursor

emissions (which includes volatile organic compounds (VOC), nitrogen

oxides (NOX), and carbon monoxide (CO)) for each ozone

nonattainment area by November 15, 1992. This inventory must include

anthropogenic base-year (1990) emissions from stationary point, area,

non-road mobile, and on-road mobile sources, as well as biogenic

(naturally occurring) sources in all ozone nonattainment areas. The

emissions inventory must be based on conditions that exist during the

peak ozone season (generally the period when peak hourly ozone

concentrations occur in excess of the primary ozone National Ambient

Air Quality Standard--NAAQS). Ohio's annual ozone season is from April

01 to October 31 of each year.

II. Criteria for Evaluating Ozone Emissions Inventories

Guidance for preparing and reviewing the emission inventories is

provided in the following USEPA guidance documents or memoranda:

``State Implementation Plans; General Preamble for the Implementation

of Title I of the Act,'' (Preamble) as published in the April 16, 1992

Federal Register (57 FR 13498); ``Emission Inventory Requirements for

Ozone State Implementation Plans,'' (EPA-450/4-91-010) dated March

1991; a memorandum from John Calcagni, Director, Air Quality Management

Division, OAQPS, entitled ``Public Hearing Requirements for the 1990

Base-Year Emissions Inventories for Ozone and Carbon Monoxide

Nonattainment Areas,'' dated September 29, 1992; ``Procedures for the

Preparation of Emissions Inventories for Carbon Monoxide and Precursors

of Ozone, Volumes I and II,'' (EPA-450/4-91-016 and EPA-450/4-91-014)

(Procedures; Volumes I and II) dated May 1991; ``Procedures for

Emissions Inventories Preparation, Volume IV: Mobile Sources,'' (EPA-

450/4-81-026d) (Procedures; Volume IV) dated 1992; and ``Supplement C

to Compilation of Air Pollutant Emission Factors, Volume I: Stationary

Point and Area Sources,'' (AP-42) dated September 1990.

As a primary tool for the review of the quality of emission

inventories, the USEPA has also developed three levels (I, II, and III)

of emission inventories checklists. The Level I and II checklists are

used to determine that all required components of the base-year

emission inventory and associated documentation are present. These

reviews also evaluate the level of quality of the associated

documentation and the data provided by the State and assess whether the

emission estimates were developed according to the USEPA guidance. The

Level III review evaluates crucial aspects and the overall

acceptability of the emission inventory submittal. Failure to meet one

of the ten critical aspects would lead to disapproval of the emissions

inventory submittal.

Detailed Level I and II review procedures can be found in the USEPA

guidance document entitled ``Quality Review Guidelines for 1990 Base

Year Emissions Inventories,'' (Quality Review) (EPA-454/R-92-007) dated

August 1992. Level III criteria were attached to a memorandum from John

S. Seitz, Director, Office of Air Quality Planning and Standards,

entitled ``Emission Inventory Issue,'' dated June 24, 1993. The Level

I, II, and III checklists used in reviewing this emissions inventory

submittal are attached to two USEPA technical support documents dated

June 23, 1995.

III. State Submittal

On March 15, 1994, the Ohio Environmental Protection Agency (OEPA)

submitted a revision to the ozone portion of Ohio's SIP which consisted

of the 1990 base-year ozone emissions inventory for the following ozone

nonattainment areas in Ohio: Canton, Cincinnati, Cleveland, Columbus,

Dayton, Toledo and Youngstown. The USEPA has completed its review of

the emissions inventories submitted for the Canton (which includes

Stark County), Cincinnati (which includes Butler, Clermont, Hamilton

and Warren Counties), Cleveland (Ashtabula, Cuyahoga, Geauga, Lake,

Lorain, Medina, Portage and Summit Counties) and Youngstown (which

includes Mahoning and Trumbull Counties) ozone nonattainment areas. The

1990 base-year emissions inventories submitted for all other areas are

addressed in separate rulemakings.

Inventory Preparation Plan/Quality Assurance Plan

All States were required to submit an Inventory Preparation Plan

(IPP) to USEPA for review and approval by October 1, 1991. The IPP

documents the

[[Page 35536]]

procedures utilized in the development of an emissions inventory and

contains the quality assurance and quality control plan (QA/QC). On

March 19, 1992, the State of Ohio submitted a final ozone emissions

IPP. On April 15, 1992, USEPA informed the State that the IPP was not

approvable at the time. Subsequently, USEPA has worked with the State

to correct deficiencies in the IPP. With the March 1994 SIP revision

request, the State submitted documentation of how the emissions

inventory was prepared, as well as a quality assurance report for the

point, area, and mobile source portions of the emissions inventory. The

USEPA finds that this documentation and quality assurance report are

acceptable to meet the requirements of an IPP.

Point Source Emissions Inventory

For each nonattainment area, the State submitted a point source

emissions inventory of all facilities that emit at least 10 tons per

year (tpy) of VOC, or 100 tpy NOX or CO. The State also included

sources that emit 100 tpy of VOC, CO, or NOX located in a 25-mile

boundary surrounding each nonattainment area. The point source

emissions inventory contains general facility information, number of

sources, production schedules and related emissions for each source,

emissions limitation, control efficiency and rule effectiveness (RE),

as applicable, and total emissions on an annual and daily ozone season

basis.

The following methods were employed by the State to identify

sources to be included in the 1990 base-year emissions inventory: the

1989 records for plants in the Emissions Inventory System (EIS) were

checked and plants meeting the VOC, CO or NOX criteria were

revised with 1990 emissions data; the air permit records were reviewed

for plants that are candidates for inclusion in the point source

inventory; and current industrial directories and the Toxic Release

Information System (TRIS) database were checked for additional point

source emissions. For facilities in the point source inventory, the

State acquired the emissions data by means of the following: mail

surveys; plant inspections; telephone calls; and air permit files.

The USEPA reviewed the point source emissions data by cross

referencing the point source inventory to the following sources:

USEPA's guidance document entitled ``Major CO, NO2, and VOC

Sources in the 25-Mile Boundary Around Ozone Nonattainment Areas,

Volume I: Classified Ozone Nonattainment Areas,'' (EPA-450/4-92-005a)

February 1992; a 1990 TRIS Retrieval; and a 1990 Aerometric Information

Retrieval Systems (AIRS) Facility Subsystem--Emission to Compliance

Comparison Report.

Where a source was governed by a regulation or a control device,

the emissions limit was stated. An RE factor was then applied in the

determination of emissions. In accordance with USEPA guidance, a

standard RE factor of 80 percent was utilized, unless otherwise

justified.

Area Source Emissions Inventory

Area source emissions were calculated using State-specific data as

well as USEPA guidance documents and technical memoranda developed for

various categories. The State utilized emission factors from

Procedures; Volumes I and IV, and AP-42 and provided necessary

documentation. The following area source categories were included in

the emissions inventory: gasoline loading and distribution, dry

cleaning, degreasing, architectural surface coatings, traffic markings,

automobile refinishing, graphic arts, cutback asphalt, pesticide

application, commercial/consumer solvents, bakeries, waste management

practices (landfills), leaking underground storage tanks, incineration

of solid waste, stationary fossil fuel combustion, and fires

(structural, open burn, etc.). Vehicle refueling emissions were

included as part of the mobile source emissions inventory.

The area source inventory was reviewed utilizing USEPA's guidance

documents, and the Level I and II checklists, to ensure that all source

categories and their related emissions (and emission factors) were

included in the area source emissions inventory. Seasonal adjustments,

rule effectiveness, and rule penetration factors were applied as

indicated in the State submittal.

On-Road Mobile Source Emissions Inventory

Development of Emission Factors

In the development of the mobile source emissions inventory, the

State utilized USEPA's mobile source emissions model, Mobile 5a, for

the determination of emissions factors for eight vehicle types and

twelve roadway types. Hard-copy documentation of the input and output

files are provided in the State's submittal. Where available, the

State-specific inputs were utilized in the development of the input

files for Mobile 5a.

Development of Vehicle Miles Travelled (VMT)

Canton, Cleveland and Youngstown Areas: The 1990 VMT for each

roadway type was developed by the Ohio Department of Transportation

(ODOT). ODOT maintains data on each section of highway in the State of

Ohio. VMT were developed by the State Road Inventory System and

reported through the Highway Performance Monitoring System (HPMS) to

the Federal Highway Administration (FHWA).

Each roadway section daily VMT (dVMT) is computed as the annual

average daily traffic (AADT) for that section times the length of the

section. The county dVMT is the sum of the dVMT for each highway

functional classifications in the county. The total dVMTs are then

summed as a statewide total. The statewide totals are then compared by

functional class to the 1990 HPMS submittal. For those classifications

where traffic counts are available for all or nearly all their

sections, the totals were essentially the same. For those with more

off-systems roads, the resulting totals were larger than the HPMS's

submittal value (as expected). Correction factors were computed from

the two sets of totals and applied to the individual cells.

ODOT used permanent and portable vehicle classification equipment

to develop the vehicle mix by functional classification of highway.

Traficomp III vehicle classification equipment are used to support the

HPMS data collection effort. A software program called OHIO CONVERT

formats vehicle classification data into the FHWA Vehicle

Classification categories.

Cincinnati-Hamilton Interstate Nonattainment Area: For the

Cincinnati-Hamilton Interstate area, the Ohio-Kentucky-Indiana Regional

Council of Governments (OKI) was responsible for the development of the

mobile source emissions inventory. OKI developed this inventory for the

Ohio and Kentucky portions of the interstate nonattainment area. OKI

utilized the OKI Travel Demand Model to estimate the traffic volume on

each roadway segment and an OKI utility program to which calculates the

loaded speed, VMT and emissions for each roadway segment.

The OKI travel demand model is a computerized travel demand

forecasting model for the entire interstate nonattainment area. The

model uses a four phase sequential travel demand forecasting process of

trip generation, distribution modal choice and assignment. The OKI

Travel Demand Model is composed of TRANPLAN

[[Page 35537]]

programs and Fortran programs written by OKI.

The model takes zonal demographic data and the transportation

network as inputs and produces estimated traffic volumes on each

roadway segment in the network. Traffic zones are the analysis units in

the model. The OKI region is divided into 909 zones. The output of the

model is a loaded highway network which contains information for each

link such as initial speed, capacity, distance, functional class

district number area type and forecasted traffic.

The USEPA has reviewed the mobile source emissions inventory

utilizing the checklist contained in the Quality Review guidance

document. This was used to ensure that recommended procedures were

followed in the development of the mobile source portion of the

emissions inventory.

Off-Road Mobile Source Emissions Inventory

Canton, Cincinnati and Youngstown Areas: The State developed

emissions estimates for the following off-road categories according to

USEPA guidance: aircraft, railroad locomotives, recreational boating,

off road motorcycles, agricultural equipment, construction equipment,

industrial equipment, and lawn and garden equipment. Documentation was

provided as to the sources of emissions factors utilized and were

submitted in the area source emissions inventory portion of the

submittal.

Cleveland Area: The State utilized emissions estimates for non-road

emissions developed by the Office of Mobile Sources (OMS-USEPA) in

October 1992, in accordance with USEPA requirements for the Cleveland/

Akron off-road mobile source emissions inventory. These OMS emissions

estimates are provided for off-road diesel engines, as well as two-

stroke and four-stroke gasoline engines, including off-road

motorcycles, construction equipment, farm equipment, lawn and garden

equipment, industrial equipment, and recreational vessels. In addition,

the State included in the off-road mobile source inventory emissions

from aircraft, railroads, and commercial vessels, which are not

included in the OMS data. These estimates were developed using

emissions factors from AP-42 and activity factors gathered from various

sources.

The off-road mobile source inventory was reviewed utilizing the

Level I and II checklists and USEPA's guidance documents to ensure that

all source categories and their related emissions factors were included

in the off-road mobile source emissions inventory.

Biogenic Emissions Inventory

The State of Ohio developed the naturally occurring (or biogenic)

emissions for the Canton, Cincinnati, Cleveland and Youngstown areas

according to a USEPA's guidance document entitled ``User's Guide to the

Personal Computer Version of the Biogenic Emissions Inventory System

(PC-BEIS),'' (EPA-450/4-91-017) dated July 1991. Meteorological data

utilized in PC-BEIS was collected in accordance with USEPA guidance.

The ten warmest days from the period between 1988 to 1990 with the

highest hourly peak ozone concentrations in each ozone nonattainment

areas was collected and reviewed. As required by USEPA guidance, the

fourth highest daily maximum ozone concentration for each nonattainment

area was selected and utilized in the model. The State provided hard

copy documentation as to the meteorological inputs utilized and PC-BEIS

output files for the biogenic emissions inventory for the Canton,

Cincinnati, Cleveland and Youngstown nonattainment areas.

IV. Approval of the Emissions Inventories

In a letter addressed to Robert Hodanbosi, Chief, Division of Air

Pollution Control, OEPA, dated March 23, 1995, USEPA provided comments

on the 1990 base-year ozone emissions inventories submitted for the

Canton, Cincinnati, Cleveland and Youngstown areas. These comments

addressed corrections that would be needed before the inventories could

be finally approved.

In a letter addressed to William MacDowell, Chief, Regulation

Development Section, dated June 8, 1995, the State of Ohio provided a

response to comments on the area, on-road and off-road mobile, and

biogenic source emissions. The USEPA has reviewed these responses and

finds that the State has satisfied the Agency's comments and that the

emissions inventory for the area, on-road mobile, non-road mobile, and

biogenic sources is approvable.

However, the State has not responded to the point source emissions

inventory comments (these comments addressed possible facilities that

may be required to be included in the point source emissions

inventory). The State is currently making determinations regarding such

facilities, and once completed, will submit the revised point source

inventory to be included as part of this SIP revision. Please note that

the State has satisfied the procedural requirements for the development

of the point source emissions inventory. Therefore, in anticipation of

the corrections, USEPA is proposing to approve the State's point source

emissions inventory. No further action will occur on this SIP revision

until the State submits (and USEPA completes) its review of the

response to the point source emissions comments.

V. Summary of Ozone Emissions Inventory

The following summary indicates the emissions inventories for an

average ozone summer weekday for the Canton, Cincinnati, Cleveland and

Youngstown ozone nonattainment areas. Please note that the point source

emissions estimates stated may be revised (please refer to ``Approval

of the Emissions Inventories'' section above). The emissions are stated

in tons per ozone season weekday:

Canton Ozone Nonattainment Area

[Tons per day]

------------------------------------------------------------------------

Source type VOC CO NOX

------------------------------------------------------------------------

Point sources................................ 12.36 6.51 40.11

Area sources................................. 18.93 1.54 0.98

On-road mobile sources....................... 31.66 188.59 16.24

Off-road mobile sources...................... 23.72 63.00 15.89

Biogenic sources............................. 36.66 ....... .......

--------------------------

Totals................................. 123.33 259.64 73.22

------------------------------------------------------------------------

Cincinnati Ozone Nonattainment Area

[Tons per day]

------------------------------------------------------------------------

Source type VOC CO NOX

------------------------------------------------------------------------

Point sources.............................. 70.93 88.67 280.00

Area sources............................... 64.48 5.41 2.29

On-road mobile sources..................... 125.84 793.16 130.68

Off-road mobile sources.................... 37.37 274.57 34.45

Biogenic sources........................... 109.04 ......... .......

----------------------------

Totals............................... 407.66 1161.81 447.42

------------------------------------------------------------------------

[[Page 35538]]

Cleveland/Akron Ozone Nonattainment Area

[Tons per day]

------------------------------------------------------------------------

Source type VOC CO NOX

------------------------------------------------------------------------

Point sources.......................... 80.24 707.32 244.77

Area sources........................... 120.86 12.64 9.54

On-road mobile sources................. 248.37 1,402.01 176.58

Off-road mobile sources................ 80.19 808.32 70.92

Biogenic sources....................... 195.32 ......... .........

--------------------------------

Totals........................... 724.98 2,930.29 501.81

------------------------------------------------------------------------

Youngstown Ozone Nonattainment Area

[Tons per day]

------------------------------------------------------------------------

Source type VOC CO NOX

------------------------------------------------------------------------

Point sources................................ 16.33 18.74 23.25

Area sources................................. 27.80 13.02 7.00

On-road mobile sources....................... 48.97 293.54 29.87

Off-road mobile sources...................... 13.48 87.88 10.98

Biogenic sources............................. 50.26 ....... .......

--------------------------

Totals................................. 156.84 413.18 71.10

------------------------------------------------------------------------

VI. Proposed Rulemaking Action and Solicitation of Public Comment

Public comments are solicited on USEPA's proposed rulemaking

action. Public comments must be received by August 9, 1995. Notice of

final action on the requested approval of the emissions inventories

will be provided to the State of Ohio by letter, and a subsequent

notice of such action will be published in the Federal Register.

Subsequent to the submittal of acceptable point source corrections,

USEPA will issue a letter to the State of Ohio providing notice of

USEPA's final action on the requested approval of the inventories. The

effective date of these SIP revisions shall be the date that the letter

notice is issued. Interested parties wishing to comment on these SIP

revisions, or on USEPA's approval by means of the letter notice

procedure, must submit written comments by August 9, 1995. USEPA plans

to announce such final action in the Federal Register within 30 days of

its effective date.

VII. Proposed Action

The USEPA is proposing to approve, with ``letter notice'' of any

final action, Ohio's 1990 base-year ozone precursor emissions

inventories for the Canton (Stark County); Cincinnati (Butler,

Clermont, Hamilton and Warren Counties); Cleveland (Ashtabula,

Cuyahoga, Geauga, Lake, Lorain, Medina, Portage and Summit Counties);

and Youngstown (Mahoning and Trumbull Counties) ozone nonattainment

areas.

Please note that no further action will occur on this SIP revision

until the State submits (and USEPA completes its review) on the

response to the point source emissions inventory comments.

VIII. General Provisions

Nothing in this action should be construed as permitting, allowing

or establishing a precedent for any future request for revision to any

SIP. Each request for revision to any SIP shall be considered

separately in light of specific technical, economic, and environmental

factors and in relation to relevant statutory and regulatory

requirements.

This action has been classified as a Table 3 action by the Regional

Administrator under the procedures published in the Federal Register on

January 19, 1989 (54 FR 2214-2225), as revised by an October 4, 1993

memorandum from Michael H. Shapiro, Acting Assistant Administrator for

Air and Radiation. The Office of Management and Budget has exempted

this regulatory action from Executive Order 12866 review.

Under the Regulatory Flexibility Act, 5 U.S.C. 600 et seq., USEPA

must prepare a regulatory flexibility analysis assessing the impact of

any proposed or final rule on small entities (5 U.S.C. 603 and 604).

Alternatively, USEPA may certify that the rule will not have a

significant impact on a substantial number of small entities. Small

entities include small businesses, small not-for-profit enterprises,

and government entities with jurisdiction over populations of less than

50,000.

List of Subjects in 40 CFR Part 52

Air pollution control, Carbon monoxide, Intergovernmental

relations, Nitrogen dioxide, Ozone, Reporting and recordkeeping

requirements, Volatile organic compounds.

Authority: 42 U.S.C. 7401-7671(q).

Dated: June 28, 1995.

David A. Ullrich,

Acting Regional Administrator.

[FR Doc. 95-16832 Filed 7-7-95; 8:45 am]

BILLING CODE 6560-50-P