Approval and Promulgation of Implementation Plans; Commonwealth of Kentucky

ENVIRONMENTAL PROTECTION AGENCY

40 CFR Part 52

[KY-104-9818a; FRL-6152-9]

Approval and Promulgation of Implementation Plans; Commonwealth

of Kentucky

AGENCY: Environmental Protection Agency (EPA).

ACTION: Direct final rule.

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SUMMARY: EPA is approving revisions to the Edmonson County and

Owensboro portions of the Kentucky State Implementation Plan (SIP)

submitted on April 16, 1998, through the Kentucky Natural Resources and

Environmental Protection Cabinet (NREPC). The purpose of this action is

to incorporate revised motor vehicle emissions budgets for Owensboro

and Edmonson, Kentucky. These budgets are used for demonstration of

conformity of transportation plans, programs, and projects with the

Kentucky SIP for the Edmonson County and Owensboro ozone maintenance

areas. This action is

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in accordance with the Transportation Conformity Rule promulgated on

November 24, 1993, and subsequent amendments.

DATES: This direct final rule is effective on November 2, 1998, without

further notice, unless EPA receives adverse comments by October 5,

1998. If adverse comment is received, EPA will publish a timely

withdrawal of the direct final rule in the Federal Register and inform

the public that the rule will not take effect.

ADDRESSES: Written comments should be addressed to: Kelly Sheckler at

the Region 4, Environmental Protection Agency, Air Planning Branch, 61

Forsyth Street, SW, Atlanta, Georgia 30303.

Copies of the documents relative to this action are available for

public inspection during normal business hours at the following

locations. The persons wanting to examine these documents should make

an appointment with the appropriate office at least 24 hours before the

visiting day. Reference file number KY-104-9818. The Region 4 office

may have additional background documents not available at the other

locations.

Air and Radiation Docket and Information Center (Air Docket 6102), U.S.

Environmental Protection Agency, 401 M Street, SW, Washington, D.C.

20460.

Environmental Protection Agency, Region 4 Air Planning Branch, 61

Forsyth Street, SW, Atlanta, Georgia 30303.

Kentucky Department for Environmental Protection, 803 Schenkel Lane,

Frankfort, Kentucky 400601.

FOR FURTHER INFORMATION CONTACT: Kelly Sheckler at (404) 562-9042.

Reference file KY-104-9818.

SUPPLEMENTARY INFORMATION: The Commonwealth of Kentucky through the

KNREPC submitted an attainment and maintenance plan for the Edmonson

County and Owensboro ozone nonattainment areas on November 13, 1992.

The Owensboro area consists of Daviess County and a portion of Hancock

County. The Commonwealth of Kentucky's request for redesignation of the

Edmonson County and Owensboro ozone nonattainment areas was approved by

EPA because the areas attained the ozone NAAQS, met all relevant

requirements under section 110 and part D of the CAA, had a fully

approved SIP under section 110(k) of the CAA, demonstrated permanent

and enforceable air quality improvement, and had a maintenance plan

satisfying the requirements of section 175A of the CAA. For further

detail on this rulemaking refer to 59 FR 55058, dated November 3, 1994.

This SIP contained comprehensive inventories of volatile organic

compound (VOC), nitrogen oxide (NOX), and carbon dioxide

(CO) emissions for the Edmonson County and Owensboro ozone areas. The

inventories include biogenic, area, stationary, and mobile sources

using 1990 as the base year for projections to demonstrate maintenance.

The 1990 inventory is considered representative of attainment

conditions because the NAAQS was not violated during 1990.

EPA approved this revision of the Kentucky SIP and redesignated the

area from nonattainment to attainment for ozone effective January 3,

1995. At the time of this submittal, EPA had not finalized the

Transportation Conformity rule which provides the criteria and

procedures by which the transportation planning authorities must show

that transportation plans and projects conform to the emission

estimates in the applicable state maintenance plan. In the maintenance

SIP, the Commonwealth did not provide an explicit motor vehicles

emissions budget for the purposes of showing conformity. However, the

Transportation Conformity regulations at 40 CFR 51.456 were promulgated

on November 24, 1993, and defined a mobile source emissions budget for

determining conformity of transportation as the mobile source portion

of the total allowable emissions defined in the submitted or approved

control strategy implementation plan revision or maintenance plan. The

Commonwealth established an emissions baseline inventory as part of its

redesignation and maintenance SIP. As required for maintenance

demonstrations, the emission projections from the baseline inventory

were developed for a ten year period. In areas subject to conformity,

that had not established an emissions budget per 40 CFR 51.456, a SIP

approved emissions projection inventory would be used as the emissions

budget for conformity purposes. Therefore, the emission projections

inventory provided in the Commonwealth's maintenance plan became the

emissions budget for conformity.

Furthermore, 40 CFR Part 93.118, allows states to revise their

emissions budgets at any time through the standard SIP revision

process, provided the submittal demonstrates that the revised emissions

budget will not interfere with attainment and maintenance of the

standard or any milestones in the required time frame.

The Clean Air Act (CAA), as amended in 1990, defines conformity to

an implementation plan as conformity to the plan's purpose of reducing

the severity and number of violations of the National Ambient Air

Quality Standards (NAAQS) and achieving expeditious attainment of such

standards. Specifically, the CAA requires transportation improvement

programs (TIP) and Long Range Transportation Plans that are federally

funded or approved actions will not cause or contribute to any new

violation, increase the frequency or severity of any existing

violation, or delay timely attainment of any standard or any required

interim emission reductions or other milestones in any area. Therefore,

the emissions expected from implementation of such transportation plans

and programs must be consistent with estimates of emissions from a

maintenance plan.

The total emissions in the revised emissions budget for the

Edmonson County and Owensboro ozone maintenance areas are below the

1990 levels through the period of projection necessary for the

attainment and maintenance plan, i.e., through 2005. Due to reductions

expected from new and/or future federal emission standards, non-road

source emissions are projected to decrease below the levels projected

in the original maintenance plan. The safety margin created from this

category is allotted to the on-road mobile source emissions budget. As

provided in the table below, the reallotted emissions budget maintains

the 1990 levels and is consistent with the redesignation/maintenance

demonstration SIP.

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NOX Emissions Inventory Summary

[Tons per day]

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Category 1990 1993 1996 1999 2002 2004

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Edmonson County

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Mobile.................................................. .86 .83 .81 .79 .77 .78

Area.................................................... .04 .04 .04 .04 .04 .04

Point................................................... 0 0 0 0 0 0

Nonroad................................................. .37 .38 .39 .40 .40 .41

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Total............................................... 1.27 1.25 1.24 1.23 1.22 1.23

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Daviess County

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Mobile.................................................. 5.33 5.25 5.17 5.11 5.04 5.10

Area.................................................... .22 .22 .22 .22 .22 .22

Point................................................... 39.20 38.92 38.65 38.37 38.10 37.92

Nonroad................................................. 2.91 2.89 2.87 2.85 2.83 2.82

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Total............................................... 47.66 47.28 46.91 46.55 46.19 46.06

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Hancock County

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Mobile.................................................. .14 .14 .13 .13 .12 .12

Area.................................................... 0 0 0 0 0 0

Point................................................... 42.86 42.89 42.93 42.97 43.01 43.04

Nonroad................................................. .16 .16 .16 .16 .16 .16

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Total............................................... 43.16 43.19 43.22 43.26 43.29 43.32

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VOC Emissions Inventory Summary

[Tons per day]

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Category 1990 1993 1996 1999 2002 2004

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Edmonson County

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Mobile.................................................. 1.24 .79 .75 .73 .72 .72

Area.................................................... .74 .76 .77 .79 .80 .82

Point................................................... 0 0 0 0 0 0

Nonroad................................................. .45 .46 .47 .48 .49 .50

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Total............................................... 2.43 2.01 1.99 2.00 2.01 2.04

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Daviess County

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Mobile.................................................. 10.18 6.65 6.48 6.42 6.44 6.53

Area.................................................... 5.29 5.25 5.22 5.18 5.15 5.13

Point................................................... 13.23 13.13 13.04 12.95 12.86 12.80

Nonroad................................................. 3.84 3.81 3.79 3.76 3.74 3.72

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Total............................................... 32.54 28.84 28.53 28.31 28.19 28.18

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Hancock County

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Mobile.................................................. .20 .13 .12 .12 .11 .11

Area.................................................... .08 .08 .08 .08 .08 .08

Point................................................... 3.23 3.30 3.30 3.30 3.31 3.31

Nonroad................................................. .09 .09 .09 .09 .09 .09

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Total............................................... 3.60 3.60 3.59 3.59 3.59 3.59

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Final action

EPA is approving Kentucky's revised emission budget for the

Edmonson County and Owensboro ozone maintenance area. The Agency has

reviewed this request for revision of the Federally approved State

implementation plans (SIP) for conformance with the provisions of the

Amendments enacted on November 15, 1990, and the Transportation

Conformity Rule promulgated on November 24, 1993 and amended on August

15, 1997. The Agency has determined that this request conforms to those

requirements. Therefore, this action revises the motor vehicle

emissions budget for the Kentucky Counties of Edmonson, Daviess and a

portion of Hancock.

EPA is publishing this rule without prior proposal because the

Agency views this as a noncontroversial amendment and anticipates no

adverse

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comments. However, in the proposed rules section of this Federal

Register publication, EPA is publishing a separate document that will

serve as the proposal to approve the SIP revision should relevant

adverse comments be filed. This rule will be effective November 2, 1998

without further notice unless the Agency receives relevant adverse

comments by October 5, 1998.

If the EPA receives such comments, then EPA will publish a timely

withdrawal of the direct final rule informing the public that the rule

will not take effect. All public comments received will then be

addressed in a subsequent final rule based on the proposed rule. The

EPA will not institute a second comment period on this rule. Only

parties interested in commenting on the rule should do so at this time.

If no such comments are received, the public is advised that this rule

will be effective on November 2, 1998 and no further action will be

taken on the proposed rule.

The ozone SIP is designed to satisfy the requirements of part D of

the CAA and to provide for attainment and maintenance of the ozone

NAAQS. Approval of this motor vehicle emissions budget should not be

interpreted as authorizing the State to delete, alter, or rescind any

of the VOC or NOX emission limitations and restrictions

contained in the approved ozone SIP. Changes to ozone SIP VOC

regulations rendering them less stringent than those contained in the

EPA approved plan cannot be made unless a revised maintenance plan is

submitted to and approved by EPA. Unauthorized relaxations, deletions,

and changes could result in both a finding of non-implementation

[section 173(b) of the CAA] and in a SIP deficiency call made pursuant

to section 110(a)(2)(H) of the CAA.

Nothing in this action will be construed as permitting or allowing

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

any SIP. Each request for revision to the SIP will be considered

separately in light of specific technical, economic, and environmental

factors and in relation to relevant statutory and regulatory

requirements.

Nothing in this action should be construed as making any

determination or expressing any position regarding Kentucky's audit

privilege and penalty immunity law KRS 224.01-040 or its impact upon

any approved provision in the SIP, including the revision at issue

here. The action taken herein does not express or imply any viewpoint

on the question of whether there are legal deficiencies in this or any

other Clean Air Act program resulting from the effect of Kentucky's

audit privilege and immunity law. A state audit privilege and immunity

law can affect only state enforcement and cannot have any impact on

federal enforcement authorities. EPA may at any time invoke its

authority under the Clean Air Act, including, for example, sections

113, 167, 205, 211 or 213, to enforce the requirements or prohibitions

of the state plan, independently of any state enforcement effort. In

addition, citizen enforcement under section 304 of the Clean Air Act is

likewise unaffected by a state audit privilege or immunity law.

I. Administrative Requirements

A. Executive Order 12866

The Office of Management and Budget (OMB) has exempted this

regulatory action from review under Executive Order 12866, entitled

Regulatory Planning and Review.

B. Executive Order 13045

The final rule is not subject to Executive Order 13045, entitled

Protection of Children from Environmental Health Risks and Safety

Risks, because it is not an ``economically significant'' action under

Executive Order 12866.

C. Regulatory Flexibility Act

Under the Flexibility Act, 5 U.S.C. 600 et seq., EPA must prepare a

regulatory flexibility analysis assessing the impact of any proposed or

final rule on small entities. 5 U.S.C sections 603 and 604.

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

significant economic 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.

SIP approvals under section 110 and subchapter I, part D of the CAA

does not create any new requirements, but simply approve requirements

that the state is already imposing. Therefore, because the federal SIP-

approval does not impose any new requirements, I certify that it does

not have a significant impact on small entities. Moreover, due to the

nature of the federal-state relationship under the CAA, preparation of

a regulatory flexibility analysis would constitute federal inquiry into

the economic reasonableness of state action. The CAA forbids EPA to

base its actions concerning SIPs on such grounds. Union Electric Co. v.

U.S. E.P.A., 427 U.S. 246, 256-66 (S.Ct. 1976); 42 U.S.C. section 7410

(a)(2) and, 7410 (k)(3).

D. Unfunded Mandates

Under Section 202 of the Unfunded Mandates Reform Act of 1995

(``Unfunded Mandates Act''), signed into law on March 22, 1995, EPA

must prepare a budgetary impact statement to accompany any proposed or

final rule that includes a Federal mandate that may result in estimated

costs to State, local, or tribal governments in the aggregate, or to

the private sector, of $100 million or more. Under Section 205, EPA

must select the most cost effective and least burdensome alternative

that achieves objectives of the rule and is consistent with statutory

requirements. Section 203 requires EPA to establish a plan for

informing and advising any small governments that may be significantly

or uniquely impacted by the rule.

EPA has determined that the approval promulgated does not include a

Federal mandate that may result in estimated costs of $100 million or

more to either State, local, or tribal governments in aggregate, or to

the private sector. This Federal action approves pre-existing

requirements under State or local law, and imposes no new requirements.

Accordingly, no additional costs to State, local, or tribal

governments, or to the private sector, result from this action.

E. Submission to Congress and the Comptroller General

The Congressional Review Act, 5 U.S.C. 801 et seq., as added by the

Small Business Regulatory Enforcement Fairness Act of 1996, generally

provides that before a rule may take effect, the agency promulgating

the rule must submit a rule report, which includes a copy of the rule,

to each House of the Congress and to the Comptroller General of the

United States. EPA will submit a report containing this rule and other

required information to the U.S. Senate, the U.S. House of

Representatives, and the Comptroller General of the United States prior

to publication of the rule in the Federal Register. This rule is not a

``major rule'' as defined by 5 U.S.C. 804(2).

F. Petitions for Judicial Review

Under Section 307((b)(1) of the Clean Air Act, petitions for

judicial review of this action must be filed in the United States Court

of Appeals for the appropriate circuit by November 2, 1998. Filing a

petition for reconsideration by the Administrator of this final rule

does not affect the finality of this rule for the purposes of judicial

review nor does it extend the time within which a petition for judicial

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review may be filed, and will not postpone the effectiveness of such

rule or action. This action may not be challenged later in proceedings

to enforce its requirements. (See section 307(b)(2).)

List of Subjects in 40 CFR Part 52

Environmental protection, Air pollution control, Carbon monoxide,

Hydrocarbons, Incorporation by reference, Intergovernmental relations,

Nitrogen dioxide, Ozone.

Dated: July 30, 1998.

A. Stanley Meiburg,

Acting Regional Administrator, Region 4.

Part 52 of chapter I, title 40, Code of Federal Regulations, is

amended as follows:

PART 52--[AMENDED]

1. The authority citation for part 52 continues to read as follows:

Authority: 42.U.S.C. 7401 et seq.

Subpart S--Kentucky

2. Section 52.920, is amended by adding paragraph (c)(91) to read

as follows:

Sec. 52.920 Identification of plan.

* * * * *

(c) * * *

(91) The maintenance plan for Edmonson County and Owensboro ozone

area submitted by the Commonwealth of Kentucky through the Natural

Resources and Environmental Protection Cabinet on April 16, 1998, as

part of the Kentucky SIP.

(i) Incorporation by reference.

Mobile Emissions Budgets for Owensboro Area and Edmonson County

Marginal Ozone Maintenance Areas: Introduction page and Tables 1

through 8 effective April 14, 1998.

(ii) Other material. None.

[FR Doc. 98-23502 Filed 9-2-98; 8:45 am]

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