[Federal Register Volume 65, Number 114 (Tuesday, June 13, 2000)]
[Rules and Regulations]
[Pages 37049-37052]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 00-14768]


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ENVIRONMENTAL PROTECTION AGENCY

40 CFR Part 70

[MT-001a; FRL-6714-4]


Clean Air Act Full Approval of Operating Permit Program; State of 
Montana

AGENCY: Environmental Protection Agency (EPA).

ACTION: Direct final rule.

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SUMMARY: The EPA is promulgating full approval of the operating permit 
program submitted by the State of Montana. Montana's operating permit 
program was submitted for the purpose of meeting the federal Clean Air 
Act (Act) directive that states develop, and submit to EPA, programs 
for issuing operating permits to all major stationary sources and to 
certain other sources within the states' jurisdiction.

DATES: This direct final rule is effective on August 14, 2000 without 
further notice, unless EPA receives adverse comment by July 13, 2000. 
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 may be mailed to Richard R. Long, Director, 
Air and Radiation Program, Mail Code 8P-AR, Environmental Protection 
Agency (EPA), Region VIII, 999 18th Street, Suite 500, Denver, Colorado 
80202-2466. Copies of the documents relevant to this action are 
available for public inspection during normal business hours at the 
U.S. Environmental Protection Agency, Air and Radiation Program, Region 
VIII, 999 18th Street, Suite 500, Denver, Colorado, 80202-2466 and are 
also available during normal business hours at the Montana Department 
of Environmental Quality, 1520 East 6th Avenue, P.O. Box 200901, 
Helena, Montana 59620-0901.

FOR FURTHER INFORMATION CONTACT: Patricia Reisbeck, 8P-AR, U.S. 
Environmental Protection Agency, Region 8, 999 18th Street, Denver, 
Colorado 80202-2466, (303) 312-6435.

SUPPLEMENTARY INFORMATION:

I. Background

    As required under Title V of the Clean Air Act (``the Act'') as 
amended (42 U.S.C. 7401 et seq.), EPA has promulgated rules that define 
the minimum elements of an approvable state operating permit program 
and the corresponding standards and procedures by which EPA will 
approve, oversee, and withdraw approval of state operating permit 
programs (see 57 FR 32250 (July 21, 1992)). These rules are codified at 
40 Code of Federal Regulations (CFR) part 70 (part 70). Title V directs 
states to develop, and submit to EPA, programs for issuing operating 
permits to all major stationary sources and to certain other sources.
    The Act directs states to develop and submit operating permit 
programs to EPA by November 15, 1993, and requires that EPA act to 
approve or disapprove each program within 1 year after receiving the 
submittal. The EPA's program review occurs pursuant to section 502 of 
the Act (42 U.S.C. Sec. 7661a) and the part 70 regulations, which 
together outline criteria for approval or disapproval. Where a program 
substantially, but not fully, meets the requirements of part 70, EPA 
may grant the program interim approval. If EPA has not fully approved a 
program by two years after the November 15, 1993 date, or before the 
expiration of an interim program approval, it must establish and 
implement a federal program. The State of Montana was granted final 
interim approval of its program on May 11, 1995 (see 60 FR 25143) and 
the program became effective on June 12, 1995. Interim approval of the 
Montana program expires on December 1, 2001.

II. Analysis of State Submission

    The Governor of Montana submitted an administratively complete 
Title V operating permit program for the State of Montana on March 29, 
1994. This program, including the operating permit regulations (Title 
16, Chapter 8, Sub-Chapter 20, Sections 16.8.2001 through 16.8.2025, 
inclusive, of the

[[Page 37050]]

Administrative Rules of Montana (ARM)), substantially met the 
requirements of part 70. EPA deemed the program administratively 
complete in a letter to the Governor dated May 12, 1994. The program 
submittal included a legal opinion from the Attorney General of Montana 
stating that the laws of the State provide adequate legal authority to 
carry out all aspects of the program, and a description of how the 
State would implement the program. The submittal additionally contained 
evidence of proper adoption of the program regulations, application and 
permit forms, and a permit fee demonstration.
    EPA's comments noting deficiencies in the Montana program were sent 
to the State in a letter dated October 3, 1994. The deficiencies were 
segregated into those that would require corrective action prior to 
interim program approval, and those that would require corrective 
action prior to full program approval. The State committed to address 
the program deficiencies that would require corrective action prior to 
interim program approval in a letter dated October 20, 1994. The State 
submitted these corrective actions with letters dated March 30, and 
April 5, 1995. EPA reviewed these corrective actions and determined 
them to be adequate for interim program approval.
    On January 15, 1998, Montana amended its operating permit program 
to make the corrections identified as necessary in the May 11, 1995 
Federal Register notice of final interim approval. These program 
amendments, recodified at Title 17, Chapter 8, Sub-Chapter 12, Sections 
1201, 1210, and 1213, ARM, were approved and adopted by the Montana 
Board of Environmental Review on January 15, 1998. The revised program 
regulations adequately addressed the problems identified in the May 11, 
1995 Federal Register notice as requiring corrective action prior to 
full program approval. The State also submitted evidence of proper 
adoption of the revisions to its program regulations and a revised 
Attorney General's opinion dated July 31, 1998. The revised program and 
a request for full approval were submitted to EPA in a letter from the 
Governor of Montana dated February 4, 1999. EPA notified Montana, in a 
letter to the Department of Environmental Quality (DEQ) dated April 1, 
1999, of two additional changes required for final approval. The DEQ 
revised the administrative rules to implement the two requested changes 
at Title 17, Chapter 8, Sub-Chapter 12, ARM. These amendments to Sub-
Chapter 12 were approved and adopted by the Board on March 17, 2000. On 
April 12, 2000, the Governor of Montana submitted the revised program, 
with proof of proper adoption, and requested full approval of its 
operating permit program.
    Areas in the Montana program that were identified by EPA as 
deficient and the State's corrective actions for full program approval 
consist of the following:
    (1) The definition of administrative permit amendment allowed the 
department to exercise discretion in determining whether or not a 
change in monitoring or reporting requirements would be as stringent as 
current monitoring or reporting requirements. This did not satisfy the 
criteria for an administrative permit amendment listed in 40 CFR 
70.7(d)(1)(iii), which require that only requirements for more frequent 
monitoring or reporting may be processed through an administrative 
permit amendment. Correction: The State deleted the problematic section 
of the administrative permit amendment definition, Section 
17.8.1201(1)(d), ARM.
    (2) The definition of administrative permit amendment allowed the 
State to determine if other types of permit changes not listed in the 
definition of administrative permit amendment could be incorporated 
into a permit through the administrative permit amendment process. This 
did not meet requirements of 40 CFR 70.7(d)(1)(vi). Correction: The 
State modified Section 17.8.1201(1), ARM, part of the administrative 
permit amendment definition, to state: ``(e) incorporates any other 
type of change which the department and EPA have determined to be 
similar to those revisions set forth in (a) through (d) above.''
    (3) The definition of ``insignificant emissions unit'' included an 
emission threshold of 15 tons per year of any pollutant other than a 
hazardous air pollutant. EPA did not consider this to be a reasonable 
level at which to exempt emissions units from title V operating permit 
requirements. Correction: The State lowered the trigger level of 15 
tons per year to 5 tons per year in the definition of ``insignificant 
emissions units'' to assure that the term will not encompass activities 
that are subject to applicable requirements (see Section 
17.8.1201(22)(a)(i), ARM).
    (4) The State was required to revise or delete Section 
17.8.1201(24)(a)(ii), ARM, so that rules and requirements imposed under 
the State Implementation Plan (SIP) would not be included in the 
definition of ``non-federally enforceable.'' Correction: The State 
originally revised Section 17.8.1201(24)(a)(ii) to exclude only 
regulations that are not federally enforceable (not in the SIP). The 
State adopted an additional correction to this section on March 17, 
2000, which is explained below.
    (5) The State was required to include a severability clause in Sub-
Chapter 12 consistent with 40 CFR 70.6(a)(5) of the federal permitting 
regulation. Correction: The State revised Section 70.8.1210(2)(l), ARM, 
to include a severability clause, which states ``If any provision of a 
permit is found to be invalid, all valid parts that are severable from 
the invalid part remain in effect. If a provision of a permit is 
invalid in 1 or more of its applications, the provision remains in 
effect in all valid applications that are severable from the invalid 
applications.''
    (6) The State was required to provide an Attorney General's opinion 
verifying Montana's authority to use any monitoring data to determine 
compliance and for direct enforcement or to revise the State's SIP-
approved regulations to provide authority to use any monitoring data to 
determine compliance and for direct enforcement. Correction: The 
Attorney General's opinion and Section 17.8.1213(2) were amended to 
clarify Montana's authority. The revised opinion was submitted with the 
Governor's letter, dated February 4, 1999.
    (7) The Attorney General's opinion was not clear regarding the 
State's authority to terminate permits. The State was required to 
provide an Attorney General's interpretation that Montana's statutory 
authority extends to ``terminating'' permits. Correction: This was 
clarified in the revised Attorney General's opinion.
    (8) The State was required to demonstrate to EPA that it had the 
ability to make case-by-case MACT determinations pursuant to section 
112(j) of the Act. Correction: This was adequately addressed in the 
revised Attorney General's opinion.
    (9) The State was required to certify its ability to require annual 
certifications from part 70 sources regarding proper implementation of 
their risk management plans (RMP) and to provide a compliance schedule 
for sources that fail to submit the required RMP. Correction: The State 
will include a statement listing 40 CFR 68.215(a) as an applicable 
requirement in all Title V operating permits.
    (10) The State was required to clarify that it has the authority to 
terminate or revoke and reissue permits in all circumstances in which 
cause to do so exists or amend Section 17.8.1210(2)(a) to eliminate any 
provisions that may be construed to limit ``cause'' in an unacceptable 
manner. Correction:

[[Page 37051]]

Section 17.8.1210(2)(a) has been revised to include: ``Permits may be 
terminated or revoked and reissued for cause. Appropriate `cause' for 
permit termination is noncompliance with permit terms or conditions 
that is continuing or substantial in nature and scope.''
    Two additional corrections, requested in the April 1, 1999 letter 
from EPA to the DEQ, are as follows:
    (1) The revised definition of ``non-federally enforceable 
requirements'' in Section 17.8.1201(24)(a), ARM, included ``(ii) any 
term, condition or other requirement contained in any air quality 
preconstruction permit issued by the department under this chapter that 
is not contained in the Montana State implementation plan approved or 
promulgated by the administrator through rulemaking under title I of 
the FCAA.'' This was required to be changed or deleted as it implied 
that the terms and conditions of a preconstruction permit are not 
federally enforceable, unless they are contained in the Montana SIP or 
EPA regulation. In fact, every permit issued under a SIP-approved 
permit program is federally enforceable, and every term and condition 
of the permit is federally enforceable. Correction: The State has 
revised Section 17.8.1201(24) to delete this language in the definition 
of the phrase ``non-federally enforceable requirements.''
    (2) Section 17.8.1225(4), ARM, incorrectly applied the permit 
shield to all administrative permit amendments. The permit shield 
provided by 40 CFR Part 70 applies only to permit actions that have 
gone through public review. Therefore, Section 17.8.1225(4) was 
required to be revised to say that the permit shield does not extend to 
administrative permit amendments except as allowed by 40 CFR 
70.7(d)(4). Correction: The State revised Section 17.8.1225(4) to state 
that the permit shield does not apply to administrative permit 
amendments.

III. Final Action

    In this document, EPA is granting full approval of the Montana part 
70 operating permits program for all areas within the State except the 
following: any sources of air pollution located in ``Indian Country'' 
as defined in 18 U.S.C. 1151, including the following Indian 
reservations in the State: Northern Cheyenne, Rocky Boys, Blackfeet, 
Crow, Flathead, Fort Belknap, and Fort Peck Indian Reservations, or any 
other sources of air pollution over which an Indian Tribe has 
jurisdiction. See section 301(d)(2)(B) of the Act; see also 63 FR 7254 
(February 12, 1998). The term ``Indian Tribe'' is defined under the Act 
as ``any Indian tribe, band, nation, or other organized group or 
community, including any Alaska Native village, which is federally 
recognized as eligible for the special programs and services provided 
by the United States to Indians because of their status as Indians.'' 
See section 302(r) of the Act; see also 58 FR 54364 (Oct. 21, 1993).
    The EPA is publishing this rule without prior proposal because the 
State is currently implementing its part 70 program and the Agency 
views this as a noncontroversial action and anticipates no adverse 
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 grant full approval of the operating permit 
program submitted by the State of Montana should adverse comments be 
filed. This rule will be effective August 14, 2000 without further 
notice unless the Agency receives adverse comments by July 13, 2000.
    If the EPA receives such comments, then EPA will publish a timely 
withdrawal in the Federal Register 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 action. Any 
parties interested in commenting on this rule must do so at this time.

IV. Administrative Requirements

A. Executive Order 12866

    The Office of Management and Budget has exempted this regulatory 
action from Executive Order 12866, entitled ``Regulatory Planning and 
Review.''

B. Executive Order 13132

    Federalism (64 FR 43255, August 10, 1999) revokes and replaces 
Executive Order 12612 (Federalism) and Executive Order 12875 (Enhancing 
the Intergovernmental Partnership). Executive Order 13132 requires EPA 
to develop an accountable process to ensure ``meaningful and timely 
input by state and local officials in the development of regulatory 
policies that have federalism implications.'' ``Policies that have 
federalism implications'' is defined in the Executive Order to include 
regulations that have ``substantial direct effects on the states, on 
the relationship between the national government and the states, or on 
the distribution of power and responsibilities among the various levels 
of government.'' Under Executive Order 13132, EPA may not issue a 
regulation that has federalism implications, that imposes substantial 
direct compliance costs, and that is not required by statute, unless 
the Federal Government provides the funds necessary to pay the direct 
compliance costs incurred by state and local governments, or EPA 
consults with state and local officials early in the process of 
developing the proposed regulation. EPA also may not issue a regulation 
that has federalism implications and that preempts state law unless the 
Agency consults with state and local officials early in the process of 
developing the proposed regulation.
    This final rule will not have substantial direct effects on the 
states, on the relationship between the national government and the 
states, or on the distribution of power and responsibilities among the 
various levels of government, as specified in Executive Order 13132. 
Thus, the requirements of section 6 of the Executive Order 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 EPA 
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.
    This rule is not subject to E.O. 13045 because it is not an 
economically significant regulatory action as defined by E.O. 12866, 
and it does not establish a further health or risk-based standard 
because it approves state rules which implement a previously 
promulgated health or safety-based standard.

D. Executive Order 13084

    Under Executive Order 13084, EPA may not issue a regulation that is 
not required by statute, that significantly 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

[[Page 37052]]

governments, or EPA consults with those governments. If EPA complies by 
consulting, E.O. 13084 requires EPA to 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 EPA'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, Executive Order 13084 
requires EPA to develop an effective process permitting elected 
officials 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. This action does not 
involve or impose any requirements that affect Indian Tribes. 
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 part 70 approvals under section 502 of 
the Act do not create any new requirements but simply approve 
requirements that the State is already imposing. Therefore, because 
this 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.

F. 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 the 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 action 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 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 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).

H. 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 August 14, 2000. 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 70

    Administrative practice and procedure, Air pollution control, 
Environmental protection, Intergovernmental relations, Operating 
permits, Reporting and recordkeeping requirements.

    Dated: June 2, 2000.
Rebecca W. Hanmer,
Acting Regional Administrator, Region VIII.

    40 CFR part 70, is amended as follows:

PART 70--[AMENDED]

    1. The authority citation for part 70 continues to read as follows:

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


    2. In appendix A to part 70 the entry for Montana is amended by 
adding paragraph (b) to read as follows:

Appendix A to Part 70--Approval Status of State and Local Operating 
Permits Programs

* * * * *
Montana
* * * * *
    (b) The Montana Department of Environmental Quality submitted an 
operating permits program on March 29, 1994; effective on June 12, 
1995; revised January 15, 1998, and March 17, 2000; full approval 
effective on August 14, 2000.
* * * * *
[FR Doc. 00-14768 Filed 6-12-00; 8:45 am]
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