Approval and Promulgation of Maintenance Plan Revisions; Ohio

ENVIRONMENTAL PROTECTION AGENCY

40 CFR Part 52

[OH 125-1a; FRL-6375-4]

Approval and Promulgation of Maintenance Plan Revisions; Ohio

AGENCY: United States Environmental Protection Agency (USEPA).

ACTION: Direct final rule.

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SUMMARY: USEPA is approving a June 1, 1999 request from Ohio for a

State Implementation Plan (SIP) revision of the Dayton/Springfield,

Ohio ozone maintenance plan. The maintenance plan revision establishes

a new transportation conformity mobile source emissions budget for the

year 2005. We are also approving the revision of the maintenance plan

which reestimates point source growth and allots a larger volatile

organic compounds (VOCs) budget to the area's 2005 mobile source sector

for transportation conformity purposes. This allocation will still

maintain the total emissions for the area at or below the attainment

level required by the transportation conformity regulations. We are

also correcting a typographical error in the original maintenance plan

approval.

DATES: This rule is effective on August 26, 1999, unless USEPA receives

adverse written comments by August 11, 1999. If adverse comment is

received, USEPA will publish a timely withdrawal of the rule in the

Federal Register and inform the public that the rule will not take

effect.

ADDRESSES: Send written comments to: J. Elmer Bortzer, Chief,

Regulation Development Section, Air Programs Branch, (AR-18J), U.S.

Environmental Protection Agency, Region 5, 77 West Jackson Boulevard,

Chicago, Illinois, 60604. You may inspect copies of the documents

relevant to this action during normal business hours at the following

location: Regulation Development Section, Air Programs Branch, (AR-

18J), U.S. Environmental Protection Agency, Region 5, 77 West Jackson

Boulevard, Chicago, Illinois, 60604. Please contact Patricia Morris at

(312) 353-8656 before visiting the Region 5 office.

FOR FURTHER INFORMATION CONTACT: Patricia Morris, Environmental

Scientist, Regulation Development Section, Air Programs Branch (AR-

18J), U.S. Environmental Protection Agency, Region 5, 77 West Jackson

Boulevard, Chicago, Illinois 60604, (312) 353-8656.

SUPPLEMENTARY INFORMATION: This Supplementary Information section is

organized as follows:

What action is USEPA taking today?

Who is affected by this action?

How did the State support its request?

What is transportation conformity?

What is an emissions budget?

What is a safety margin?

How does this action change the Dayton/Springfield, Ohio maintenance

plan?

Why is the request approvable?

[[Page 37403]]

What Action Is USEPA Taking Today?

In this action, we are approving a revision to the maintenance plan

for the Dayton/Springfield, Ohio, ozone maintenance area. The Dayton/

Springfield, Ohio ozone maintenance area includes the Counties of

Montgomery, Clark, Greene and Miami Counties. The revision will change

the mobile source emission budget that is used for transportation

conformity purposes. The revision will also change the projected growth

in industrial sources (point sources) from the projections in the

currently approved maintenance plan. The revision will keep the

projected total emissions for the area at or below the attainment level

required by law. This action will allow State or local agencies to

maintain air quality while providing for transportation growth and

growth in point and area sources.

We are also correcting a typographical error in the original

maintenance plan approval. The original Federal Register approval on

May 5, 1995, (60 FR 22289) contained a typographical error in Table 1

showing the VOC emissions from the source categories in the Dayton/

Springfield area. The 2005 VOC emissions for point and area sources are

incorrect in Table 1. The correct number for point source VOC emissions

in 2005 should be 98.0 and the correct number for area sources in 2005

should be 63.8 tons of VOC. These corrected numbers match the original

submittal from the Ohio Environmental Protection Agency (OEPA) and are

documented in the docket materials. This correction does not change the

substance of the maintenance plan approval.

Who Is Affected by This Action?

Primarily, the transportation sector represented by the Ohio

Department of Transportation and the Miami Valley Regional Planning

Commission (the metropolitan planning organization) will benefit from

this revision. Although, the long range transportation plan for the

Dayton/Springfield area projects higher emissions than currently

allowed in the maintenance plan, the conformity rule provides that the

maintenance plan can be revised. The Dayton/Springfield maintenance

plan does not currently have a ``safety margin'' which can be allocated

to the transportation sector. In a Federal Register notice (62 FR

44903) published on August 25, 1997, all of the VOC safety margin was

allocated to the mobile source budget. Therefore, there is no safety

margin to allocate.

Instead, the OEPA and the Regional Air Pollution Control Agency

have reestimated the projected growth from industrial sources. Current

projections of industrial growth are less than the projections

estimated in the approved maintenance plan. The maintenance plan and

the projections in the maintenance plan were approved on May 5, 1995,

in the Federal Register (60 FR 22289). These projections allowed for

substantial growth in industrial sources. The growth in industrial

sources was offset by reductions from the mobile source sector through

implementation of the inspection and maintenance program and cleaner

automobiles. If source growth or population growth were to increase as

initially projected, the OEPA would need to offset the emissions by

implementing a reduction strategy to keep the maintenance plan

emissions at the air quality attainment level.

How Did the State Support This Request?

The State provided updated emissions projections and budget numbers

to support their request. On June 1, 1999, Ohio formally submitted to

USEPA a SIP revision request for the Dayton/Springfield ozone

maintenance area. A public hearing on this proposal was held on June 3,

1999. No one from the public commented on the proposed revisions.

In the submittal, Ohio requested to allocate 5.5 tons per day to

establish a new 2005 mobile source emissions budgets for VOC for the

Dayton, Ohio, ozone maintenance area. The State recalculated the

stationary source growth between the years 1990 and 2005 (the last year

of the maintenance plan). Stationary sources in 1990 were estimated to

contribute 37.4 tons per day of VOC. In 2005 stationary sources were

allowed to grow up to 98.0 (this is the corrected number) tons per day

of VOC. This is a significant increase in industrial emissions over a

15 year time frame. Growth of stationary source emissions was not as

large as earlier anticipated. Based on the revised projections,

stationary source growth will be reduced to 92.5 tons per day which is

still a significant potential increase. The State requested that 5.5

tons per day of VOC be allocated to the mobile source sector for the

conformity budget. The mobile source budgets are used for

transportation conformity purposes.

What Is Transportation Conformity?

Transportation conformity means that the level of emissions from

the transportation sector (cars, trucks and buses) must be consistent

with the requirements in the SIP to attain and maintain the air quality

standards. The Clean Air Act, in section 176(c), requires conformity of

transportation plans, programs and projects to an implementation plan's

purpose of attaining and maintaining the National Ambient Air Quality

Standards. On November 24, 1993, USEPA published a final rule

establishing criteria and procedures for determining if transportation

plans, programs and projects funded or approved under Title 23 U.S.C.

or the Federal Transit Act conform to the SIP.

The transportation conformity rules require an ozone maintenance

area, such as Dayton/Springfield, to compare the actual projected

emissions from cars, trucks and buses on the highway network, to the

mobile source emissions budget established by the maintenance plan. The

Dayton/Springfield area has an approved maintenance plan. Our approval

of the maintenance plan on May 5, 1995, established the mobile source

emissions budgets for transportation conformity purposes. The

transportation conformity budget was changed on August 25, 1997, when

USEPA approved a revision to the maintenance plan which allocated the

2.4 tons per day VOC safety margin to the mobile source budget. At that

time, the mobile source budget changed from 31.7 tons per day of VOC to

34.1 tons per day of VOC.

What Is an Emissions Budget?

An emissions budget is the projected level of controlled emissions

from the transportation sector (mobile sources) that is estimated in

the SIP. The SIP controls emissions through regulations, for example,

on fuels and exhaust levels for cars. The emissions budget concept is

further explained in the preamble to the November 24, 1993,

transportation conformity rule (58 FR 62188). The preamble also

describes how to establish the mobile source emissions budget in the

SIP and how to revise the emissions budget. The transportation

conformity rule allows the mobile source emissions budget to be changed

as long as the total level of emissions from all sources remains below

the attainment level.

What Is a Safety Margin?

A ``safety margin'' is the difference between the attainment level

of emissions (from all sources) and the projected level of emissions

(from all sources) in the maintenance plan. The attainment level of

emissions is the level of emissions during one of the years in which

the area met the air quality health standard. For example: the Dayton/

Springfield area attained the

[[Page 37404]]

one hour ozone standard during the 1989-1991 time period. The State

uses 1990 as the attainment level of emissions for the area. The

emissions from point, area and mobile sources in 1990 equaled 131.1

tons per day of VOC. The Ohio Environmental Protection Agency projected

emissions out to the year 2005 and projected a total of 131.1 tons per

day of VOC. The safety margin is calculated to be the difference

between these amounts or, in this case, 0 tons per day of VOC. Table 1

gives detailed information on the estimated emissions from each source

category and the safety margin calculation.

The 2005 emission projections reflect the point, area and mobile

source changes and reductions and are illustrated in Table 1. Please

note that these numbers reflect the corrected typographical error to

the point and area source 2005 numbers.

Table 1.--NOX and VOC Emissions Budget; and Safety Margin

Determinations, Stark County

[Tons/day]

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

Source category 1990 2005

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

VOC Emissions:

Point................................................. 37.4 98.0

Mobile (on-road)...................................... 103.6 34.1

Biogenic.............................................. 105.2 105.2

Area.................................................. 54.9 63.8

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Totals.............................................. 301.1 301.1

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Safety Margin = 1990 total emissions -2005 total emissions = 0 tons/day

VOC

The emissions are projected to maintain the area's air quality

consistent with the air quality health standard. The safety margin

credit can be allocated to the transportation sector. The total

emission level, must stay below the attainment level or safety level

and to be acceptable. The safety margin is the extra safety [points]

that can be allocated as long as the total level is maintained.

How Does This Action Change the Dayton/Springfield Maintenance

Plan?

It raises the budget for mobile sources and lowers the amount of

expected growth in industrial source (point source) emissions. The

maintenance plan is designed to provide for future growth while still

maintaining the ozone air quality standard. Growth in industries,

population, and traffic is offset with reductions from cleaner cars and

other emission reduction programs. Through the maintenance plan the

State and local agencies can manage and maintain air quality while

providing for growth.

In the submittal, Ohio requested to change the projected growth of

stationary source emissions and to use the difference to add 5.5 tons

per day of VOC to the mobile source emissions budget. The SIP revision

requests the allocation of 5.5 tons/day VOC, into the area's mobile

source emissions budget. The 2005 mobile source emissions budget

showing the maintenance plan changes to stationary and area sources are

in Table 2. The mobile source emissions budget in Table 2 will be used

for transportation conformity purposes.

Table 2 below illustrates that the requested changes can be made to

the 2005 mobile source budget and that total emissions will still

remain at the 1990 attainment level of total emissions for the Dayton/

Springfield maintenance area. Since the area would still be at or below

the 1990 attainment level for the total emissions, this allocation is

allowed by the conformity rule.

Table 2.--Maintenance Plan Changes to the 2005 Emissions Budget, Dayton/

Springfield

[Tons/day]

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

Source category 1990 2005

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

VOC Emissions:

Point................................................. 37.4 92.5

Mobile (on-road)...................................... 103.6 39.6

Biogenic.............................................. 105.2 105.2

Area.................................................. 54.9 63.8

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Totals.............................................. 301.1 301.1

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

Remaining Safety Margin = 1990 total emissions - 2005 total emissions =

0 tons/day VOC

Why is the Request Approvable?

After review of the SIP revision request, USEPA finds that the

requested change in the maintenance plan for the Dayton/Springfield

area is approvable. The revised growth estimates for stationary sources

are reasonable because the past data between 1990 and 1998 indicate a

slower growth rate than in the original maintenance plan. The 5.5 tons

per day allocated to mobile sources still allows sufficient growth

margin for the stationary sources and maintains the total emissions for

the area at the attainment year inventory level as required by the

transportation conformity regulations.

USEPA Action

USEPA is approving the requested change to the growth estimates in

the maintenance plan and the change to the mobile source budget for the

Dayton/Springfield ozone maintenance area.

USEPA is publishing this action without prior proposal because

USEPA views this as a noncontroversial revision and anticipates no

adverse comments. However, in a separate document in this Federal

Register publication, USEPA is proposing to approve the SIP revision

should adverse written comments be filed. This action will be effective

without further notice unless USEPA receives relevant adverse written

comment by August 11, 1999. Should the Agency receive such comments, it

will publish a final rule informing the public that this action will

not take effect. Any parties interested in commenting on this action

should do so at this time. If no such comments are received, the public

is advised that this action will be effective on August 26, 1999.

Administrative Requirements

Administrative Requirements are organized as follows:

A. Executive Order 12866

B. Executive Order 12875

C. Executive Order 13045

D. Executive Order 13084

E. Regulatory Flexibility Act

F. Unfunded Mandates

G. Submission to Congress and the Comptroller

H. Paperwork Reduction Act

I. Executive Order 12898: Environmental Justice

J. National Technology Transfer and Advancement Act

K. Petitions for Judicial Review

A. Executive Order 12866

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

regulatory action from Executive Order (E.O.) 12866, entitled

``Regulatory Planning and Review.''

B. Executive Order 12875: Enhancing Intergovernmental Partnerships

Under E.O. 12875, USEPA may not issue a regulation that is not

required by statute and that creates a mandate upon a state, local, or

tribal government, unless the Federal government provides the funds

necessary to pay the direct compliance costs incurred by those

governments. If the mandate is unfunded, USEPA must provide to the

Office of Management and Budget a description of the extent of USEPA's

prior consultation with representatives of affected state, local, and

tribal governments, the nature of their concerns, copies of written

communications from the governments, and a statement supporting the

need to issue the regulation. In addition, E.O. 12875 requires USEPA to

develop an effective process permitting elected officials and other

representatives of

[[Page 37405]]

state, local, and tribal governments ``to provide meaningful and timely

input in the development of regulatory proposals containing significant

unfunded mandates.'' Today's rule does not create a mandate on state,

local or tribal governments. The rule does not impose any enforceable

duties on these entities. Accordingly, the requirements of section 1(a)

of E.O. 12875 do not apply to this rule.

C. Executive Order 13045

Protection of Children from Environmental Health Risks and Safety

Risks (62 FR 19885, April 23, 1997), applies to any rule that: (1) is

determined to be ``economically significant'' as defined under E.O.

12866, and (2) concerns an environmental health or safety risk that

USEPA has reason to believe may have a disproportionate effect on

children. If the regulatory action meets both criteria, the Agency must

evaluate the environmental health or safety effects of the planned rule

on children, and explain why the planned regulation is preferable to

other potentially effective and reasonably feasible alternatives

considered by the Agency. USEPA interprets E.O. 13045 as applying only

to those regulatory actions that are based on health or safety risks,

such that the analysis required under section 5-501 of the Order has

the potential to influence the regulation.

This action is not subject to E.O. 13045 because it approves a

state rule implementing a previously promulgated health or safety-based

Federal standard, and preserves the existing level of pollution control

for the affected areas.

D. Executive Order 13084: Consultation and Coordination With Indian

Tribal Governments

Under E.O. 13084, USEPA may not issue a regulation that is not

required by statute, that significantly affects or uniquely affects the

communities of Indian tribal governments, and that imposes substantial

direct compliance costs on those communities, unless the Federal

government provides the funds necessary to pay the direct compliance

costs incurred by the tribal governments. If the mandate is unfunded,

USEPA must provide to the Office of Management and Budget, in a

separately identified section of the preamble to the rule, a

description of the extent of USEPA's prior consultation with

representatives of affected tribal governments, a summary of the nature

of their concerns, and a statement supporting the need to issue the

regulation. In addition, E.O. 13084 requires USEPA to develop an

effective process permitting elected and other representatives of

Indian tribal governments ``to provide meaningful and timely input in

the development of regulatory policies on matters that significantly or

uniquely affect their communities.'' Today's rule does not

significantly or uniquely affect the communities of Indian tribal

governments. Accordingly, the requirements of section 3(b) of E.O.

13084 do not apply to this rule.

E. Regulatory Flexibility Act

The Regulatory Flexibility Act (RFA) generally requires an agency

to conduct a regulatory flexibility analysis of any rule subject to

notice and comment rulemaking requirements unless the agency certifies

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 small governmental

jurisdictions. This final rule will not have a significant impact on a

substantial number of small entities because SIP approvals under

section 110 and subchapter I, part D of the Clean Air Act do not create

any new requirements but simply approve requirements that the State is

already imposing. Therefore, because the Federal SIP approval does not

create any new requirements, I certify that this action will not have a

significant economic impact on a substantial number of small entities.

Moreover, due to the nature of the Federal-State relationship under the

Clean Air Act, preparation of flexibility analysis would constitute

Federal inquiry into the economic reasonableness of state action. The

Clean Air Act forbids USEPA to base its actions concerning SIPs on such

grounds. Union Electric Co., v. U.S. EPA, 427 U.S. 246, 255-66 (1976);

42 U.S.C. 7410(a)(2).

F. Unfunded Mandates

Under Section 202 of the Unfunded Mandates Reform Act of 1995

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

must prepare a budgetary impact statement to accompany any proposed or

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

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

or to private sector, of $100 million or more. Under Section 205, USEPA

must select the most cost-effective and least burdensome alternative

that achieves the objectives of the rule and is consistent with

statutory requirements. Section 203 requires USEPA to establish a plan

for informing and advising any small governments that may be

significantly or uniquely impacted by the rule.

USEPA has determined that the approval action promulgated does not

include a Federal mandate that may result in estimated annual costs of

$100 million or more to either State, local, or tribal governments in

the 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.

G. 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. USEPA 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. A major rule cannot

take effect until 60 days after it is published in the Federal

Register. This rule is not a ``major'' rule as defined by 5 U.S.C.

804(2).

H. Paperwork Reduction Act

This action does not contain any information collection

requirements which requires OMB approval under the Paperwork Reduction

Act (44 U.S.C. 3501 et seq.).

I. Executive Order 12898: Environmental Justice

Under E.O. 12898 each Federal agency must make achieving

environmental justice part of its mission by identifying and

addressing, as appropriate, disproportionately high and adverse human

health or environmental effects of its programs, policies, and

activities on minorities and low-income populations. Today's action

(revising the emissions budgets in Ohio's maintenance plan for Stark

County) does not adversely affect minorities and low-income populations

because the new, more stringent 8-hour ozone standard is in effect and

provides increased protection to the public, especially children and

other at-risk populations.

[[Page 37406]]

J. National Technology Transfer and Advancement Act

Section 12 of the National Technology Transfer and Advancement Act

(NTTAA) of 1995 requires Federal agencies to evaluate existing

technical standards when developing new regulations. To comply with

NTTAA, USEPA must consider and use ``voluntary consensus standards''

(VCS) if available and applicable when developing programs and policies

unless doing so would be inconsistent with applicable law or otherwise

impractical.

USEPA believes that VCS are inapplicable to this action. Today's

action does not require the public to perform activities conducive to

the use of VCS.

K. 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 September 10, 1999. 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

review may be filed, and shall 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, Hydrocarbons,

Ozone, Nitrogen oxides, Transportation conformity.

Dated: June 29, 1999.

Francis X. Lyons,

Regional Administrator, Region 5.

Part 52, chapter I, title 40 of the 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 KK--Ohio

2. Section 52.1885 is amended by adding paragraph (a)(12) to read

as follows:

Sec. 52.1885 Control Strategy: Ozone

(a) * * *

(12) Approval--On June 1, 1999, Ohio submitted a revision to the

ozone maintenance plan for the Dayton/Springfield area. The revision

consists of revising the point source growth estimates and allocating

5.5 tons per day of VOCs to the transportation conformity mobile source

emissions budget. The mobile source VOC budget for transportation

conformity purposes for the Dayton/Springfield area is now: 39.6 tons

per day of volatile organic compound emissions for the year 2005. The

approval also corrects a typographical error in the maintenance plan

point and area source numbers for 2005.

[FR Doc. 99-17491 Filed 7-9-99; 8:45 am]

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