UNITEDSTATESENVIRONMENTALPROTECTIONAGENCYREGION711201RennerBoulevardLenexa,Kansas66219MEMORANDUMSUBJECT:FROM:TO:THRU:SUMMARYTechnicalSupportDocumentforCleanAirActSections110(a)(1)and(2)InfrastructureStateImplementationPlan(SIP)Submissions,StateofIowa,for1997and2006FineParticulateMatter(PMz.s)NationalAmbientAirQualityStandards(NAAQS),andtheadoptionofthe1997PMzsStandardHeatherHamiltonAWMD/II.,(p/-.\'-fi"\:NGIA-126andIA-161AmyAlgoe-EakinAWMD/APDB/AtPSMikeJayAWMD/APDBSection110(a)(l)oftheCAArequires,inpart,thatstatesmakeaSIPsubmissiontoEPAtoimplement,maintainandenforceeachoftheNAAQSpromulgatedbyEPAafterreasonablenoticeandpublichearings.EPAhashistoricallyreferredtotheseSIPsubmissionsmadeforthepurposeofsatisfyingtherequirementsofCAAsections110(a)(1)and110(a)(2)as"infrastructureSIP"submissions.Section11O(a)(2)includesalistofspecificelementsthatsuchinfrastructureSIPsubmissionsmustaddress.SIPsmeetingtherequirementsofsections11O(a)(l)and(2)aretobesubmittedbystateswithinthreeyearsafterpromulgationofaneworrevisedNAAQS.Asrelevanttothisproposedaction,thePMz.sNAAQShavebeenrevisedasfollows:•OnJuly18,1997,EPApromulgatednewPMz.sprimaryandsecondaryNAAQS(62FR38652),herebyreferredtoasthe1997PMz.sNAAQS.ThenewPMz.sNAAQSestablishedahealth-basedannualstandardof15.0microgramspercubicmeter(J.lg/m3)basedona3-yearaverageofannualmeanPMz.sconcentrationsanda24-hourstandardof65J.lg/m3basedona3-yearaverageofthe981hpercentileof24-hourconcentrations.•OnOctober17,2006,EPAmadefurtherrevisionstotheprimaryandsecondaryNAAQSforPMz.s(71FR61144),herebyreferredtoasthe2006PMz.sNAAQS.The24-houraveragePMz.sprimaryandsecondaryNAAQSwererevisedfrom65J.lg/m3to35J.lg/m3•PrintedonRecycled PaperEPARegion7isproposingtoapprovethefollowingsubmissionsfromthestateofIowa:1.InfrastructureSIPforthe1997PMz.sNAAQS:Iowa'sSIPsubmissionforthe1997PMz.sNAAQSwasreceivedonMarch31,2008,andbecamecompleteasamatteroflawonSeptember30,2008.Thissubmissionincludedthestate'srequesttoapprovethe1997PMz.sstandardintotheSIP.2.InfrastructureSIPforthe2006PMz.sNAAQS:Iowa'sSIPsubmissionforthe2006PMz.sSIPwasreceivedonJuly29,2013,andbecamecompleteasamatteroflawonJanuary29,2014.OnSeptember8,2011,EPAissuedaofFindingofFailuretoSubmit(76FR55577),which.includedIowa,forthe2006PMz.sNAAQSinfrastructurerequirements.ThisactiontoapproveIowa'sinfrastructureSIPaddressestheOctober2011finding.SectionllO(a)(l)and(2)requirements:EPAisactingupontheMarch31,2008andJuly29,2013infrastructureSIPsubmissionsfromIowathataddressestherequirementsofCAAsections110(a)(l)and110(a)(2)forthe1997and2006PMz.sNAAQS.TherequirementforstatestomakeaSIPsubmissionofthistypearisesoutofCAAsection110(a)(1).Pursuanttosection110(a)(1),statesmustmakeSIPsubmissions"within3years(orsuchshorterperiodastheAdministratormayprescribe)afterthepromulgationofanationalprimaryambientairqualitystandard(oranyrevisionthereof),"andtheseSIPsubmissionsaretoprovideforthe"implementation,maintenance,andenforcement"ofsuchNAAQS.ThestatutedirectlyimposesonstatesthedutytomaketheseSIPsubmissions,andtherequirementtomakethesubmissionsisnotconditioneduponEPAtakinganyactionotherthanpromulgatinganeworrevisedNAAQS.Section11O(a)(2)includesalistofspecificelementsthateachsuchplansubmissionmustaddress.DependingontherelevantNAAQS,thisproposedactionaddressesaspectsofthefollowingelementsofsection11O(a)(2)forthe1997and2006PMz.sNAAQSasfollows:(A)Emissionlimitsandothercontrolmeasures;(B)Ambientairqualitymonitoring/datasystem;(C)Programforenforcementofcontrolmeasures(preventionofsignificantdeterioration(PSD),NewSourceReview(NSR)fornonattainmentareas,andconstructionandmodificationofallstationarysources);(D)Interstateandinternationaltransport;(E)Adequateauthority,resources,implementation,andoversight;(F)Stationarysourcemonitoringsystem;(G)Emergencyauthority;(H)FutureSIPrevisions;(J)Consultationwithgovernmentofficials,publicnotification,PSD,andvisibilityprotection;(K)Airqualityandmodeling/data;(L)Permittingfees;and(M)Consultation/participationbyaffectedlocalentities.Thisproposedactionforthe1997and2006PMz.sNAAQSdoesnotaddresselement(I)NonattainmentareasinthisTechnicalSupportDocument,asSIPsubmissionsfordesignatednonattainmentareasaresubjecttoadifferentsubmissionscheduleasrequiredundertheCAAtitleI,partD.Thisproposedactionalsowillnotaddresssection11O(a)(2)(D)(i)(I)-prongs1and2,aswellassection11O(a)(2)(D)(i)(II)-prong4.EPA'sapproachtothereviewofinfrastructureSIPsubmissions:Aspreviouslystated,EPAhashistoricallyreferredtotheseSIPsubmissionsmadeforthepurposeofsatisfyingtherequirementsofCAAsections110(a)(1)and110(a)(2)as"infrastructureSIP"submissions.Althoughtheterm"infrastructureSIP"doesnotappearintheCAA,EPAusesthetermtodistinguishthisparticulartypeofSIPsubmissionfromsubmissionsthatareintendedtosatisfyotherSIP2requirementsundertheCAA,suchas"nonattainmentSIP"or"attainmentplanSIP"submissionstoaddressthenonattainmentplanningrequirementsofpartDoftitleIoftheCAA,"regionalhazeSIP"submissionsrequiredbyEPAruletoaddressthevisibilityprotectionrequirementsofCAAsection169A,andnonattainmentnewsourcereviewpermitprogramsubmissionstoaddressthepermitrequirementsofCAA,titleI,partD.Section110(a)(1)addressesthetimin$andgeneralrequirementsforinfrastructureSIPandsection11O(a)(2)providesmoredetailsconcerningtherequiredcontentsofthesesubmissions.Thelistofrequiredelementsprovidedinsection11O(a)(2)containsawidevarietyofdisparateprovisions,someofwhichpertaintorequiredlegalauthority,someofwhichpertaintorequiredsubstantiveprogramprovisions,andsomeofwhichpertaintorequirementsforbothauthorityandsubstantiveprogramprovisions.1EPAthereforebelievesthatwhilethetimingrequirementinsection11O(a)(1)isunambiguous,someoftheotherstatutoryprovisionsareambiguous.Inparticular,EPAbelievesthatthelistofrequiredelementsforinfrastructureSIPsubmissionsprovidedinsection110(a)(2)containsambiguitiesconcerningwhatisrequiredforinclusioninaninfrastructureSIPsubmission.ThefollowingexamplesofambiguitiesillustratetheneedforEPAtointerpretsomesection110(a)(1)andsection110(a)(2)requirementswithrespecttoinfrastructureSIPsubmissionsforagivenneworrevisedNAAQS.Oneexampleofambiguityisthatsection11O(a)(2)requiresthat"each"SIPsubmissionmustmeetthelistofrequirementstherein,whileEPAhaslongnotedthatthisliteralreadingofthestatuteisinternallyinconsistentandwouldcreateaconflictwiththenonattainmentprovisionsinpartDoftitleIoftheAct,whichspecificallyaddressnonattainmentSIPrequirements.2Section110(a)(2)(1)pertainstononattainmentSIPrequirementsandpartDaddresseswhenattainmentplanSIPsubmissionstoaddressnonatt11inmentarearequirementsaredue.Forexample,section172(b)requiresEPAtoestablishascheduleforsubmissionofsuchplansforcertainpollutantswhentheAdministratorpromulgatesthedesignationofanareaasnonattainment,andsection107(d)(1)(B)allowsuptotwoyearsorinsomecasesthreeyears,forsuchdesignationstobepromulgated.3Thisambiguityillustratesthatratherthanapplyallthestatedrequirementsofsection11O(a)(2)inastrictliteralsense,EPAmustdeterminewhichprovisionsofsection11O(a)(2)areapplicableforaparticularinfrastructureSIPsubmission.Anotherexampleofambiguitywithinsections11O(a)(1)and110(a)(2)withrespecttoinfrastructureSIPspertainstowhetherstatesmustmeetalloftheinfrastructureSIPrequirementsinasingleSIPsubmission,andwhetherEPAmustactuponsuchSIPsubmissioninasingleaction.Althoughsection110(a)(1)directsstatestosubmit"aplan"tomeettheserequirements,EPAinterpretstheCAAtoallowstatestomakemultipleSIPsubmissionsseparatelyaddressinginfrastructureSIPelementsforthesameNAAQS.IfstateselecttomakesuchmultipleSIPsubmissionstomeettheinfrastructureSIP1Forexample:section110(a)(2)(E)(i)providesthatstatesmustprovideassurancesthattheyhaveadequatelegalauthorityunderstateandlocallawtocarryouttheSIP;section110(a)(2)(C)providesthatstatesmusthaveaSIP-approvedprogramtoaddresscertainsourcesasrequiredbypartCoftitleIoftheCAA;andsection110(a)(2)(G)providesthatstatesmusthavelegalauthoritytoaddressemergenciesaswellascontingencyplansthataretriggeredintheeventofsuchemergencies.2See,e.g.,"RuleToReduceInterstateTransportafFineParticulateMatterandOzone(CleanAirInterstateRule);RevisionstoAcidRainProgram;RevisionstotheNOxSIPCall;FinalRule,"70FR25162,at25163-65(May12,2005)(explainingrelationshipbetweentimingrequirementofsection110(a)(2)(D)versussection110(a)(2)(I)).3EPAnotesthatthisambiguitywithinsection11O(a)(2)isheightenedbythefactthatvarioussubpartsofpartDsetspecificdatesforsubmissionofcertaintypesofSIPsubmissionsindesignatednonattainmentareasforvariouspollutants.Note,e.g.,thatsection182(a)(1)providesspecificdatesforsubmissionofemissionsinventoriesfortheozoneNAAQS.SomeofthesespecificdatesarenecessarilylaterthanthreeyearsafterpromulgationoftheneworrevisedNAAQS.3requirements,EPAcanelecttoactonsuchsubmissions eitherindividuallyorinalargercombinedaction.4Similarly,EPAinterpretstheCAAtoallowittotakeactionontheindividualpartsofonelarger,comprehensiveinfrastructureSIPsubmissionforagivenNAAQSwithoutconcurrentactionontheentiresubmission.Forexample,EPAhassometimeselectedtoactatdifferenttimesonvariouselementsandsub-elementsofthesameinfrastructureSIPsubmission.5AmbiguitieswithinsectionsllO(a)(l)and110(a)(2)mayalsoarisewithrespecttoinfrastructureSIPsubmissionrequirementsfordifferentNAAQS.Thus,EPAthatnoteveryelementofsection11O(a)(2)wouldberelevant,orasrelevant,orrelevantinthesameway,foreachneworrevisedNAAQS.Thestates'attendantinfrastructureSIPsubmissionsforeachNAAQSthereforecouldbedifferent.Forexample,themonitoringrequirementsthatastatemightneedtomeetinitsinfrastructureSIPsubmissionforpurposesofsection11O(a)(2)(B)couldbeverydifferentfordifferentpollutants,thereforethecontentandscopeofastate'sinfrastructureSIPsubmissiontomeetthiselementmightbeverydifferentforanentirelynewNAAQSthanforaminorrevisiontoanexistingNAAQS.6EPAnotesthatinterpretationofsection11O(a)(2)isalsonecessarywhenEPAreviewsothertypesofSIPsubmissionsrequiredundertheCAA.Therefore,aswithinfrastructureSIPsubmissions,EPAalsohastoidentifyandinterprettherelevantelementsofsection11O(a)(2)thatlogicallyapplytotheseothertypesofSIPsubmissions.Forexample,section172(c)(7)requiresthatattainmentplanSIPsubmissionsrequiredbypartDhavetomeetthe"applicablerequirements"ofsection11O(a)(2).Thus,forexample,attainmentplanSIPsubmissionsmustmeettherequirementsofsection11O(a)(2)(A)regardingenforceableemissionlimitsandcontrolmeasuresandsection11O(a)(2)(E)(i)regardingairagencyresourcesandauthority.Bycontrast,itisclearthatattainmentplanSIPsubmissionsrequiredbypartDwouldnotneedtomeettheportionofsection11O(a)(2)(C)thatpertainstothePSDprogramrequiredinpartCoftitleIoftheCAA,becausePSDdoesnotapplytoapollutantforwhichanareaisdesignatednonattainmentandthussubjecttopartDplanningrequirements.Asthisexampleillustrates,eachtypeofSIPsubmissionmayimplicatesomeelementsofsection11O(a)(2)butnotothers.GiventhepotentialforambiguityinsomeofthestatutorylanguageofsectionllO(a)(l)andsection110(a)(2),EPAbelievesthatitisappropriatetointerprettheambiguousportionsofsectionllO(a)(l)andsection11O(a)(2)inthecontextofactingonaparticularSIPsubmission.Inotherwords,EPAassumesthatCongresscouldnothaveintendedthateachandeverySIPsubmission,regardlessoftheNAAQSinquestionorthehistoryofSIPdevelopmentfortherelevantpollutant,wouldmeeteachoftherequirements,ormeeteachoftheminthesameway.Therefore,EPAhasadoptedanapproachunderwhichitreviewsinfrastructureSIPsubmissionsagainstthelistofelementsinsection11O(a)(2),butonlytotheextenteachelementappliesforthatparticularNAAQS.4See,e.g.,"ApprovalandPromulgationofImplementationPlans;NewMexico;RevisionstotheNewSourceReview(NSR)StateImplementationPlan(SIP);PreventionofSignificantDeterioration(PSD)andNonattainmentNewSourceReview(NNSR)Permitting,"78FR4339(January22,2013)(EPA'sfinalactionapprovingthestructuralPSDelementsoftheNewMexicoSIPsubmittedbytheStateseparatelytomeettherequirementsofEPA's2008PM2.sNSRrule),and"ApprovalandPromulgationofAirQualityImplementationPlans;NewMexico;InfrastructureandInterstateTransportRequirementsforthe2006PM2.sNAAQS,"(78FR4337)(January22,2013)(EPA'sfinalactionontheinfrastructureSIPforthe2006PM2.sNAAQS).5OnDecember14,2007,theStateofTennessee,throughtheTennesseeDepartmentofEnvironmentandConservation,madeaSIPrevisiontoEPAdemonstratingthattheStatemeetstherequirementsofsectionsllO(a)(l)and(2).EPAproposedactionforinfrastructureSIPelements(C)and{J)onJanuary23,2012(77FR3213)andtookfinalactiononMarch14,2012(77FR14976).OnAprill6,2012(77FR22533)andJuly23,2012(77FR42997),EPAtookseparateproposedandfmalactionsonallothersection110(a)(2)infrastructureSIPelementsofTennessee'sDecember14,2007submission.6Forexample,implementationofthe1997PM2.sNAAQSrequiredthedeploymentofasystemofnewmonitorstomeasureambientlevelsofthatnewindicatorspeciesforthenewNAAQS.4Historically,EPAhaselectedtouseguidancedocumentstomakerecommendationstostatesforinfrastructureSIPs,insomecasesconveyingneededinterpretationsonnewlyarisingissuesandinsomecasesconveyinginterpretationsthathavealreadybeendevelopedandappliedtoindividualSIPsubmissionsforparticularelements.7EPAissuedguidanceforinfrastructureSIPsonSeptember13,2013(2013Guidance).8EPAdevelopedthisdocumenttoprovidestateswithup-to-dateguidanceforinfrastructureSIPsforanyneworrevisedNAAQS.Wehaveconsideredtherecent2013guidanceandha_vefoundnoconflictsbetweentheissuedguidanceandr.eviewofIowa'sSIPsubmission.Withinthe2013guidance,EPAdescribesthedutyofstatestomakeinfrastructureSIPsubmissionstomeetbasicstructuralSIPrequirementswithinthreeyearsofpromulgationofaneworrevisedNAAQS.EPAalsomaderecommendationsaboutmanyspecificsubsectionsofsection11O(a)(2)thatarerelevantinthecontextofinfrastructureSIPsubmissions.9Theguidancealsodiscussesthesubstantivelyimportantissuesthataregermanetocertainsubsectionsofsection11O(a)(2).Significantly,EPAinterpretssections110(a)(1)and110(a)(2)suchthatinfrastructureSIPsubmissionsneedtoaddresscertainissuesandneednotaddressothers.Accordingly,EPAreviewseachinfrastructureSIPsubmissionforcompliancewiththeapplicablestatutoryprovisionsofsection11O(a)(2),asappropriate.Asanexample,section11O(a)(2)(E)(ii)isarequiredelementofsection11O(a)(2)forinfrastructureSIPsubmissions.Underthiselement,astatemustmeetthesubstantiverequirementsofsection128,whichpertaintostateboardsthatapprovepermitsorenforcementordersandheadsofexecutiveagencieswithsimilarpowers.Thus,EPAreviewsinfrastructureSIPsubmissionstoensurethatthestate'sSIPappropriatelyaddressestherequirementsofsection110(a)(2)(E)(ii)andsection128.The2013GuidanceexplainsEPA'sinterpretationthattheremaybeavarietyofwaysbywhichstatescanappropriatelyaddressthesesubstantivestatutoryrequirements,dependingonthestructureofanindividualstate'spermittingorenforcementprogram(e.g.,whetherpermitsandenforcementordersareapprovedbyamulti-memberboardorbyaheadofanexecutiveagency).Howevertheyareaddressedbythestate,thesubstantiverequirementsofsection128arenecessarilyincludedinEPA'sevaluationofinfrastructureSIPsubmissionsbecausesection11O(a)(2)(E)(ii)explicitlyrequiresthatthestatesatisfytheprovisionsofsection128.Asanotherexample,EPA'sreviewofinfrastructureSIPsubmissionswithrespecttothePSDprogramrequirementsinsections11O(a)(2)(C),(D)(i)(II),and(J)focusesuponthestructuralPSDprogramrequirementscontainedinpartCandEPA'sPSDregulations.StructuralPSDprogramrequirementsincludeprovisionsnecessaryforthePSDprogramtoaddressallregulatedsourcesandNewSourceReview(NSR)pollutants.Bycontrast,structuralPSDprogramrequirementsdonotincludeprovisions..7EPAnotes,however,thatnothingintheCAArequiresEPAtoprovideguidanceortopromulgateregulationsforinfrastructureSIPsubmissions.TheCAAdirectlyappliestostatesandrequiresthesubmissionofinfrastructureSIPsubmissions,regardlessofwhetherornotEPAprovidesguidanceorregulationspertainingtosuchsubmissions.EPAelectstoissuesuchguidanceinordertoassiststates,asappropriate.8"GuidanceonInfrastructureStateImplementationPlan(SIP)ElementsunderCleanAirActSectionsllO(a)(l)andllO(a)(2),"MemorandumfromStephenD.Page,September13,2013.9EPA'sSeptember13,2013,guidancedidnotmakerecommendationswithrespecttoinfrastructureSIPsubmissionstoaddresssectionllO(a)(2)(D)(i)(l).EPAissuedtheguidanceshortlyaftertheU.S.SupremeCourtagreedtoreviewtheD.C.CircuitdecisioninEMEHomerCity,696F.3d7(D.C.Cir.2012)whichhadinterpretedtherequirementsofsection110(a)(2)(D)(i)(l).Inlightoftheuncertaintycreatedbyongoinglitigation,EPAelectednottoprovideadditionalguidanceontherequirementsofsection11O(a)(2)(D)(i)(l)atthattime.Astheguidanceisneitherbindingnorrequiredbystatute,whetherEPAelectstoprovideguidanceonaparticularsectionhasnoimpactonastate'sCAAobligations.5thatarenotrequiredunderEPA'sregulationsat40CFR51.166butaremerelyavailableasanoptionforthestate.Accordingly,thelatteroptionalprovisionsaretypesofprovisionsEPAconsidersirrelevantinthecontextofaninfrastructureSIPaction.Forothersection11O(a)(2)elements,however,EPA'sreviewofastate'sinfrastructureSIPsubmissionfocusesonassuringthatthestate'sSIPmeetsbasicstructuralrequirements.Forexample,section11O(a)(2)(C)includes,intertherequirementthatstateshaveaprogramtominornewsources.Thus,EPAevaluateswhetherthestatehasanEPA-approvedminorNSRprogramandwhethertheprogramaddressesthepollutantsrelevanttothatNAAQS.InthecontextofactingonaninfrastructureSIPsubmission,however,EPAdoesnotthinkitisnecessarytoconductareviewofeachandeveryprovisionofastate'sexistingminorsourceprogram(i.e.,alreadyintheexistingSIP)forcompliancewiththerequirementsoftheCAAandEPA'sregulationsthatpertaintosuchprograms.Withrespecttocertainotherissues,EPAdoesnotbelievethatanactiononastate'sinfrastructureSIPsubmissionisnecessarilytheappropriatetypeofactioninwhichtoaddresspossibledeficienciesinastate'sexistingSIP.Theseissuesinclude:(i)existingprovisionsrelatedtoexcessemissionsfromsourcesduringperiodsofstartup,shutdown,ormalfunctionthatmaybecontrarytotheCAAandEPA'spoliciesaddressingsuchexcessemissions("SSM");10(ii)existingprovisionsrelatedto"director'svariance"or"director'sdiscretion"thatmaybecontrarytotheCAAbecausetheypurporttoallowrevisionstoSIP-approvedemissionslimitswhilelimitingpublicprocessornotrequiringfurtherapprovalbyEPA;and(iii)existingprovisionsforPSDprogramsthatmaybeinconsistentwithcurrentrequirementsofEPA's"FinalNSRImprovementRule,"67FR80186(December31,2002),asamendedby72FR32526(June13,2007)("NSRReform").Thus,EPAbelievesitmayapprovean.infrastructureSIPsubmissionwithoutscrutinizingthetotalityoftheexistingSIPforsuchpotentiallydeficientprovisionsandmayapprovethesubmissionevenifitisawareofsuchexistingprovisions.11ItisimportanttonotethatEPA'sapprovalofastate'sinfrastructureSIPsubmissionshouldnotbeconstruedasexplicitorimplicitre-approvalofanyexistingpotentiallydeficientprovisionsthatrelatetothethreespecificissuesjustdescribed.EPA'sapproachtoreviewofinfrastructureSIPsubmissionsistoidentifytheCAArequirementsthatarelogicallyapplicabletothatsubmission.EPAbelievesthatthisapproachtothereviewofaparticularinfrastructureSIPsubmissionisappropriate,becauseitwouldnotbereasonabletoreadthegeneralrequirementsofsection11O(a)(1)andthelistofelementsin11O(a)(2)asrequiringreviewofeachandeveryprovisionofastate'sexistingSIPagainstallrequirementsintheCAAandEPAregulationsmerelyforpurposesofassuringthatthestateinquestionhasthebasicstructuralelementsforafunctioningSIPforaneworrevisedNAAQS.BecauseSIPshavegrownbyaccretionoverthedecadesasstatutoryandregulatory requirementsundertheCAAhaveevolved,theymayincludesomeoutmodedprovisionsandhistoricalartifacts.Theseprovisions,whilenotfullyuptodate,neverthelessmaynotposeasignificantproblemforthepurposesof"implementation,maintenance,andenforcement"ofaneworrevisedNAAQSwhenEPAevaluatesadequacyoftheinfrastructureSIP10Subsequenttoissuingthe2013Guidance,EPA'sinterpretationoftheCAAwithrespecttotheapprovabilityofaffmnativedefenseprovisionsinSIPshaschanged.See"StateImplementationPlans:ResponsetoPetitionforRulemaking;RestatementandUpdateofEPA'sSSMPolicyApplicabletoSIPs;FindingsofSubstantialInadequacy;andSIPCallsToAmendProvisionsApplyingtoExcessEmissionsDuringPeriodsofStartup,ShutdownandMalfunction,"80FR33839(June12,2015).Asaresult,EPA's2013Guidance(p.21&n.30)nolongerrepresentstheEPA'sviewconcerningthevalidityofaffirmativedefenseprovisions,inlightoftherequirementsofsection113andsection304.11Bycontrast,EPAnotesthatifastateweretoincludeanewprovisioninaninfrastructureSIPsubmissionthatcontainedalegaldeficiency,suchasanewexemptionoraffirmativedefenseforexcessemissionsduringSSMevents,thenEPAwouldneedtoevaluatethatprovisionforcomplianceagainsttherubricofapplicableCAArequirementsinthecontextoftheactionontheinfrastructureSIP.6submission.EPAbelievesthatabetterapproachisforstatesandEPAtofocusattentiononthoseelementsofsection11O(a)(2)oftheCAAmostlikelytowarrantaspecificSIPrevisionduetothepromulgationofaneworrevisedNAAQSorotherfactors.Forexample,EPA's2013GuidancegivessimplerrecommendationswithrespecttocarbonmonoxidethanotherNAAQSpollutantstomeetthevisibilityrequirementsofsection11O(a)(2)(D)(i)(II),becausecarbonmonoxidedoesnotaffectvisibility.Asaresult,aninfrastructureSIPsubmissionforanyfutureneworrevisedNAAQSforcarbonmonoxideneedonlystatethisfactinordertoaddressthevisibilityprongofsection11O(a)(2)(D)(i)(II).Finally,EPAbelievesthatitsapproachwithrespecttoinfrastructureSIPrequirementsisbasedonareasonablereadingofsections110(a)(1)and110(a)(2)becausetheCAAprovidesotheravenuesandmechanismstoaddressspecificsubstantivedeficienciesinexistingSIPs.TheseotherstatutorytoolsallowEPAtotakeappropriatelytailoredaction,dependinguponthenatureandseverityoftheallegedSIPdeficiency.Section11O(k)(5)authorizesEPAtoissuea"SIPcall"whenevertheAgencydeterminesthatastate'sSIPissubstantiallyinadequatetoattainormaintaintheNAAQS,tomitigateinterstatetransport,ortootherwisecomplywiththeCAA.12Section11O(k)(6)authorizesEPAtocorrecterrorsinpastactions,suchaspastapprovalsofSIPsubmissions.13Significantly,EPA'sdeterminationthatanactiononastate'sinfrastructureSIPsubmissionisnottheappropriatetimeandplacetoaddressallpotentialexistingSIPdeficienciesdoesnotprecludeEPA'ssubsequentrelianceonprovisionsinsection11O(a)(2)aspartofthebasisforactiontocorrectthosedeficienciesatalatertime.Forexample,althoughitmaynotbeappropriatetorequireastatetoeliminateallexistinginappropriatedirector'sdiscretionprovisionsinthecourseofactingonaninfrastructureSIPsubmission,EPAbelievesthatsection11O(a)(2)(A)maybeamongthestatutorybasesthatEPAreliesuponinthecourseofaddressingsuchdeficiencyinasubsequentaction.14Note:Throughoutthissection,therearenumerousreferencestoIowaCode455B,"JurisdictionofDepartmentofNaturalResources."TheIowaCodeincludeslawsenactedbytheIowaGeneralAssemblyandprovideslegislativeauthorityforIDNR.AdditionalinformationabouttheIowaCodecanbefoundathttp://www.legis.iowa.gov/iowalaw/statutorvlaw.aspxTheIowaAdministrativeCode(lAC)isacompositeofalladoptedadministrativerules.Abi-weeklybulletinispublishedofallproposedandadoptedchangesandisavailablethroughtheIowaDepartmentofNaturalResources(IDNR)website www.iowadnr.gov,orbylistserv.The12Forexample,EPAissuedaSIPcalltoUtahtoaddressspecificexistingSIPdeficienciesrelatedtothetreatmentofexcessemissionsduringSSMevents.See"FindingofSubstantialInadequacyoflmplementationPlan;CallforUtahStateImplementationPlanRevisions,"74FR21639(April18,2011).13EPAhasusedthisauthoritytocorrecterrorsinpastactionsonSIPsubmissionsrelatedtoPSDprograms.See"LimitationofApprovalofPreventionofSignificantDeteriorationProvisionsConcerningGreenhouseGasEmitting-SourcesinStateImplementationPlans;FinalRule,"75FR82536(December30,20l0).EPAhaspreviouslyuseditsauthorityunderCAAsection110(k)(6)toremovenumerousotherSIPprovisionsthattheAgencydeterminedithadapprovedinerror.See,e.g.,61FR38664(July25,1996)and62FR34641(June27,1997)(correctionstoAmericanSamoa,Arizona,California,Hawaii,andNevadaSIPs);69FR67062(November16,2004)(correctionstoCaliforniaSIP);and74FR57051(November3,2009)(correctionstoArizonaandNevadaSIPs).14See,e.g.,EPA'sdisapprovalofaSIPsubmissionfromColoradoonthegroundsthatitwouldhaveincludedadirector'sdiscretionprovisioninconsistentwithCAArequirements,includingsectionllO(a)(2)(A).See,e.g.,75FR42342at42344(July21,2010)(proposeddisapprovalofdirector'sdiscretionprovisions);76FR4540(January26,2011)(finaldisapprovalofsuchprovisions).7EnvironmentalProtectionCommissionhasbeenassignedChapter567ofthelACandairqualityrulesareinChapters10,20-29,31,and33-34.Atableofcontentsforthesechapterswereincludedinthe1997and2006PM2.sinfrastructureSIPsubmissions.EPAreviewedIowa'sinfrastructureSIPsubmissionsandtherelevantstatutoryandregulatoryauthoritiesandprovisionsreferencedinthesubmissionsorreferencedinIowa'scurrentEPA-approvedSIP.BelowisEPA'sevaluationofhowthestatetherelevantelementsofsection110(a)(2)for.the1997and2006PM2.sNAAQS.(A)Emissionlimitsandothercontrolmeasures:Section11O(a)(2)(A)requiresSIPstoincludeenforceableemissionlimitsandothercontrolmeasures,meansortechniques,schedulesforcomplianceandotherrelatedmattersasneededtoimplement,maintainandenforceeachNAAQS.15AsnotedinIowa'sJuly29,2013,SIPsubmission,IowaCode455B.132("ExecutiveAgency")designatesIDNRastheAgencytoprevent,abate,orcontrolairpollution.TheEnvironmentalProtectionCommission(EPC)isthegoverningcommissionoftheenvironmentalservicesportionofIDNR(IowaCode455A.6"EnvironmentalProtectionCommission-appointmentandduties").TheEPChasthedutyandauthoritytodevelopplansforabatement,controlandpreventionofairpollutioninIowa,whichincludesemissionlimitsandschedulesforcompliance.IowaCode4558.133.1("Duties").TheEPCalsoadopts,amends,orrepealsrulesthatarenecessarytoobtainapprovalofthestateSIPundersection110oftheCAA.IowaCode455B.133.2.TheEPCisalsochargedwithadopting,amendingorrepealingambientairqualitystandardsnecessarytoprotectpublichealthandwelfare.IowaCode455B.133.3.Italsosetsemissionlimitsrelatingtothemaximumquantitiesofaircontaminantsthatmaybeemittedfromanaircontaminantsource.IowaCode4558.133.4.Administrativerulesestablishschedulesforcompliancewithemissionlimits(567lACChapter21-Compliance).IDNRhasadoptedthe1997PM2.sannualstandardandthe2006PM2.s24-hourstandard,asspecifiedin40CFR50.7(a)and50.13(a),into567IowaAdministrativeCodeChapter28.See567lAC28.1.EPAisproposingtoapproveIowa'sadoptionofthe1997PM2.sannualstandardandthe2006PM2.s24-hourstandardintotheSIP.Baseduponreviewofthestate'sinfrastructureSIPsubmissionsforthe1997and2006PM2.sNAAQS,andrelevantstatutoryandregulatoryauthoritiesandprovisionsreferencedinthesubmissionsorreferencedinIowa'sSIP,EPAbelievesthatIowahastheadequateinfrastructureneededtoaddresssectionIIO(a)(2)(A)forthe1997and2006PM2.sNAAQSandisproposingtoapprovethiselementoftheMarch31,2008andJuly29,2013SIPsubmissions.(B)Ambientairqualitymonitoring/datasystem:Section110(a)(2)(B)requiresSIPstoincludeprovisionstoprovideforestablishmentandoperationofambientairqualitymonitors,collectionandanalysisofambientairqualitydata,andmakingthesedataavailabletoEPAuponrequest.15Thespecificnonattainmentareaplanrequirementsofsection11O(a)(2)(I)aresubjecttothetimingrequirementsofsection172,notthetimingrequirementofsectionIIO(a)(l).Thus,section110(a)(2)(A)doesnotrequirethatstatessubmitregulationsoremissionslimitsspecificallyforattainingthe2008PbNAAQS.ThoseSIPprovisionsaredueaspartofeachstate'sattainmentplan,andwillbeaddressedseparatelyfromtherequirementsofsectionIIO(a)(2)(A).InthecontextofaninfrastructureSIP,EPAisnotevaluatingtheexistingSIPprovisionsforthispurpose.Instead,EPAisonlyevaluatingwhetherthestate'sSIPhasbasicstructuralprovisionsfortheimplementationoftheNAAQS.8TheEPChastheauthorityto,amongotherthings,requiretheowneroroperatorofanyaircontaminantsourcetoinstall,useandmaintainmonitoringequipment,sampleemissionsinaccordancewiththemethodsandproceduresthattheEPAshallprescribe,andprovideotherinformationthattheEPCmayreasonablyrequire.IowaCode455B.133.5("Duties").Inaddition,asnotedinIowa'sSIPsubmittal,IowaCode455B.134.4("Director-Duties-Limitations")grantstheIDNRDirectortheauthoritytomonitorairquality.Furthermore,IDNRhasjurisdictiontoprevent,abateandcontrolairpollutionbyestablishingstandardsforairqualityandby.regulatingpotentialsourcesofairpollutionthroughasystemofgeneralrulesorspecificpermit.567lAC20.1.AmbientairmonitoringisimplementedwithagreementswiththeUniversityofIowa'sStateHygienicLaboratory,theLinnCountylocalprogram,andthePolkCountylocalprogram.Theambientairqualitymonitoringprogramcollectsairmonitoringdata,qualityassurestheresults,andreportsthedata.IDNRsubmitsannualmonitoringnetworkplanstoEPAforapproval,includingplansforitsPMz.smonitoringnetwork,asrequiredby40CFR58.10.PriortosubmissiontoEPA,IowamakestheplanavailableforpublicreviewonIDNR'swebsiteat(http://www.iowadnr.gov/InsideDNR/RegulatoryAir/MonitoringArnbientAir.aspx.IDNRalsoconductsfive-yearmonitoringnetworkassessmentsasrequiredby40CFR58.1O(d).Furthermore,IowasubmitsairqualitydatatoEPA'sAirQualitySystem,pursuanttotheprovisionsofthestate'sgrantworkplansdevelopedinconjunctionwithEPA.ThisdatadeterminesifthenetworksitemonitorsareincompliancewiththeNAAQS.IDNRoperates21PMz.smonitorsinIowainaccordancewiththecurrentPMz.smonitoringrequirements.AmbientconcentrationsofPMz.saremeasuredinaccordancewiththeapplicablefederalregulationsin40CFRPart50,AppendixL,orequivalentmethodsasapprovedbyEPA pursuantto40CFRPart53.Baseduponreviewofthestate'sinfrastructureSIPsubmissionsforthe1997and2006PMz.sNAAQS,andrelevantstatutoryandregulatoryauthoritiesandprovisionsreferencedinthesubmissionsorreferencedinIowa'sSIP,EPAbelievesthatIowahastheadequateinfrastructureneededtoaddresssection11O(a)(2)(B)forthe1997and2006PMz.sNAAQSandisproposingtoapprovethiselementoftheMarch31,2008andJuly29,2013SIPsubmissions.(C)Programforenforcementofcontrolmeasures(PSD,NewSourceReviewfornonattainmentareas,andconstructionandmodificationofallstationarysources):Section11O(a)(2)(C)requiresstatestoincludethefollowingthreeelementsintheSIP:(1)aprogramprovidingforenforcementofmeasuresdescribedinsection11O(a)(2)(A);(2)aprogramfortheregulationofthemodificationandconstructionofstationarysourcesasnecessarytoprotecttheapplicableNAAQS(i.e.,state-widepermittingofminorsources);and(3)apermitprogramtomeetthemajorsourcepermittingrequirementsoftheCAA(forareasdesignatedasattainmentorunclassifiablefortheNAAQSinquestion).161.EnforcementofSIPMeasures.WithrespecttoenforcementofrequirementsoftheSIP,IowaCode455B.133"Duties"and567lACChapter10-"AdministrativePenalties,"providesauthorityforIDNRtoestablishthescheduleorrangeofcivilpenalties,andthedirectorhasthedutyandauthoritytoissueordersconsistentwiththeadministrativerulestocontrolairpollutionandensurecompliancewithpermitconditions.TheEPCapprovesadministrativerulesthatestablish,byrule,ascheduleorrangeofcivilpenaltieswhichmaybeadministrativelyassessed(IowaCode455B.109"ScheduleofFines-16Asdiscussedpreviously,thisinfrastructureSIPrulemakingwillnotaddresstheIowaprogramfornonattainmentarearelatedprovisions,sinceEPAconsidersevaluationoftheseprovisionstobeoutsidethescopeofinfrastructureSIPactions.9Violations,"567lACChapter10).IowaCode455B.141"LegalAction"providesauthoritytoenforcetherulesandregulations.IowaCode455B.146A"CriminalAction-Penalties,"addressespenaltiesforcriminalaction.TheIDNRaircomplianceprogramhasstaffinboththecentralofficeandsixfieldofficestoensurethatindustry,businesses,institutions,andindividualsareincompliancewithstateandfederalairqualityregulations.2.MinorNewSourceReview.Section110(a)(2)(C)requiresthattheSIPincludemeasurestoregulateandmodificationofstationarysourcestoprotect.theNAAQS.IowahasaSIPapprovedprogramforpre-constructionpermits.TheIDNRpre-constructionpermitprogramreviewsdesignandperformanceobjectivesforsourcesofaircontaminantstodeterminelikelycompliancewithstateandfederalrequirements,andtoassurethatemissionstandardsshallnotcauseorcontributetoaviolationofthePMz.sNAAQS.Noaircontaminantsourceshallbeinstalled,alteredsothatitsignificantlyaffectsemissions,orplacedinuseunlessaconstructionpermithasbeenissuedforthatsource.IowaCode455B.l34(3)a.Seealso567lAC22.1(1)("nopersonshallconstruct,install,reconstructoralteranyequipment...withoutfirstobtainingaconstructionpermit.").Inthisaction,EPAisproposingtoapproveIowa'sinfrastructureSIPsubmissionsforthe1997,and2006PMz.sNAAQSwithrespecttothegeneralrequirementinsection110(a)(2)(C)toincludeaprogramintheSIPthatregulatesthemodificationandconstructionofanystationarysourceasnecessarytoensuretheNAAQSareachieved.Inthisaction,EPAisnotproposingtoapproveordisapprovethestate'sexistingminorNSRprogramtotheextentthatitisinconsistentwithEPA'sregulationsgoverningthisprogram.EPAhasmaintainedthattheCAAdoesnotrequirethatnewinfrastructureSIPsubmissionscorrectanydefectsinexistingEPA-approvedprovisionsofminorNSRprogramsinorderforEPAtoapprovetheinfrastructureSIPforelement(C)(e.g.,76FR41076-41079).3.PreventionofSignificantDeterioration(PSD)permitprogram.IowahasaPSDpermittingprogramapprovedbyEPAasmeetingtherequirementsofpartC,relatingtothepreventionofsignificantdeteriorationofairquality.InordertodemonstratethatIowahasmetthissub-element,thisPSDprogrammustcoverrequirementsnotjustforthe1997and2006PMz.sNAAQS,butforallotherregulatedNSRpollutantsaswell.ToimplementthePSDpermittingcomponentofsection11O(a)(2)(C)forthe1997and2006PMz.sNAAQS,stateswererequiredtosubmitthenecessarySIPrevisionstoEPAbyMay16,2011,andJuly20,2012,pursuanttoEPA'sNSRPMz.sImplementationRule(2008NSRrule),(73FR28321,May16,2008)andEPA'sPMz.sIncrement-SILs-SMCRule,(75FR64864,October20,2010).TheJanuary4,2014,courtdecisionremandingthe2008ruledoesnotimpacttheEPA'sactiontothiselement.The2008NSRRulefinalizedseveralnewrequirementsforSIPstoaddresssourcesthatemitdirectPMz.sandotherpollutantsthatcontributetosecondaryPMz.sformation.OneoftheserequirementsisforNSRpermitstoaddresspollutantsresponsibleforthesecondaryformationofPMz.s,otherwiseknownasprecursors.Inthe2008NSRRule,theEPAidentifiedprecursorstoPMz.sforthePSDprogramtoincludesulfurdioxide(SOz)andnitrogenoxide(NOx)(unlessthestatedemonstratestotheAdministrator'ssatisfactionorEPAdemonstratesthatNOxemissionsinanareaarenotasignificantcontributortothatarea'sambientPMz.sconcentrations).73FR28325.The2008NSRRulealsospecifiedthatvolatileorganiccompounds(VOCs)arenotconsideredtobeprecursorstoPMz.sinthePSDprogramunlessthestatedemonstratestotheAdministrator'ssatisfactionorEPAdemonstratesthatemissionsofVOCsinanareaaresignificantcontributorstothatarea'sambientPMz.sconcentrations.10

# The specific references

to S02,

NOx,

and VOCs

as they pertain

to secondary

PM2

. s formation

are currently

codified

at 40 CFR 51.166(b)(49)(i)(b)

and

40 CFR 52.21(b)(50)(i)(b).

The deadline

for states to submit

SIP revisions

to their

PSD programs incorporating

these

new requirements

was May

16, 2011 (73

FR 28341

). As part

of identifying

pollutants

that

are precursors

to PM2.s,

the 2008

NSR

Rule

also revised

the definitioJ:?.

of "significant"

as

it relates

to

a net emissions

increase.

or the potential

of

a source

to emit pollutants. Specifically,

40 CFR 51.166(b)(23)(i)

and

40 CFR 52.21(b)(23)(i)

define "significant"

for PM2.s

to mean

the following

emissions

rates:

10 tons

per year

(tpy)

of direct

PM2

. s; 40 tpy

of S02;

and 40 tpy ofNOx

(unless

the state demonstrates

to the Administrator's

satisfaction

or EPA demonstrates that NOx emissions

in

an area

are

not

a significant contributor

to that area's ambient

PM2.s concentrations). Another provision

of the 2008

NSR

Rule requires

states

to account

for gases

that could condense

to form particulate

matter,

known

as condensables,

for applicability determinations

and

in establishing emission

limits

for PM2

. s and

PM

1o

17

in NSR permits.

EPA provided

that states

were required

to account for PM2.s

and PM1o condensables

beginning

on

or after January

1, 2011.

This requirement

is currently codified

in 40 CFR 51.166(b)(49)(i)(a)

and

40 CFR 52.21(b)(50)(i)(a).

Revisions

to states'

PSD programs incorporating

the inclusion

of condensables

were required

to be submitted

to EPA

by May

16, 2011

(73 FRat 28341). The definition of"regulated

NSR pollutant"

in the PSD provisions

of the 2008

rule inadvertently required

states

to also account

for

the condensable

PM fraction

with respect

to one indicator

of PM referred

to

as "particular

matter emissions."

The term "particulate

matter emissions"

includes

PM2

. s and PM

10 

# particles

as well

as larger particles,

and

is

an indicator

for PM

that

has long

been

used

for measuring

PM under various

New Source Performance

Standards

(NSPS)

( 40 CFR

part

60).

18

A similar provision addressing condensables

was added

to the Nonattainment

NSR

SIP provisions

of the 2008 NSR

Rule

but does not include

a requirement

to account

for "particulate

matter

(PM) emissions"

in

all cases

(40 CFR 51.165(a)(l)(xxxvii)(D)).

On October

12,2012,

EPA finalized

a rulemaking

to amend the definition

of "regulated

NSR pollutant" promulgated

in the NSR

PM2.s

Rule regarding

the

PM condensable

provision

currently

at 40 CFR 51.166(b)(49)(i)(a),

52.21(b)(50)(i)(a),

and EPA's Emissions Offset Interpretative

Ruling.

77 FR 65107.

The rulemaking

removes

the inadvertent requirement

in the 2008

NSR

Rule

that

the measurement

of condensables

be generally

included

as part

of the measurement and regulation of"particulate

matter emissions."

19 On March 14,2014

(79

FR 14402),

EPA

took action

to approve

Iowa's

request

to amend

the

SIP

to meet

the 2006

PM2.s

N AAQS implementation

requirements

of the May

16, 2008,

NSR

PM2

. s Rule

as described

above.

In this

SIP revision,

Iowa adopted

rule revisions

to establish

(1)

the requirement

for NSR permits

to address

directly

emitted

PM2

. s and precursor pollutants;

and

(2) significant emission 17 

# PM10

refers

to particles

with diameters

between

2.5

and

10 microns, oftentimes

referred

to

as "coarse"

particles. 18



# In addition

to the NSPS

for PM,

it

is noted

that states regulated "particulate

matter emissions"

for many

years

in their

SIPs for PM,

and

the same indicator

has been

used

as

a surrogate

for determining

compliance

with certain standards

contained

in 40 CFR

part

63, regarding

National

Emission

Standards

for Hazardous

Air Pollutants

. 19 

# The change finalized

in that action

does

not mean

that EPA

has entirely exempted

the inclusion

of the condensable

PM fraction

as part

of accounting

for "particulate

matter emissions

."

It 

# may

be necessary

for PSD sources

to count

the condensable

PM fraction

with regard

to "particulate

matter emissions"

where

either

the applicable

NSPS compliance

test includes

the condensable

PM fraction

or the applicable implementation

plan requires

the condensable

PM fraction

to

be counted.

77

FR 65112.



# 11ratesfordirectPM2.sandprecursorpollutants(S02andNOx),amongotherrevisions.WithrespecttothecondensablePMissuedescribedabove,IowahasaddressedthisthroughtheSIPsubmissionreceivedbyEPAonSeptember24,2012,andapprovedbyEPAonMarch14,2014.Provisionsofthe2010PM2.sPSD-Increments,SILSandSMCsrule(75FR64865,October20,2010)relatingtotheSILsandSMCsthatwereaffectedbytheJanuary22,2013,U.S.CourtofAppealsdecisionarenotSIP-approved.79FR14402,March14,2014.Tomeettherequirementsof(C),inadditiontothePM2.sPSDelementsthatmustbeincorporatedintotheSIP,eachstate'sPSDprogrammustmeetapplicablerequirementsforallregulatedpollutantsinPSDpermits.Forexample,ifastatelacksprovisionsneededtoaddressNOxasaprecursortoozone,theprovisionsofsection110(a)(2)(C)requiringasuitablePSDpermittingprogramforPM2.swillnotbeconsideredtobemet.Iowa'simplementingPSDpermittingruleis567lACChapter33-"SpecialRegulationsandConstructionPermitRequirementsforMajorStationarySources-PreventionofSignificantDeterioration(PSD)ofAirQuality."ThischapterimplementsthemajorNSRprogramcontainedinPartCofTitleIofthefederalCAAasamendedonNovember15,1990,andaspromulgatedunder40CFRParts51.166and52.21.EPApreviouslyapprovedtheseprovisionsintotheIowaSIP.See72FR27056(May14,2007).TherequirementsforthenonattainmentmajorNSRprogramforallNAAQS,includingPM2.s,aresetforthin567lAC31.3,"NonattainmentNewSourceReviewRequirementsforAreasDesignatedNonattainmentonorAfterMay18,1998,"and567lAC31.20"SpecialRequirementsforNonattainmentAreasDesignatedBeforeMay18,1998"(OriginallyAdoptedin567-22.5).However,becauseEPAconsidersnonattainmentareaprovisionstobeoutsidethescopeofinfrastructureSIPactions,theseprovisionsarenotaddressedinthisrulemaking.IDNRissuesallPSDpermitsinthestateofIowaonapollutant-by-pollutantbasis.Inadditiontoconstructionpermitinformation,rulesandstatutespreviouslydiscussedin(C)(2),pre-applicationmeetingsbetweenfacilitiesandIDNRareencouraged,especiallyformajorsourcefacilities.Baseduponreviewofthestate'sinfrastructureSIPsubmissionsforthe1997and2006PM2.sNAAQS,andrelevantstatutoryandregulatoryauthoritiesandprovisionsreferencedinthesubmissionsorreferencedinIowa'sSIP,EPAbelievesthatIowahastheadequateinfrastructureneededtoaddresssection110(a)(2)(C)forthe1997and2006PM2.sNAAQSandisproposingtoapprovethiselementoftheMarch31,2008andJuly29,2013SIPsubmissions.(D)Interstateandinternationaltransport:Section110(a)(2)(D)(i)includesfourrequirementsreferredtoasprongs1through4.Prongs1and2areprovidedatsection110(a)(2)(D)(i)(I);Prongs3and4areprovidedatsection110(a)(2)(D)(i)(Il).Section110(a)(2)(D)(i)(l)requiresSIPstoincludeadequateprovisionsprohibitinganysourceorothertypeofemissionsactivityinonestatefromcontributingsignificantlytononattainment,orinterferingwithmaintenance,ofanyNAAQSinanotherstate.Section11O(a)(2)(D)(i)(Il)requiresSIPstoincludeadequateprovisionsprohibitinganysourceorothertypeofemissionsactivityinonestatefrominterferingwith measuresrequiredofanyotherstatetopreventsignificantdeteriorationofairqualityortoprotectvisibility.12Aspreviouslyexplainedonpage3ofthisdocument,theEPAisproposingtoapproveonly110(a)(3)(D)(i)(II),prong3forthe1997and2006PM2.sNAAQS.WithrespecttothePSDrequirementsofsection11O(a)(2)(D)(i)(II),prong3,EPAnotesthattheIowasubmissionincludethenecessaryinfrastructureSIPPSDrequirementsforthe1997and2006PM2.5NAAQS.Theserequirementsarediscussedunderthediscussionof11O(a)(2)(C)above...Section110(a)(2)(D)(ii)alsorequiresthattheSIPinsurescompliancewiththeapplicablerequirementsofsections126and115oftheCAArelatingtointerstateandinternationalpollutionabatement,respectively.Section126(a)oftheCAArequiresnewormodifiedsourcestonotifyneighboringstatesofpotentialimpactsfromsourceswithinthestate.AlthoughIowasourceshavenotbeenidentifiedbyEPAashavinganyinterstateorinternationalimpactsundersection126orsection115inanypendingactionsrelatingtothe1997and2006PM2.sNAAQS,theIowaregulationsaddressabatementoftheeffectsofinterstatepollution.Section110(a)(2)(D)(ii)isaddressedbyIDNR'simplementationofthefederally-approvedpre-constructionpermitreview,andPSDpermitprogramnotificationrequirementsforFederalClassIareas.Specifically,EPA,aswellasofficialsandagencieshavingcognizancewheretheproposedconstructionistooccurarenotifiedofthependingpermit.Thisincludesstateorlocalairpollutioncontrolagencies,chiefexecutivesofthecityandcountywherethesourcewouldbelocated,anycomprehensiveregionallanduseplanningagency;andanystate,FederalLandManager,orIndiangoverningbodywhoselandsmaybeaffectedbyemissionsfromthesourceormodification.Finally,withrespecttosection126(b)-(c),EPAbelievesthatwhileIowacouldusethesamestatutoryauthoritiespreviouslydiscussed,primarilylAC567Chapter22,atthistimenosourceinIowaissubjecttoanactivefindingundersection126withrespecttothe1997or2006PM2.sNAAQS.Section115oftheCAAauthorizesEPAtorequireastatetoreviseitsSIPundercertainconditionstoalleviateinternationaltransportintoanothercountry.Therearenofinalfindingsundersection115oftheCAAagainstIowawithrespecttoanyairpollutant.Thus,thestate'sSIPdoesnotneedtoincludeanyprovisionstomeettherequirementsofsection115.Baseduponreviewofthestate'sinfrastructureSIPsubmissionsforthe1997and2006PM2.sNAAQS,andrelevantstatutoryandregulatoryauthoritiesandprovisionsreferencedinthesubmissionsorreferencedinIowa'sSIP,EPAbelievesthatIowahastheadequateinfrastructureneededtoaddresssection110(a)(2)(D)(i)(II),prong3forthe1997and2006NAAQSandisproposingtoapprovethiselementoftheMarch31,2008andJuly29,2013,SIPsubmissions.(E)Adequateauthority,resources,implementation,andoversight:Section110(a)(2)(E)requiresthatSIPsprovideforthefollowing:(1)necessaryassurancesthatthestate(andotherentitieswithinthestateresponsibleforimplementingtheSIP)willhaveadequatepersonnel,funding,andauthorityunderstateorlocallawtoimplementtheSIP,andthattherearenolegalimpedimentstosuchimplementation;(2)requirementsthatthestatecomplywiththerequirementsrelatingtostateboards,pursuanttosection128oftheCAA;and(3)necessaryassurancesthatthestatehasresponsibilityforensuringadequateimplementationofanyplanprovisionforwhichitreliesonlocalgovernmentsorotherentitiestocarryoutthatportionoftheplan.(1)Section110(a)(2)(E)(i)requiresstatestoestablishthattheyhaveadequatepersonnel,fundingandauthority.Withrespecttoadequateauthority,wehavepreviouslydiscussedIowa'sstatutoryandregulatoryauthoritytoimplementthe1997and2006PM2.sNAAQS,primarilyinthediscussionofsection11O(a)(2)(A)above.NeitherIowanorEPAhasidentifiedanylegalimpedimentsinthestate'sSIPtoimplementationoftheNAAQS.13Withrespecttoadequateresources,IDNRassertsthatithasadequatepersonneltoimplementtheSIP.IDNRisthedesignatedagencyovertheatmosphereofthestatetoprevent,abate,orcontrolairpollutionbyestablishingstandardsforairqualityandbyregulating potentialsourcesofairpollutionthroughasystemofgeneralrulesorspecificpermits(IowaCode4558.132"ExecutiveAgency,"and567lACChapter20.1-"ScopeofTitle").TheIDNRAirQualityBureauisstaffedwithspecialists thataredividedintofivesections:ComplianceandMonitoring,ConstructionPermits,EmissionsandSupport,OperatingPermits,andProgramDevelopment.ThesesectionsareunderthesupervisionoftheBureauChief.TheLegalServicesBureauprovideslegalcounseltoIDNR,theEPCandtheNaturalResourceCommission.FundingandauthoritytoimplementtheSIPisoutlinedinthediscussionon110(a)(2)(A).Theprogram'sbudgetisfundedbytheStateGeneralFund,EPAgrantsauthorizedunderCAAsections103and105,andTitleVfees.InformationwithregardtoTitleVfeesisprovidedundersection110(a)(2)(L).EPAconductsperiodicprogramreviewstoensurethatthestatehasadequateresourcesandfundingtoimplementtheSIP.(2)Section110(a)(2)(E)(ii)requiresthateachstateSIPmeettherequirementsofCAAsection128,relatingtorepresentationonstateboardsandconflictsofinterestbymembersofsuchboards.Section128(a)(1)requiresthatanyboardorbodywhichapprovespermitsorenforcementordersundertheCAAmusthaveatleastamajorityofmemberswho"representthepublicinterest"and"donotderiveanysignificantportionoftheirincomefrompersonssubjecttopermitsandenforcementordersundertheCAA."Section128(a)(2)requiresthatmembersofsuchaboardorbody,ortheheadofanagencywithsimilarpowers,adequatelydiscloseanypotentialconflictsofinterest.OnNovember2,2015,EPAapprovedIowa'sSIPrevisionaddressingsection128requirements(80FR67335).TheeffectivedateforthisapprovalwasDecember2,2015.ForadetailedanalysiswithregardtoIowa'slawsandregulationsthatsatisfytherequirementsofsection128,seeEPA'ssupportingdocuments(technicalsupportdocument)inthedocketforthatrulemaking.(3)WithrespecttoassurancesthatthestatehasresponsibilitytoadequatelyimplementtheSIPwhenitauthorizeslocalorotheragenciestocarryoutportionsoftheplan,thisisaddressedinIowaCode455B.l44,"LocalControlProgram,"4558.145,"AcceptanceofLocalProgram,"and4558.146,"CivilActionforCompliance-LocalProgramActions."IDNRdelegatedthedutiesfortheabatement,controlandpreventionofairpollutiontotheLinnCountyHealthDepartmentAirQualityDivisionandthePolkCountyBoardofHealth,AirQualityDivision,foreachofthecountiesin1989(54FR33526,August15,1989,and54FR33528,August15,1989,respectively).ThisauthorityisnottobeconstruedtolimitthepoweroftheIDNRdirectortoissuestatepermitsortotakeotheractionsnecessaryforthecontinuedproperadministrationoftheairpollutionprograms.IDNRandtheLinnandPolkCountylocalairprogramsannuallynegotiateandsigncomprehensivelettersofagreementorcontractswithIDNR.Programemphasisisplacedonthecollectionandassessmentofinformationregardingairquality,permittingofsourcesofairemissions,enforcementofemissionlimits,andtheattainmentandmaintenanceofambientairqualitystandards.WithregardtoPSDpermits,localprogramscandraftpermits,butIDNRretainstheauthoritytoissue PSDpermits.14FundingforactivitiesinthescopeofworkundereachcontractispaidforbyaportionoftheIDNR'sEPAgrantsundersections103and105oftheCAAandTitleVfees.TheLinnCountyandPolkCountylocalairprogramsregularlysubmitSIPrevisionstoIDNR,andIDNRreviewsandsubmitstoEPAsolocalairqualityrulesareasstringentastheIDNRSIP,andthereforefederally-approved.IDNRconductsbienniallocalairprogramreviewsandprovidescopiestoEPARegion7.Baseduponreviewofthestate'sinfrastructureSIPsubmissionsforthe1997and2006PM2.sNAAQS,andrelevantstatutoryandregulatoryauthoritiesandprovisionsreferencedinthesubmissionsorreferencedinIowa'sSIP,EPAbelievesthatIowahastheadequateinfrastructureneededtoaddresssection11O(a)(2)(E)forthe1997and2006NAAQSandisproposingtoapprovethiselementoftheMarch31,2008andJuly29,2013SIPsubmissions.(F)Stationarysourcemonitoringsystem:Section110(a)(2)(F)requiresstatestoestablishasystemtomonitoremissionsfromstationarysourcesandtosubmitperiodicemissionreports.EachSIPshallrequiretheinstallation,maintenance,andreplacementofequipment,andtheimplementationofothernecessarysteps,byownersoroperatorsofstationarysources,tomonitoremissionsfromsuchsources.TheSIPshallalsorequireperiodicreportsonthenatureandamountsofemissionsandemissions-relateddatafromsuchsources,andrequiresthatthestatecorrelatethesourcereportswithemissionlimitationsorstandardsestablishedundertheCAA.Thesereportsmustbemadeavailableforpublicinspectionatreasonabletimes.Thefederally-approvedSIP,567lACChapter25-"MeasurementofEmissions,"providesdetailedrequirementsforownersoroperatorsofstationarysourcestomonitoremissions.Stacktestingobservation(IowaCode455B.134(4)"Director--Duties-Limitations")ensuresthequalityofemissionsdataandusesthedatatodeterminecompliancewithemissionlimits.ThedataqualitymaybeassuredthroughfieldtestauditsandreviewingtestreportsbyIDNRpersonnel.Thefieldauditsconsistofmakingsurethecorrectmethodologyisfollowed,approvingon-sitevariations,ensuringthetestedemissionsourceisoperatinginanacceptablemanner,andansweringquestionsposedbythetestinggroupandthefacility.Thereportreviewverifiesthetestresultsbycheckingthecalculationsandlabanalysis.Astacktestsummaryisgeneratedandthecompliancestatusoftheemissionpointisdetermined.IDNRalsoreceivesandreviewsannualcompliancecertificationandsemi-annualmonitoringreportsrequiredundertheTitleVprogram(IowaCode455B.133(8),567lACChapter22-"ControllingPollution")InformationcollectedthroughemissioninventoriesaresubmittedtoEPAinaccordancewiththeFederalAirEmissionsReportingrule.IDNRusesthisinformationtotrackprogresstowardsmaintainingtheNAAQS,developingcontrolandmaintenancestrategies,identifyingsourcesandgeneralemissionlevels,anddeterminingcompliancewithemissionregulationsandadditionalEPArequirements.ThereportsareavailabletothepublicattheIDNR'sRecordsCenterduringnormalbusinesshourswithsomereportsavailableelectronically.Baseduponreviewofthestate'sinfrastructureSIPsubmissionsforthe1997and2006PM2.sNAAQS,andrelevantstatutoryandregulatoryauthoritiesandprovisionsreferencedinthesubmissionsorreferencedinIowa'sSIP,EPAbelievesthatIowahastheadequateinfrastructureneededtoaddresssection110(a)(2)(F)forthe1997and2006PM2.sNAAQSandisproposingtoapprovethiselementoftheMarch31,2008andJuly29,2013SIPsubmissions.15(G)Emergencyauthority:Section110(a)(2)(G)requiresSIPstoprovideforauthoritytoaddressactivitiescausingimminentandsubstantialendangermenttopublichealthorwelfareortheenvironment(comparabletotheauthoritiesprovidedinsection303oftheCAA),andtoincludecontingencyplanstoimplementsuchauthoritiesasnecessary.TheIDNRDirectorhastheauthoritytoissueanemergencyorderifanypersoniscausingairpollutionwhichrequiresimme.diateactiontoprotectpublichealthandsafety(IowaCo.de455B.139,"EmergencyOrders.").Administrativerules(567lACChapter26-"PreventionofAirPollutionEmergencyEpisodes")havebeendevelopedtopreventtheexcessivebuildupofaircontaminantsandhavebeenpreviouslyapprovedintotheSIP.Theseregulationsincludeguidancecriteriaforpollutantlevelsandcontrolstrategiesforalerts(tableIII),warnings (TableIV),andemergencies(TableV).Withrespecttocontingencyplanrequirementsofsection110(a)(2)(G),EPA's2013GuidancemadecitedearlierPM2.sguidancethatincludedrecommendationsforhowstatesmayelecttoapproachthisissue.InthatPM2.sguidance,EPArecommendedthat,whereastatecandemonstratethatPM2.slevelshaveremainedbelow140.4microgramspercubicmeter,thestateisnotrequiredtodevelopacontingencyplantosatisfyelement(G).EPAbelievesthatthisisareasonableinterpretationofthestatuteandaddressesthePM2.sNAAQSinawayanalogoustootherNAAQSpollutants.PM2.smonitoringdatafrommonitorsacrossthestatehaveshownthat24-hourPM2.svalueshavenotexceeded140.4microgramspercubicmeterinIowa.Therefore,IowaisnotrequiredtodevelopacontingencyplanforPM2.satthistime.Baseduponreviewofthestate'sinfrastructureSIPsubmissionsforthe1997and2006PM2.sNAAQS,andrelevantstatutoryandregulatoryauthoritiesandprovisionsreferencedinthesubmissionsorreferencedinIowa'sSIP,EPAbelievesthatIowahastheadequateinfrastructureneededtoaddresssection11O(a)(2)(G)forthe1997and2006PM2.sNAAQSandisproposingtoapprovethiselementoftheMarch31,2008andJuly29,2013SIPsubmissions.(H)FutureSIPrevisions:Section110(a)(2)(H)requiresstatestohavetheauthoritytorevisetheirSIPsinresponsetochangesintheNAAQS,availabilityofimprovedmethodsforattainingtheNAAQS,orinresponsetoanEPAfindingthattheSIPissubstantiallyinadequatetoattaintheNAAQS.Aspreviouslydiscussed,IowaCode455B.132"ExecutiveAgency,"designatesIDNRastheAgencytoprevent,abate,orcontrolairpollution.TheEPCisthegoverningcommissionoftheenvironmentalservicesportionofIDNR(IowaCode455A.6"Environmentalprotectioncommission-appointmentandduties").TheEPChasthedutyandauthoritytodevelopplansforabatement,controlandpreventionofairpollution,whichincludesemissionlimitsandschedulesforcompliance.AsoutlinedinIowaCode455B.133"Duties"1-4,theEPCalsoadopts,amends,orrepealsemissionlimitsrelatingtothemaximumquantitiesofaircontaminantsthatmaybeemittedfromanaircontaminantsource.IDNRisrequiredtoadopt,amendorrepealrulespertainingtotheevaluation,abatement,controlandpreventionofairpollutionwhichmaybenecessarytoensurethatIowacomplieswithsection110oftheCAA(IowaCode455B.133"Duties"(2)).ThisincludesarequirementtoreviserulesasnecessarytorespondtoarevisedNAAQSandtorespondtoEPAfindingsofsubstantialinadequacy.16InaccordancewiththeDirector'sduties,IowaCode4558.134"Director-Duties-Limitations"(14),meetingsaretobeconvenednolaterthanJune1duringthesecondcalendaryearfollowingtheadoptionofneworrevisedNAAQSbytheEPA,toreviewemissionlimitationsorstandardsrelatingtothemaximumquantitiesofaircontaminantsthatmaybeemittedfromanyaircontaminantsourceasprovidedinsectionIowaCode455B.l33"Duties",subsection4.IDNRhastradit,ionallyrequestedstakeholderinputwhenimplementing.aneworrevisedNAAQS.Thisapproachwascodifiedin2010inIowaCode4558.134"Director-Duties-Limitations"(14),whichinstructstheDNRtoconvenemeetingstoreviewemissionlimitationsorstandardsrelatingtothemaximumquantitiesofapollutantthatcanbeemittedfromasource.ByNovember1ofthesamecalendaryear,IDNRshallsubmitareporttothegovernorandthegeneralassemblyregardingrecommendationsforlawchangesnecessaryfortheattainmentoftheneworrevisedNAAQS.IDNRactsaccordinglyontheIowalegislaturerecommendations.Baseduponreviewofthestate'sinfrastructureSIPsubmissionsforthe1997and2006PM2.sNAAQS,andrelevantstatutoryandregulatoryauthoritiesandprovisionsreferencedinthesubmissionsorreferencedinIowa'sSIP,EPAbelievesthatIowahastheadequateinfrastructureneededtoaddresssection110(a)(2)(H)forthe1997and2006PM2.sNAAQSandisproposingtoapprovethiselementoftheMarch31,2008andJuly29,2013SIPsubmissions.(/)Nonattainmentareas:Section110(a)(2)(I)requiresthatinthecaseofaplanorplanrevisionforareasdesignatedasnonattainmentareas,statesmustmeetapplicablerequirementsofpartDoftheCAA,relatingtoSIPrequirementsfordesignatednonattainmentareas.Asnotedearlier,EPAdoesnotexpectinfrastructureSIPsubmissionstoaddresssubsection(I).ThespecificSIPsubmissionsfordesignatednonattainmentareas,asrequiredunderCAAtitleI,partD,aresubjecttodifferentsubmissionschedulesthanthoseforsection110infrastructureelements.Instead,EPAwilltakeactiononpartDattainmentplanSIPsubmissionsthroughaseparaterulemakinggovernedbytherequirementsfornonattainmentareas,asdescribedinpartD.(J)Consultationwithgovernmentofficials,publicnotification,PSDandvisibilityprotection:Section11O(a)(2)(J)requiresSIPstomeettheapplicablerequirementsofthefollowingCAAprovisions:(1)section121,relatingtointeragencyconsultationregardingcertainCAArequirements;(2)section127,relatingtopublicnotificationofNAAQSexceedancesandrelatedissues;and(3)partCoftheCAA,relatingtopreventionofsignificantdeteriorationofairqualityandvisibilityprotection.(1)Withrespecttosection121,theSIPshouldprovideaprocessforconsultationwithgeneralpurposelocalgovernments,designatedorganizationsofelectedofficialsoflocalgovernments,andanyFederalLandManagerhavingauthorityoverfederallandtowhichtheSIPapplies.IDNRhasthedutyandauthorityandresourcestomeettherequirementsofsection121includingconsultationfortransportationcontrols,airquality maintenanceplanrequirements,orpreconstructionreview.IDNRisalsorequiredtoprovideasatisfactoryprocessofconsultationwithlocalgovernment,designatedorganizationsofelectedofficialsoflocalgovernmentssuchascouncilofgovernments,andapplicablefederallandmanagerstocarryouttheconsultationrequirementsofsection121(4558.133(1,4)).17IDNRholdsquarterlyairqualityclientcontactmeetingstofocusoncurrentandupcomingairprogramissuesandchangestomeettheserequirements.Themeetingsprovideanopenforumforstakeholdersandthegeneralpublictodiscussnewstateandfederalairqualityrulesorairprogramdevelopmentsandareagoodsourceofinformationforanyonewhoworkswithorhasaninterestinactivitiesrelatedtoairquality.TheIDNR'sEnvironmentalServicesDivi.sion(ESD)holdsamonthlyclientcontactgrouppriortotheEPCmeetings.TheESDclientcontactgroupisanopenforumtodiscussissuesrelatedtoallofthedepartment'senvironmentalprograms.(2)Withregardtosection127oftheCAA,"PublicNotification,"IDNRhastheduty,authority,andresourcestomeettherequirementsofthissectiontonotifythepublicregardingexceedancesoftheNAAQSwhichincludepublicawarenessmeasureswhichcanbetakentopreventexceedances(455B.l33"Duties"(2),4558.134"Director-Duties-Limitations"(7)).Through455B.133(2)and455B.134(7),IowahastheauthoritytoaddressemergencyepisodesandprovidepublicnotificationofelevatedPM2.sandotherairpollutantlevels,andmeasureswhichcanbetakenbythepublictoreduceconcentrations.Inaddition,informationregardingairpollutionandrelatedissues,isprovidedonanIDNRwebsite,http://www.iowadnr.gov/InsideDNR/RegulatoryAir/MonitoringAmbientAir.aspx.(3)WithregardtoconsultationwithregardtoPSDandvisibilityprotection,IDNRprovidesacopyofaPSDpermittoEPApriortothestartofthepubliccommentprocess.PublicnotificationsofproposedPSDprojectsarepublishedintheDesMoinesRegister'sLegalPublicationsandinthelegalpublicationsectionofthenewspaperwiththelargestcirculationintheareaofthePSDsource.Thenotificationcontainsthenoticeofapplication;preliminarydetermination;degreeofincrementconsumption;opportunityforcommentatapublichearingaswellaswrittencomment.Acopyofthenoticeofpubliccommentsisthensenttotheapplicant;theregionalEPAoffice,theIDNRFieldOffices;andofficialsandagencieshavinganinterestintheproposedconstruction.Examplesofsuchofficialsandagenciesincludebutarenotlimitedtothefollowing:chiefexecutivesofthecityandcounty(i.e.,mayor,cityadministrator,boardofsupervisors,healthdepartment);anycomprehensiveregionallanduseplanningagency;stateorfederallandmanagerandanyIndiangoverningbodywhoselandsmaybeaffectedbytheemissionsfromthesourceormodification(567lACChapter33.3(17)-"SpecialRegulationsandConstructionPermitRequirementsforMajorStationarySources-PreventionofSignificantDeterioration(PSD)ofAirQuality.Withrespecttothevisibilitycomponentofsection11O(a)(2)(J),thePSDrequirementforthiselementarethesameasthoseaddressedunderelement(C)above.EPArecognizesthatstatesaresubjecttovisibilityandregionalhazeprogramrequirementsunderpartCoftheCAA.However,whenEPAestablishesorrevisesaNAAQS,thesevisibilityandregionalhazerequirementsunderpartCdonotchange.EPAbelievesthattherearenonewvisibilityprotectionrequirementsunderpartCasaresultofarevisedNAAQS.Therefore,therearenonewlyapplicablevisibilityprotectionobligationspursuanttoelementJafterthepromulgationofaneworrevisedNAAQS.Baseduponreviewofthestate'sinfrastructureSIPsubmissionsforthe1997and2006PM2.sNAAQS,andrelevantstatutoryandregulatoryauthoritiesandprovisionsreferencedinthesubmissionsorreferencedinIowa'sSIP,EPAbelievesthatIowahastheadequateinfrastructureneededtoaddresssection11O(a)(2)(J)forthe1997and2006PM2.sNAAQSandisproposingtoapprovethiselementoftheMarch31,2008andJuly29,2013SIPsubmissions.18(K)Airqualityandmodeling/data:Section110(a)(2)(K)requiresthatSIPsprovideforperformingairqualitymodeling,asprescribedbyEPA,topredicttheeffectsonambientairqualityofanyemissionsofanyNAAQSpollutant,andforsubmissionofsuchdatatoEPAuponrequest.TheIDNRhastheauthoritytoconductairdispersionmodelingtocompleteambientairimpactanalyses(IowaCode455B.133"AirContamiJ?.antSourceFundCreated"(1-2)).Airdispersionmodeli.nganalysesareusedtopredictgroundlevelambientairconcentrationsofpollutantsandcomparethoselevelstoambientairqualitystandards.Aspreviouslydiscussed,IDNRisprohibitedfromissuingapermitiftheprojectwouldresultinviolationofemissionlimitsorotherprovisionsinthefederally-approvedSIP.Airdispersionmodelingallowstheimpactsofthepollutionfromaproposedairpollutionsourcetobedeterminedbeforeasourceisconstructedormodified.TheairdispersionmodelingisconductedwithanEPA-approvedmodelthatusesmathematicalformulationsandinformationaboutthesourceemissionsalongwiththelocalterrainandmeteorologicaldatatopredictpollutantconcentrationsatlocationsselectedbytheuser.ModelingisconductedinaccordancewithDepartment'smodelingguidelinesandwithAppendixWof40CFRPart51.IDNRhastheauthoritytocollectionandreportdatatoEPA,uponrequest(IowaCode455B.l34"Director-Duties-Limitations"(5,7)).Baseduponreviewofthestate'sinfrastructureSIPsubmissionsforthe1997and2006andPM2.sNAAQS,andrelevantstatutoryandregulatoryauthoritiesandprovisionsreferencedinthesubmissionsorreferencedinIowa'sSIP,EPAbelievesthatIowahastheadequateinfrastructureneededtoaddresssection11O(a)(2)(K)forthe1997and2006PM2.sNAAQSandisproposingtoapprovethiselementoftheMarch31,2008andJuly29,2013SIPsubmissions.(L)PermittingFees:Section110(a)(2)(L)requiresSIPstorequireeachmajorstationarysourcetopaypermittingfeestothepermittingauthority,asaconditionofanypermitrequiredundertheCAA,tocoverthecostofreviewingandactinguponanyapplicationforsuchapermit,and,ifthepermitisissued,thecostsofimplementingandenforcingthetermsofthepermit.ThefeerequirementappliesuntilafeeprogramestablishedbythestatepursuanttoTitleVoftheCAA, relatingtooperatingpermits,isapprovedbyEPA.TheTitleVprogramrequirespermitholderstopayafeesufficienttocoverallreasonabledirectandindirectcostsrequiredtodevelopandadministertheTitleVprogramrequirements(42U.S.C.7661a).TheCAA(Section502(b)(3)(A))andtheCodeofFederalRegulations(40CFR70.9)outlinesexpectedTitleVprogramactivitiesandallowsstatessomeflexibilityinhowtheydesigntheirTitleVprogramsandfeeschedules.IDNRusestheEPAguidance,"MatrixofTitleV-RelatedandAirGrantEligibleActivities"todeterminewhichprogramactivitiesarenecessaryforthedevelopmentandimplementationofaTitleVoperatingpermitprogram(IowaCode455B.l33"Duties"(8)).InIowa,theTitleVfeeiscurrentlybasedonthefirst4,000chargeabletonsofeachregulatedairpollutantemittedeachyearfromeachmajorstationarysource.Nofeesarepaidforemissionsinexcessof4,000tonsofeachregulatedairpollutantoroncarbonmonoxideemissions.Feesaredepositedintotheaircontaminantsourcefund(IowaCode455B.133B"AirContaminantSourceFundCreated.")19EachMarch,theIDNRpresentsanestimatedorproposedbudgettocoverthereasonablecostofadministeringtheTitleVprogram,totheEPC.EachMay,theEPCsetstheTitleVfee.TheIDNRcalculatestheTitleVfeebydividingtheestimatedbudgetfortheupcomingstatefiscalyearbythechargeableemissionsasreportedbyfacilitieseachMarch31.TheannualfeemustbesetatorbelowthemaximumTitleVfee,whichcanbechangedthroughadministrativerulemaking(567lACChapter22.106(1)-"TitleVPermitFees").Basedreviewofthestate'sinfrastructureSIPforthe1997and2006PM2.sNAAQS,andrelevantstatutoryandregulatoryauthoritiesandprovisionsreferencedinthesubmissionsorreferencedinIowa'sSIP,EPAbelievesthatIowahastheadequateinfrastructureneededtoaddresssection11O(a)(2)(L)forthe1997and2006PM2.sNAAQSandisproposingtoapprovethiselementoftheMarch31,2008andJuly29,2013SIPsubmissions.(M)Consultation/participationbyaffectedlocalentities:Section110(a)(2)(M)requiresSIPstoprovideforconsultationandparticipationbylocalpoliticalsubdivisionsaffectedbytheSIP.IDNRhasdelegatedauthoritytoLinnCountyHealthDepartmentAirQualityDivisionandthePolkCountyPublicWorksAirQualityDivision(localprograms)toconductprogramsfortheabatement,.control,andpreventionofairpollutionintheirrespectivecounties(IowaCode4558.144"LocalControlProgram,"4558.145"AcceptanceofLocalProgram,"and455B.146"CivilActionforComplianceLocalProgram.")Thelocalprogramsarerequiredtomeetalltherequirementsof567lACChapter27-"CertificateofAcceptance"tokeeptheirstatus.Thelocalprogramsissuepennits,performcomplianceinspections,respondtoairqualitycomplaints,andmaintainanetworkofmonitorsforambientairineachrespectivecounty.Thelocalprogramshaveadoptedairqualityordinancesfortheirareasofjurisdictiontoimplementfederal, state,andlocalairpollutioncontrolrequirements.Theordinancescannotbelessstringentthanfederalorstatestandards;however,theycanbemorestringent.TheordinancesareincorporatedintotheSIPinthesamemannerthatthelACisincorporatedintheSIP.LocalprogramrulemakingsarealsopublishedontheIDNR'swebsiteandtheIowaAdministrativeBulletin.EachyearIDNRnegotiatesanagreementtopassthroughfederalfundsandprovideTitleVfundssufficienttoimplementtheprograms.Revenuefromlocalfeesystemsprovidesadditionalfundingandrequiredmatchtoaportionofthepassthroughfederalfunds.ThecontractsareapprovedbytheEPCforeachnewstatefiscalyear.IDNRconductsperiodicauditstoensurethelocalprogramsaremeetingallrequirementsofthecontract.BoththeIDNRandthelocalprograms'administrativeprocessesprovideapubliccommentperiod.Thecommentperiodprovidesanopportunityforthepublicandotherlocalpoliticalsubdivisionsthatmaybeaffectedbytheplantocomment.IDNRfrequently holdspublicmeetings,likethequarterlyairqualityclientcontactmeetings,ofwhichlocalprogramsparticipate.Theopenforum allowsallstakeholdersandthegeneralpublictodialogueonavarietyoftopics.TheIDNRalsocommunicatesusingpressreleases,onlinereportsandlistserves.20Baseduponreviewofthestate'sinfrastructureSIPsubmissionsforthe1997and2006PM2.sNAAQS,andrelevantstatutoryandregulatoryauthoritiesandprovisionsreferencedinthesubmissionsorreferencedinIowa'sSIP,EPAbelievesthatIowahastheadequateinfrastructureneededtoaddresssection11O(a)(2)(M)forthe1997and2006PM2.sNAAQSandisproposingtoapprovethiselementoftheMarch31,2008andJuly29,2013SIPsubmissions.Submission1-1997PM2.siSIP(excludes110(a)(2)(D)(i)(I)prongs1and2-previouslyapproved).EPAisnotactinon110a2 iII4RecordofRulemakingIowaDeartmentofNaturalResourcesNoticeoflntendedActionFebruary22and25,2008PublicHearinMarch24,2008RuleackagereceivedbyEPAMarch31,2008ComletenessdeterminationSetember30,2008Submission2-2006PM2.siSIP:EPAisnotactingon110(a)(2)(D)(i)(I)prongs1and2,and110(a)(2)(D)(i)(II),prong4.RecordofRulemakingIowaDepartmentofNaturalResourcesNoticeofIntendedActionJune12,2013PublicHearingJuly15,2013EffectivedateofregulationsJuly23,2013RulepackagereceivedbyEPAJuly29,2013CompletenessdeterminationJanuary29,201421