MEMORANDUM 

UNITED STATES ENVIRONMENTAL PROTECTION AGENCY 

RESEARCH TRIANGLE PARK, NC 27711 

SEP '13 2013 

OFFICE OF 

AIR QUALITY PLANNING 

AND STANDARDS 

SUBJECT: Guidance on Infrastructure State Implementation Plan (SIP) Elements under Clean Air 

FROM: 

TO: 

Act Sections 110(a)(1) and 110(a)1r D I . 

Stephen D. Page, Director ~ \~ \ CvJ..A t-Lfr, 

Office of Air Quality Planning and Standards 

Regional Air Directors, Regions 1 - 10 

The purpose ofthis memorandum is to distribute non-binding guidance from the U.S. Environmental 

Protection Agency on the requirements of certain provisions of the Clean Air Act (CAA) titled, 

"Guidance on Infrastructure State Implementation Plan (SIP) Elements under Clean Air Act Sections 

110(a)(1) and 110(a)(2)." 

Sections 11 0( a)(l) and 11 0( a)(2) of the CAA direct each state to develop and submit to the EPA a plan 

that provides for the implementation, maintenance, and enforcement of the national ambient air quality 

standards (NAAQS). 1 Moreover, section 110(a)(l) requires that each state make a new SIP submission 

within 3 years after promulgation of a new or revised primary or secondary NAAQS, for approval into 

the existing SIP to assure that the SIP meets the applicable requirements for such new or revised 

NAAQS. This type of SIP submission is commonly referred to as an "infrastructure SIP." 

The attached guidance, developed with the benefit of extensive written comments from state and local 

air agencies on a draft version, provides advice on the development of infrastructure SIPs for the 2008 

ozone NAAQS, the 2010 nitrogen dioxide NAAQS, the 2010 sulfur dioxide NAAQS, and the 2012 fine 

particulate matter (PM2.5) NAAQS, as well as infrastructure SIPs for new or revised NAAQS 

promulgated in the future. This guidance does not address CAA section 110(a)(2)(D)(i)(I), which 

concerns interstate pollution transport affecting attainment and maintenance of the NAAQS. The EPA 

expects to issue guidance in the future with respect to section 110(a)(2)(D)(i)(I). 

Section 110(a)(1) directs each state to make an infrastructure SIP submission to the EPA within 3 years 

of promulgation of a new or revised NAAQS, 2 after reasonable notice and public hearing. 3 Section 

1 These CAA sections and this guidance may also apply, as appropriate under the Tribal Authority Rule in 40 CFR Part 49, to 

an Indian tribe that receives a determination of eligibility for treatment as a state for purposes of administering a tribal air 

quality management program under section llO(a) of the CAA. This memorandum and the guidance uses the term "air 

agency" to refer to a state or tribe that develops and submits an infrastructure SIP, except when quoting or paraphrasing a 

CAA section or EPA regulation that uses the term "state." 

2 The Administrator may specify a shorter period. 

lntemet Address (URL) • http://www.epa.gov 

Recycled/Recyclable • Printed wtth Vegetable Oil Based Inks on Recycled Paper (Minimum 25% Postconsumer) 
110(a)(2) specifies the substantive elements that infrastructure SIP submissions need to address, as 

appropriate, for EPA approval. Many of the elements listed in section 11 0( a)(2) relate to the general 

information and authorities that constitute the basic structural requirements for a SIP needed for an air 

agency's overall air quality management program to be effective- elements that have been required to 

be in place since the initial SIPs were submitted in response to the CAA of 1970. Other elements listed 

in section 110(a)(2) relate to SIP requirements that have been added in successive amendments to the 

CAA since 1970. Although the 110(a)(2) requirements do not explicitly distinguish among the different 

criteria pollutants or different NAAQS, the structural SIP provisions needed to meet these requirements 

may depend on the particular new or revised NAAQS whose promulgation has triggered the requirement 

for a new infrastructure SIP submission. For example, a new or revised NAAQS may be accompanied 

by new ambient monitoring requirements tailored to that NAAQS or new prevention of significant 

deterioration program requirements. Overall, the requirement for a new infrastructure SIP submission 

provides an opportunity for the air agency, the public and the EPA to review the basics of the air quality 

management program in light of each new or revised NAAQS. 

We acknowledge that air agencies continue to express concerns about the EPA's issuance oftimely 

guidance to assist their efforts to implement a new or revised NAAQS. Our goal in providing the 

attached guidance document is to provide air agencies with recommendations in order to develop 

infrastructure SIPs that will meet the CAA requirements for recently promulgated NAAQS. The EPA 

will work to assist air agencies in the development and completion of these infrastructure SIPs so they 

may be submitted as soon as possible. 

The attached guidance is also intended to provide comprehensive recommendations for infrastructure 

SIPs for new or revised NAAQS promulgated in the future. Our expectation is that this guidance will 

help to address the timeliness concerns expressed by air agencies and serve as guidance to address 

infrastructure SIP requirements for future NAAQS. As a result, the EPA intends that air agencies may 

continue to rely on this guidance for preparing infrastructure SIP submissions necessary for future 

NAAQS revisions, until such time as this guidance is supplemented or replaced by future guidance. 

Moreover, as air agencies and the EPA develop and act upon infrastructure SIP submissions through 

notice-and-comment rulemaking, the EPA anticipates that additional clarity will be provided about the 

best means to meet the statutory requirements. 

Although this guidance provides recommendations for the development and review of infrastructure 

SIPs for multiple NAAQS, we are not recommending whether an air agency should or should not make 

a single infrastructure SIP submission to address requirements for more than one NAAQS 

simultaneously. Air agencies should consult with the appropriate EPA Regional Office for advice 

regarding combining infrastructure SIP submissions for multiple NAAQS. 

Please share this guidance with the air agencies in your Region. 

For Further Information 

If you have any questions concerning this guidance, please contact H. Lynn Dail, at (919) 541-2363, 

dail.lynn@epa.gov, or Lisa Sutton, at (919) 541-3450, sutton.lisa@epa.gov. 

Attachment 

3 The EPA's rules provide that a public hearing must be offered by the air agency, but is only required if a request is made. 
&EPA 

Guidance on Infrastructure State Implementation 

Plan (SIP) Elements under Clean Air Act 

Sections llO(a)(l) and 110(a)(2) 

September 2013 
       	  
     
 
            
       

         

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