New York State' Department of Environmental Conservation

Assistant Commissioner

Office of Air Resources, Climate Change & Energy, 14l Floor

625 Broadway, Albany, New York 12233-1010

Phone:(518)402-8537 • FAX: (518) 402-854'1 x

Website: www.dec.ny.gov

Alexander B. Grannis

Commissioner

MAR 15 2010

Ms. Judith Enck -

Regional Administrator

United States Environmental Protection Agency

Region 2

290 Broadway, 26th Floor

New York, New York 10007-1866

Submission of New York State's Implementation Plan

for the Interstate Transport of PM2.5 Under Section 110(a)(2)(D)(i),

Infrastructure Assessment Under Sections 110(a)(l) and (2) of the Clean Air Act, and

Revisions to the "Air Pollution Episode Communication Handbook"

Dear Ms. Enck:

On behalf of the Governor of the State of New York, I am submitting for approval by the United

States Environmental Protection Agency (EPA) the "transport SIP" for particulate matter 2.5 microns or

less in size (PM2.5) as required under Section 110(a)(2)(D)(i) of the Clean Air Act. This State

Implementation Plan (SIP) revision is being provided to you to demonstrate that the interstate transport of

PM2.5 does not contribute significantly to nonattainment in. or interfere with maintenance by, any other

state with respect to any such national primary or secondary ambient air quality standard (NAAQS), or

interfere with measures required to be included in the applicable implementation plan for any other state

to prevent significant deterioration of air quality or to protect visibility.

Additionally, pursuant to sections 110(a)(l) and (2) of the Clean Air Act (CAA), states are

. required to submit an "infrastructure" demonstration showing that New York's air program addresses

basic SIP requirements related to the attainment of new or revised NAAQS, including emission

inventories, monitoring and modeling to assure attainment, maintenance and enforcement of the

standards. Section 110(a)(l) contains the general requirements for submitting a SIP after promulgation of

a new or revised NAAQS. Section 110(a)(2) contains specific elements to be included in these plans.

Mr. Harriett's September 25, 2009 "Guidance on SIP Elements Required Under Sections 110(a)(l) and

(2) for the 2006 24-Hour Fine Particle (PM2.5) National Ambient Air Quality Standards (NAAQS)" has

been considered in the development of the Infrastructure SIP submission.

Finally, New York is submitting revisions to the State's "Air Pollution Episode Communication

Handbook." This document is used by the Department to implement 6 NYCRR Part 207, Control

Measures for Air Pollution Episode by requiring owners of a significant air contamination source to

submit a proposed episode action plan to the Department within 90 days of a request by the Department.

These plans are required to contain detailed steps that will be taken by the air contamination source owner

to reduce air contaminant emissions during each stage of an air pollution episode. The revisions in this

plan are specifically intended to implement the requirements of Clean Air Act Section 110(a)(2)(G),

Emergency Powers and Contingency Plans, as they apply to New York State by incorporating the'federal
Air Quality Index and associated Significant Harm Levels for the criteria pollutants as alert levels for

pollution episodes. •

These documents have undergone the required public review process in which a public hearing

and the opportunity for public comment were held. The public hearing took place on January 5, 2010.

The following documents are enclosed:

1 . Copies of the Public Notices published in Newsday, New York Post, The Journal News and the

Environmental Notice Bulletin on December 2, 2009.

2. Legislative Hearing Transcript

3. Responsiveness Summary

4. New York's Implementation Plan for the Interstate Transport of PM2.5 Under Section

5. New York's Infrastructure Assessmeait Under Sections 110(a)(l) and (2) of the .Clean Air Act,

and

6. Revisions to the Department's "Air Pollution Episode Communication Handbook"

Should you have any questions regarding this submission., please do not hesitate to contact Mr.

David J. Sh'aw, Director of the Department's Division of Air Resources at (5 1 8) .402-8452 with any

questions you may have.

Sincerely,

J. Jared Snyder

Assistant Commissioner '

Office of Air Resources, Climate Change and Energy

Enclosure

cc: .D. Shaw

J. Higgins

R. Sliwinski

R. Ruvo, EPA Region 2

R. Werner, EPA Region 2
Department of Environmental Conservation

Division of Air Resources

Alexander B. Grannis

Commissioner

NEW YORK

STATE IMPLEMENTATION PLAN

FOR THE

INTERSTATE TRANSPORT OF PM2.5

UNDER SECTION 110(a)(2)(D)(i)

&

INFRASTRUCTURE ASSESSMENT

UNDER SECTIONS 110(a)(1) AND (2)

OF THE CLEAN AIR ACT

FINAL FEBRUARY 2010

New York State Department of Environmental Conservation

David A. Paterson, GOVERNOR Alexanders. Grannis, COMMISSIONER
NEW YORK STATE DEPARTMENT OF ENVIRONMENTAL CONSERVATION'S

"TRANSPORT SIP" ADDRESSING THE SATISFACTION OF OBLIGATIONS

UNDER SECTION 110(a)(2)(D)(i) OF THE CLEAN AIR ACT

FOR THE 2006 PM2.5 NATIONAL AMBIENT AIR QUALITY STANDARD

Introduction:

EPA promulgated a 24-hour National Ambient Air Quality Standards (NAAQS) for

fine particuiate matter 2.5 microns or less in size (PM2.5) on. September 21, 2006.

Section 110(a)(1) requires that states submit a state implementation plan (SIP) within

three years 'after the promulgation of a NAAQS demonstrating that they meet their

Section 110(a)(2)(D)(i) transport obligations under the Clean Air Act (CAA). This

includes showing that its emissions do not contribute significantly to another state's

nonattainment, or interfere with maintenance of the national primary or secondary

ambient air quality standard, or interfere with measures required in the applicable SIP

for another state designed to "protect visibility" for the PM2.5 NAAQS until regional haze

SIPs are submitted.

This "transport SIP" revision is being provided to EPA to address these

requirements and, as outlined in EPA's August 15, 2006 guidance from Mr. William

Harnett providing guidance on the content of this submission, affirms the following:

• That the transport of PM2.5 does not contribute significantly to nonattainment in,

or interfere with maintenance by, any other state with respect to any such

•national primary or secondary ambient air quality standard, or interfere with

measures required to be included in the applicable implementation plan for any

other state..

• That the PSD and NNSR program in New York addresses the requirement that

new or modified sources will not cause or contribute.to air pollution in excess of

the NAAQS for PM2.5,' and'

• That no source in New York can be shown to interfere with measures intended to

protect visibility in other states. •

• Transport of PM2.5:

On April 29, 2008, the Department submitted the attainment SIP for the 1997

annual PM2.5 NAAQS. This SIP contains the strategies and measures that will be

implemented in New York so that the 1997 annual PM2.5 NAAQS will be met by the

2010 deadline. The emission reduction measures contained in this SIP can be

expected to help to achieve compliance with the 24-hour PM2.5 NAAQS as well. These

measures include:

• Subpart 227-2 Reasonably Available Control Technology (RACT) for Oxides of

Nitrogen (NOx)

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• Subpart 220-1 Portland Cement Plants (NOx RACT)

• Subpart 220-2 Glass Manufacturing (NOx RACT)

Among the other measures included in the annual PM2.5 SIP that will require

emission reductions is the Clean Air Interstate Rule (CAIR), promulgated in March of

2005, or its replacement program. In this rule, EPA intended to control and reduce the

CAIR states' emissions of PM2.5 precursors that significantly contribute to, or interfere

with, maintenance requirements, and claimed that CAIR would provide sufficient

emission reductions to alleviate transport issues. On July 11, 2008, the D'.C. Circuit

Court of Appeals issued a ruling that would have, vacated CAIR. EPA appealed the

ruling on September 24, 2008. On December 23; 2008, instead of vacating the rule, the

CAIR.regulations were remanded to the EPA to address deficiencies identified^by the

court.

While the CAIR program rules are being revised, the original requirements

remain in effect at the federal level. Additionally, New York has enacted CAIR program

requirements at the state level through the promulgation of 6 NYCRR Part 243, CAIR

NOx Ozone Season Trading Program, Part 244, CAIR NOx Annual Trading Program

and Part 245, CAIR SO2 Trading Program. While EPA's September 25, 2009

"Guidance on SIP Elements Required Under Sections 110(a)(1)and (2) for the 2006 24-

Hour Fine Particle (PM2.5) National Ambient Air Quality Standards (NAAQS)" states

that the federal CAIR program cannot be used to demonstrate that a state's emissions

do not significantly contribute to nonattainment of the NAAQS in any other state or

interfere with maintenance, the continuing applicability of GAIR program requirements at

both the federal and state levels will persist in requiring the same emission reductions

previously represented by EPA as sufficient to meet section 110(a)(2)(D)(i)

requirements.

While CAIR does not directly address the 24-hour PM2.5 NAAQS, it addresses

the precursors of PM2.5. Therefore, its implementation can be expected to have the

same protective effect on the 24-hour NAAQS as it would on the annual standard. In

the September 25, 2009 guidance, EPA states its intention to complete a rule to

, address interstate transport in the Eastern United States. EPA goes on to say "that new

rule will assist states with obligations to address interstate transport that significantly

contributes to nonattainment in another state." Since this new rule will not be done in

time to'address the. requirements of section 110(a)(2)(D) for the 2006 24-hour PM2.5

NAAQS, New York is committing to the adoption of the measures identified by EPA as

needed to address interstate transport for the 2006 24-hour PM2.5 NAAQS upon EPA's

completion of this rulemaking.

In addition to measures specifically intended to address PM2.5 emissions along

with its precursors, New York submitted an attainment SIP for the 1997 8-hour ozone

NAAQS for the New York Metropolitan nonattainment area on February 8, 2008. The

reduction in emissions of the precursors of PM2.5 proposed in this SIP can also be

expected to assure that New York does not contribute significantly to, or interfere with
the maintenance of, the applicable NAAQS by any other state. These measures

include:

• Subpart 227-2 Reasonably Available Control Technology (RACT) for Oxides of

Nitrogen (NOx)

• Subpart 220-1 Portland Cement Plants (NOx RACT)

• Subpart 220-2 Glass Manufacturing (NOx RACT)

Cumulatively, all of the above measures are expected to be adequate to meet

the requirements of section 110(a)(2)(D) based on EPA's prior CAIR assessment,.the

supporting effects of New York's permitting programs, the effects of emission reductions

propo.sed in New York's PM2.5 SIP for the annual NAAQS and 8-hour ozone SIP, and

the state NNSR/PSD program discussed below will ensure this.

?

New York's Sources Do Not Cause or Contribute to Air Pollution in Excess of the

NAAQS

EPA's guidance document indicates that, in demonstrating that sources in the

state do not cause or contribute to air pollution in excess of the NAAQS, each state

must make a SIP submission confirming that major sources in'the state are currently

subject to PSD and NNSR permitting programs that implement the PM2.5 standards.

For PM2.5, states must confirm that major sources are subject to PSD and NNSR

permitting programs implemented according to EPA guidance that calls for the use of

PM10 as a PM2.5 surrogate.

On March 12, 2009, New York submitted 6 NYCRR Part 231, New Source

Review for New and Modified Facilities, to EPA for approval and inclusion in the SIP.

This regulation meets the CAA section 110(a)(2)(D)(i) and 110(a)(2)(J) requirements for

the application of PSD and New Source Review requirements in New York and is

presently in effect in New York. The application of these requirements ensures that

major sources of PM2.5 in the state are currently subject to PSD and NNSR permitting

programs that implement the PM2.5 standard as suggested by the .guidance.

With state-level PSD and NNSR requirements for PM2.5 now in effect in New

York, the Department meets the requirement ensuring that major sources, in this state

will not cause or contribute to air pollution in excess of the NAAQS.

Interference with Visibility Impact Reduction Measures:

The Department is presently in the process of preparing a Regional Haze SIP for

submission to EPA. This document was produced in cooperation with other states and

federal land managers through the Mid-Atlantic Northeast Visibility Union (MANE-VU)

which developed a control strategy that will result in the reduction in visibility impairment

in federal Class I areas by reducing the emission of particulate matter, including PM2.5,

and its precursors. The improvement in visibility is projected to follow the "glide path"

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that is expected to return visibility conditions to the preindustrial state by 2064. This

strategy includes a number of control measures to which New York has committed that

will enable New York to meet its obligation to avoid any interference with measures in

the applicable. SIP for another state designed to "protect visibility" or the PM2.5 NAAQS.

in addition to the control measures referred to above for the PM2.5 and Ozone

SIPs, New York is committing to. reduce the sulfur-in-fuel limits for stationary sources

through the adoption of revisions to Subpart 225-1, Fuel Composition and Use - Sulfur

Limitations. The regional haze SIP also includes a commitment to reduce sulfur dioxide

emissions by 90 percent from certain electricity generating units identified by MANE-VU

that contribute over half of the mass of sulfate and 70 to 80 percent of the visibility

impairment or equivalent measures. This commitment includes the over 123,000 tons

of annual emission reductions being realized by the enforceable reductions being

realized through the implementation of the controls resulting from the AES and

NRG/Niagara Mohawk PSD cases settlements.

At this time, the federal land,managers of the Class I areas whose visibility may

be impacted by sources in New York State have completed their review, and the

required public hearing for the submission will be held shortly prior to submission to

EPA. With the submission of its regional haze SIP, New York will have met the

requirements of CAA sections 110(a)(2)(D)(i)(ll) and 110(a)(2)(J) and EPA's August

2006 guidance for the demonstration that the state's PM2.5 SIP does not interfere with

a visibility impact reduction measure being taken by other states.
NEW YORK STATE DEPARTMENT OF ENVIRONMENTAL CONSERVATION'S

CLEAN AIR ACT SECTION 110(a) "INFRASTRUCTURE" ASSESSMENT

FOR THE 2006 24-HOUR NAAQS

Introduction:

Pursuant to CAA sections 110(a)(1) and (2), states are required to meet basic

SIP requirements related to the attainment of new or revised NAAQS, including those

related to emission inventories, monitoring and modeling to assure attainment,

maintenance and enforcement of the standards. SIPs meeting the requirements of CAA

sections 1 1 0(a)(1 ) and (2) must be submitted within three years after promulgation of a

new or revised standard.

In accordance with EPA guidance dated October 2, 2007, this submission

addresses each of the required infrastructure elements of CAA section 110(a)(2), and

affirms that New York State's SIPs meet the requirements of CAA sections 1 1 0(a)(1 )

and (2). The required elements are described in the' following sections of the CAA:

• Enforceable Emission Limitations and Other Control Measures (110(a)(2)(A))

• Ambient Air Quality Monitoring, Compilation, Analysis and Reporting .

Enforcement and Stationary Source Permitting (1 1 0(a)(2)(C)) .

• - Interstate Transport (11 0(a)(2)(D))

.• . Assurance of Adequate Resources (110(a)(2)(E))

• Stationary Source Monitoring System and Reporting (110(a)(2)(F))

• Emergency Powers and Contingency Plans (1 1 0(a)(2)(G))

Authority for SIP Revisions for Revised'NAAQS (110(a)(2)(H))

• Authority for SIP Revisions for New Nonattainment Areas (110(a)(2)(l))

• • Consultation, Public Notification and Prevention of Significant Deterioration

(PSD)/Visibility (110(a)(2)(J))

• Air Quality Monitoring and Reporting (110(a)(2)(K))

Permitting Fees (110(a)(2)(L))

• f Consultation/Participation with Affected Local Entities (1 10(a)(2)(M))

Infrastructure SIP Requirements

Section 110(a) Requirements

The New York State Department of Environmental Conservation (Department)

has addressed -the specific regulation of PM2.5 in several, ways. One of these was

through a revision to 6 NYCRR Part 200. In this revision, subdivision 200.1 (av) was

amended to include the new fine particulate matter (i.e., PM2.5) NAAQS nonattainment

area designation and geographic boundary as promulgated by EPA on January 5, 2005.

On March 12,2009, New .York submitted 6 NYCRR Part 231, New Source.

Review for New and Modified Facilities, to' EPA for approval and inclusion in the SIP.

This regulation meets the federal requirements for the application of PSD and New

5
Source Review requirements in New York and is presently in effect in New York. The

application of these requirements ensures that major sources of PM2.5 in the state.are

currently subject to PSD and NNSR permitting programs that implement the PM2.5

standard as suggested by the guidance. With PSD and NNSR requirements for PM2.5

now in'effect in New'York, the Department meets the requirement ensuring that major

sources in this state will not cause or contribute to air pollution in excess of the NAAQS

in New York or other states.

Additionally, new control measures have been provided for in New York's April •

29, 2008 PM2.5 SIP submission which contains the strategies and measures that will be

implemented in New York so that the 1997 NAAQS will be met by the 2010 deadline.

This SIP is presently being revised in response to EPA comments. With rules already in

place along with the changes described in the next section, New York State has

adequate authority to promulgate and enforce necessary rules, and programmatic

"infrastructure" to implement the 2006 24-hour PM2:5 NAAQS.

Enforceable Emission Limitations and Other Control Measure's (11Q.(a)(2)(A))

CAA section 110(a)(2)(A) requires SIPs to include enforceable emission limits

and other control measures', means or techniques, schedules for compliance and other

related matters. On April 29, 2008, the Department submitted the attainment SIP for the

1997 annual PM2;5 NAAQS. This SIP contains the strategies and measures that will be

implemented in New York so that the 1997. annual NAAQS will be met by.the 2010

deadline. In the PM2.5 SIP, a number of state programs and regulations are anticipated

to be put in place that will provide the necessary enforceable emission limitations and

other control measures for PM2..5 in New York State. Other programs and regulations

that address PM10 or PM generally are already in effect. Although not specific to

PM2.5, these programs and regulations will reduce the ambient levels of PM2.5 by

reducing its emissions along with the emissions of PM10,.PM-and its precursors,

resulting in the enforceable emission limits and other control measures necessary to

address the 2006 PM2.5 NAAQS.

In addition to state regulations, a number of enforceable federal programs are

aiso in place that will reduce PM2.5 ambient levels by controlling the emissions of PM •

and its precursors. These requirements are applied through New York State's federallyapproved Title V program and 6 NYCRR Part 201 which provide the vehicle for

enforceability of the requirements that apply to stationary sources subject to the

appropriate state-and federal regulations.

Ambient Air Quality Monitoring. Compilation. Analysis and Reporting f110(a)(2)fB))

CAA section 110(a)(2)(B) requires SIPs to include provisions to provide for the

establishment and operation of ambient air quality monitors, collecting and analyzing

ambient air quality data, and making these data available to EPA upon request. This

information is included in the various SIPs that have been submitted to EPA. Most

recently related to PM2.5, this provision was made in the April 2008 SIP for the annual

PM2.5 standard (section 4.1).

• - 6
J f

The Department measures air pollutants at 80 sites across the state, using

continuous and/or manual instrumentation. These sites are part of the federallymandated National Core Sites (Ncore) multi-pollutant monitoring network and the State

and Local Air Monitoring Stations (SLAMS) Network. Real-time direct reading

measurements include gaseous criteria pollutants (ozone,'Sulfur dioxide, oxides of

nitrogen, carbon monoxide), PM2.5 (fine particulate with a diameter less than 2.5

microns), and meteorological data. Filter-based PM2.5, lead, and acid deposition

samples are collected manually and shipped to the laboratory for analysis. The

information obtained is compared to the NAAQS and-is used to determine the

attainment status of areas where these pollutants are monitored.

The near real-time data for gaseous pollutants and PM2.5 are used for Air

Quality .Index (AQI) projection, and can be accessed by interested public on the DEC

web site. The Department also provides real-time data to EPA for AIRNOW live national

ozone and PM10 and PM2.5 mapping. All ambient measurements undergo data

validation and are subsequently submitted to EPA's Air Quality System (AQS) for public

access.

The Department commits to continue to operate an air quality monitoring network

that complies with EPA requirements and to submit these data to -EPA's Air Quality

System. ' • .

Enforcement and Stationary Source Permitting (110(a)(2)fC)V

CAA section 110(a)(2)(C) requires states to include a program providing for

enforcement of all SIP measures and the regulation of construction of new or modified

stationary sources to meet PSD and NNSR requirements.

Environmental Conservation Law (ECL) §19-0305 authorizes the commi-ssioner

of the Department to enforce the codes, rules and regulations of the Department

established in -accordance with this article. The SIP is a compilation of rules and

regulations that are promulgated to achieve attainment of a NAAQS. Therefore, the

Department has the authority to enforce all SIP measures.

On March 12,2009, New York submitted 6 NYCRR Part 231, New Source

Review for New and.Modified Facilities, to EPA for approval and inclusion in the SIP.

This regulation meets the federal requirements for the application of PSD and New *

Source Review requirements in New York and is presently in effect in New York. The

application of these requirements ensures that major sources of PM2.5 in the state

meet the requirements of the federal PSD and NNSR permitting programs as they apply

to PM2.5. With. PSD and NNSR requirements for PM2.5 now in effect in New York, the

Department meets the requirement ensuring that major sources in this state wiil not

cause or contribute to air pollution in excess of the NAAQS in New York or other states.

New York ensures that all applicable federal PSD requirements which are

included in PSD permits are incorporated into Title V operating permits, and that all

7
federally-enforceable requirements are applied and enforced. New York therefore

affirms that the current NNSR and PSD permitting programs remain in effect and

continue to apply to the state's major stationary sources, and that the requirements from

these programs are federally enforceable,

Interstate Transport (110fa)f2-)(D))

CAA section 110(a)(2)(D) requires SIPs to include provisions prohibiting any

source or other type of emissions activity in one state from contributing significantly to

nonattainment, or interfering with maintenance, of the NAAQS in another state, or from

interfering with measures required to prevent significant deterioration of air quality or to

protect visibility in another state. In accordance with EPA guidance issued on August

15, 2006, states may continue to rely on their existing NNSR and PSD permitting

programs to prevent significant deterioration of air quality within their own -boundaries

and in adjacent states. New York affirms that the currently-effective NNSR permitting .

program as well as the revised PSD requirements contained in 6 NYCRR Part 231

remain in effect, and continue to apply to the state's major stationary sources.

An integral part of the effort to reduce interstate transport of PM2.5 and other

pollution was embodied in the Clean Air Interstate Rule (CAIR). CAIR was intended to

reduce particulate emissions through the control of oxides of nitrogen and sulfur oxides

from large electrical generating units (EGLJs). On July 11, 2008, the D.C. Circuit Court

of Appeals issued a ruling that would have vacated CAIR. EPA appealed the ruling on

September 24, 2008. On December 23, 2008, instead of vacating the rule, the CAIR

regulations were remanded to EPA to address deficiencies identified by the court.

Although EPA's September 25, 2009 "Guidance on SIP Elements Required

Under Sections 110(a)(1) and (2) for the 2006 24-Hour Fine Particle (PM2.5) National

Ambient Air Quality Standards (NAAQS)" indicates that the federal CAIR program

cannot be used in their infrastructure assessment, the continued applicability of the

CAIR program on the federal level as well as through state CAIR rules presently in

effect (6 NYCRR Part 243, CAIR NOx Ozone Season Trading Program, Part 244, CAIR

.NOx Annual Trading Program and Part 245, CAIR SO2 Trading Program) are expected

to reduce emissions according to the schedule and quantity that EPA previously

contended would prevent states from contributing significantly to nonattainment, or

interfering, with maintenance, of the NAAQS in another state, or from interfering with

measures required to prevent significant deterioration of air quality or to protect visibility

in another state. Thus, its use in the present infrastructure demonstration continues to

be valid. Further, it should be noted that although CAIR does not directly address the

24-hour PM2.5 NAAQS, it addresses the precursors of PM2.5 and so its implementation

can be expected to have the same protective effect on this NAAQS as it would on the

annual standard. Therefore, New York's submission of a SIP satisfying CAIR's.

requirements on March 29, 2007.and the administration of 6 NYCRR Parts 243, 244 .

and 245 addresses the section 110(a)(2)(D)(i) requirement.

Furthermore, in the September 25, 2009 guidance, EPA states.its intention to

complete a rule to address interstate transport in the Eastern United States. EPA goes
on to say "that new rule will assist states with obligations to address interstate transport

that significantly contributes to nonattainment in another state." Since this new rule wili

not be done in time to address the requirements of section 110(a)(2)(D) for the 2006 24-

hour PM2.5 NAAQS, New York is committing to the adoption of the measures identified

by EPA as needed to address interstate transport for the 2006 24-hour PM2.5 NAAQS

upon EPA's completion of this rulemaking. c

On April 29, 2008, the Department submitted a draft attainment SIP to EPA for

the 1997 annual PM2.5 NAAQS. This SIP contains the'strategies and measures that

will be implemented in New York so that the 1997 NAAQS will be met by the 2010

deadline. EPA has commented on this submission, and the SIP is presently being

revised in response to these comments. However, the emission reduction measures

contained in this SIP can be expected to help to achieve compliance with the 24-hour

PM2.5 NAAQS in addition to the annual PM2.5 NAAQS, and play a role in preventing

interference with, or maintenance of, attainment with the 24-hour standard. These

measures include:

• Subpart 227-2 Reasonably Available Control Technology (RACT) for Oxides of

Nitrogen (NOx)

• Subpart 220-1 Portland Cement Plants (NOx RACT)

• Subpart 220-2 Glass Manufacturing (NOx RACT)

In addition to measures specifically intended to reduce PM2.5 emissions along

with its precursors, New York submitted an attainment SIP for the 1997 ozone NAAQS

for the New York Metropolitan nonattainment area on February 8, 2008. The reduction

in particulate emissions associated with the control of oxides of nitrogen under these

SIPs can also be expected to prevent New York from contributing significantly to

nonattainment in, or interfere with maintenance of, the applicable NAAQS by any other

state. . .

All of the above measures, taken together, will be more than adequate to meet

the requirements of section 11Q(a)(2)(D) based on EPA's prior CAIR assessment and

the supporting effects of New York's NNSR and PSD, and permitting programs.

Additionally, the effects of emission reductions proposed in New York's PM2.5 SIP for

the annual NAAQS and 8-hour ozone SIP will ensure this.

Assurance of Adequate Resources (110(a)f2)(E))

CAA section 110(a)(2)(E) requires states to provide (i) necessary assurances

that the state will have adequate personnel', funding and authority under state law to

carry out its SIP, (ii) requirements that the state comply with the requirements

respecting state boards under CAA section 128, and (iii) necessary assurances that,

where the state has relied on a local or regional government, -agency, or instrumentality

for the implementation of any plan provision, the state has responsibility for ensuring

adequate implementation of such plan provision.

9
I *

The Division of Air Resources (DAR) receives both operating and capital funding.

Operating funds are allocated to DAR annually and are used for daily administrative •

expenses. These expenses include salaries, fringe benefits, and indirect and nonpersonnel services such as travel, supply and equipment costs. Indirect costs are, in

turn, allocated!to other Departments or divisions that support DAR activities. DAR is

allocated operating funds from five sources: General Fund, Utility. Environmental

Regulatory Account, Co-operative Agreements (i.e., CAA section 103 and 105 grants)

and the Clean Air Fund, which is comprised of the Title V and Mobile Source Accounts.

Capital funds are allocated to DAR at the discretion of the New York State

legislature and are used for the financing or acquisition of capital facilities such as the

construction of an air monitoring site. DAR is allocated Capital funds from three

sources: General Fund, Mobile Source Account and Rehabilitation and Improvement.

Section 110(a)(2)(E)(H) requires that the state comply with the requirements

respecting state boards under CAA section 128. New York's Public Officer's Law (POL)

satisfies these requirements. Specifically, POL section 74(2) states: "No officer or

employee of a state agency, member of the legislature or legislative employee should

have any interest, financial or otherwise, direct or indirect, or engage in any business or

transaction or professional activity or incur any obligation of any nature, which is in

substantial conflict with the proper discharge of his duties in the public interest." POL

74(3)(e) states: "No officer or employee of a state agency, member of the legislature or

legislative employee should engage in any transaction as representative or agent of the

state with any business entity in which he has a direct or indirect financial interest that

might reasonably tend to conflict with the proper discharge of his official duties."

Finally, the Department confirms that where New York State has relied on a local

or regional government, agency, or instrumentality for the implementation of any plan

provision, the state has responsibility for ensuring adequate implementation of such

plan provision. .

Stationary Source Monitoring System and Reporting (110(a)(2)(F^

CAA section 110(a)(2)(F) requires states to establish a system to monitor

emissions from stationary sources and to submit periodic emissions reports.

Authority for this provision is provided under Article 19 of the ECL. In particular,

ECL section 19-0311 [Operating Permit Program] states in section 3 that operating

permits issued pursuant to this section'shall include, among other things, "provisions for

detailed monitoring, record-keeping and reporting, including requirements that records

be kept for five years, and that monitoring records be submitted to the Department at

least every six months ..." This requirement is mirrored in 6 NYCRR Part 20'1-6.5(b),

which requires monitoring of emissions, record-keeping and reporting in permit

conditions that are included in all Title V permits for major stationary sources.

The Department constructs statewide emissions inventories in order to develop

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control strategies for pollutants from facilities and other stationary sources. Stationary

source emissions inventories are based on actual emissions data submitted by major

regulated facilities through annual emission statements, and calculated emissions from

minor stationary sources based on area source procedures established by EPA. PM2.5

emissions (along with emissions of other key pollutants) are submitted to EPA through

the Consolidated Emissions Regulatory Report (CERR) for uploading to EPA's National

Emission Inventory.

Emergency Powers and Contingency Plans (110fa)(2)fG))

CAA section 110(a)(2)(G) requires states to provide for authority to address

activities causing imminent and substantial endangerment to public health, including

contingency plans to implement the emergency episodes in their SIPs. Articles 3 and 19

of the ECL provide this authority to the Department.

To further prevent and control air pollution emergencies, the Department adopted

a regulation at 6NYCRR Part 207, Control Measures For Air Pollution Episode, which

implements ECL section 3-0301. EPA approved this regulation as part of the New York

SIP (46 FR 55690). Among other things, 6 NYCRR Part 207 requires persons who own

a significant air contamination source to submit a proposed episode action plan to the

commissioner, and enable the commissioner to designate air pollution episodes which

trigger the action plans. The Department also maintains an Episode Action Plan with

guidelines and protocols to be followed in case of an air pollution emergency. The

Department's Episode Action Plan has been updated to reflect the PM2.5 Significant

Harm Levels (SHLs) proposed by EPA on January 15, 2009 along with revised values

for ozone episodes.

The Department's emergency action plan requires significant air contamination

sources to commit to a plan containing detailed steps which will be taken by the air

contamination source owner to reduce air contaminant emissions during each stage of

an air pollution episode. Additionally, when weather conditions and/or the concentration

of an air contaminant or contaminants are such that immediate action is necessary to

prevent further increases in air contamination or damage to life, property or

environmental quality, the Department designates by order that a "Forecast," "Alert I,"

"Alert II" or "Emergency" stage of an air pollution episode exists. In exercising such

prevention and control, the Department and the commissioner may limit the

consumption of fuels and use of vehicles, curtail or require the cessation of industrial

processes and limit or require the cessation of incineration and open burning, and take

any other action the commissioner deems necessary to prevent and/or control air

pollution emergencies.

With the provision of the above measures in New York, and the incorporation of

the SHLs proposed by EPA on January 15, 2009, the requirements of CAA section

110(a)(2)(G) are being met.

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Authority for SIP Revisions for Revised NAAQS f1

CAA section 110(a)(2)(H) requires states to have the authority to revise their

SIPs in response to changes in the NAAQS, availability of improved methods for

attaining the NAAQS, or in response to an EPA finding that the SIP is substantially '

inadequate. J

Revisions to the SIP are authorized by Article 19 and sections 3-0301, 19-0103,

19-0301, 19-0303 and 19-0305 of the ECL. Article 19 of the ECL was adopted to'

protect New York's air resources from pollution and to put into effect the policy of the

state to maintain a reasonable degree of purity of the air resources, consistent with the

public health and welfare and the industrial development of the state. To this end, the

Legislature gave the Department specific powers and duties, including the power to

promulgate regulations for preventing, controlling, or prohibiting air pollution. The

Department also has the specific authority to regulate motor vehicle exhaust and

approve aircontaminant control systems as well as regulate fuels. Section 71-2103

provides general enforcement authority for the air regulations. Section 71-2105

provides criminal enforcement authority. Thus, New York has^the authority to revise

SIPs and provide for enforcement in response to changes in the NAAQS, availability of

improved methods for attaining the NAAQS, or in response to an EPA finding that the

SIP is substantially inadequate. • .

Authority for SIP Revisions for New Nonattainment Areas (11Ofa)f2)f I))

• CAA section 110(a)(2)(l) requires states to have the authority to revise their SIPs

in response to changes in nonattainment areas.

Revisions to the SIP are authorized by Article 19 and sections 3-0301, 19-0103,

19-0301, 19-0303 and 19-0305 of the ECL Article 19 of the ECL was adopted to

protect New York's air resources from pollution and to put into effect the policy of the

state to maintain a reasonable degree of purity of the air resources, consistent with the

public health and welfare and the industrial development of the state. To this end, the

Legislature gave the Department specific powers and duties, including the power to

promulgate regulations for preventing, controlling, or prohibiting air pollution. The

Department also has the specific authority.to regulate motor vehicle exhaust and

approve air contaminant control systems as well as regulate fuels. Section 71-2103

provides general enforcement authority for the air regulations. Section 71-2105

provides criminal enforcement authority. .New York, therefore, has the authority to

revise SIPs and provide for enforcement in response to changes in nonattainment .

areas.

Consultation, Public Notification and PSD/Visibility (110(a)(2VJ^

CAA section 110(a)(2)(J) requires states to meet the applicable requirements of

CAA section 121 relating to consultation, CAA section 127 relating to public information,

and Part C relating to PSD. and visibility protection.

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CAA section 121 requires states to provide a satisfactory process of consultation

with general purpose local governmentsj designated organizations of elected officials of

local governments, and any Federal Land Manager having authority over Federal land

to which the state plan applies. On December 22, 2005, the Department reestablished

a SIP Coordinating Council consisting of senior policy representatives from 19 state

agencies and authorities, and a SIP Task Force consisting of officials from 37 local

governments and designated organizations of elected officials. Periodic meetings of

both groups were held during the ozone and PM2.5 SIP development period for the

1997 NAAQS, and will continue for the revised standards.

40 CFR 51.308(i) requires consultation between states, tribes and the Federal

Land Managers in coordinating efforts to reduce visibility impairment in Class I areas

affected by sources in New York. These parties agreed to participate in Regional

Planning Organizations (RPOs) to facilitate interstate coordination on the development

of Regional Haze SIPs required under Section 169A of the CAA. The State of New

York participated in the coordination-activities through the Mid-Atlantic/Northeast

Visibility Union (MANE-VLJ) which is managed by the Ozone Transport Commission

(OTC). Also participating in consultations were the Mid-Atlantic Regional Air

Management Association. (MARAMA) and the Northeast States for Coordinated Air Use

Management (NESCAUM). Additional consultation was carried out by meeting with

RPOs for the areas contiguous to the MANE-VU area. A number of phone calls also

took place during the 60-day time period in which the Federal Land Managers were

afforded the opportunity to review the draft regional haze SIP.

CAA section 127 requires state plans to contain measures which will be effective

to notify the public during any calendar year, on a regular basis, of instances or areas in

which any national primary ambient air quality standard is exceeded or was exceeded

during any portion of the preceding calendar year. It also requires measures to advise

the public of the health hazards associated with such pollution, and to enhance public

awareness of the measures which can be taken to prevent such standards from being

exceeded and the ways in which the public can participate in regulatory and other

efforts to improve air quality.

The Department's website, at http://www.dec.nv.qov/chemical/34985.html.

contains an Air Quality Index (AQI) for reporting daily air quality to the public. It

describes how clean or polluted the air is, and what associated health effects might be a

concern. It was created as a way to correlate levels of different pollutants to one scale;

the higher the AQI value, the greater the'health concern. When levels.of ozone and/or

fine particles are expected to exceed an AQI value of 100, an Air Quality Health

Advisory is issued alerting sensitive groups to take the necessary precautions. The

Department, in cooperation with the New York State Department of Health, posts

warnings on the above-referenced website'and issues press releases to local media

outlets if dangerous conditions are expected to occur. The Air Quality Forecast displays

the predicted AQI value for eight regions in New York State. It also displays the

observed values for the previous day. Air quality measurements from New York's

statewide continuous monitoring network are updated hourly where availableParameters monitored include ozone, fine particulate, carbon monoxide, sulfur dioxide,

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nitrogen oxides, methane/nonmethane hydrocarbons', and meteorological data.

In accordance with EPA guidance issued on August 15, 2006, states may rely on

their existing NNSR and PSD permitting programs to prevent significant deterioration of

air quality within their own boundaries and in adjacent states. On March 12, 2009,. New

York submitted 6 NYCRR Part 231, New Source Review for New and Modified

Facilities, to the EPA for approval and inclusion-ln the SIP. This regulation meets the

federal requirements for the application of both PSD and New Source Review

requirements in New York and is presently in effect in New York. The application of

these requirements ensures that major sources of PM2.5 in the state are currently

subject to PSD and NNSR permitting programs that implement the PM2.5 standard as

suggested by the guidance.

New York commits to the continued enforcement of all SIP measures and the

regulation of construction of new or modified stationary sources to meet NNSR and

PSD requirements, incorporating the resulting requirements into New York State's Title

V operating permits.

The Department, in cooperation with the Federal Land Managers and other

states throughout the Mid-Atlantic Northeast Visibility Union (MANE-VU),. developed acontrol strategy that will result in the reduction in visibility impairment in federal Class I

areas by reducing the emissions of particulate matter, including PM2.5, and its

precursors. This control strategy is being incorporated into New York's Regional Haze

SIP. The improvement in visibility is projected to follow the "glide path" that is

necessary to return visibility conditions to the pre-industriai state by 2064. This strategy

includes a number of control measures to which New York has committed that will

enable New York to meet its obligation to avoid any interference with measures in the

applicable SIP for another state designed to "protect visibility" or the PM2.5 NAAQS. '

At this time, the Federal Land Managers of the Class I areas whose visibility may

be impacted by sources in New York State have completed their review, and the

required public hearing for the submission will be held shortly prior to submission to -the

EPA. With the submission of its regional haze SIP, New York will have met the

requirements suggested in EPA's guidance for demonstrating that the state's PM2.5

SIP does not interfere with a visibility impact reduction measure being taken by other

states. . .

Ajr Quality Modeling / Data Submission (110(a)(2)QQ)

CAA section 110(a)(2)(K) requires states to provide for the performance of such

air quality modeling as the Administrator may prescribe for the purpose of predicting the

effect on ambient air quality of any emissions of any air pollutant for which the

Administrator has established a NAAQS. It also requires states to submit, upon

request, data related to such air quality modeling to the Administrator.

The Department certifies that the air quality modeling and analysis used in its

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SIPs complies with EPA's guidance1on the use of models in attainment demonstrations,

and commits to continue to use air quality models in accordance with EPA's approved

modeling guidance and to submit data to the Administrator if requested.

Permitting Fees M10faU2KD)

The CAA, section 110(a)(2)(L) directs states require each major stationary

source to pay permitting fees (Title V Permit Fees) sufficient to cover the reasonable

costs of reviewing, planning, approving, implementing and enforcing permits.

!n New York State, the Title V Permit Fee Program is established in ECL section

19-0311 (c) requiring the Department to promulgate regulations that, among other

things, require applications to identify and describe facility emissions in sufficient detail

to establish the basis for the fees and applicability of requirements of the CAA. ECL

section 72-0303 requires major stationary sources to pay operating permit program fees

sufficient to support an appropriation approved by the legislature for the direct and

indirect costs associated with the operating permit program established in section 19-

0311.

In addition, paragraph 201-6.5(a)(7) of 6 NYCRR Subpart 201-6, the

Department's approved Title V program, specifically states that "The owner and/or

operator of a stationary source shall pay fees to the department consistent with the fee

schedule authorized by Subpart 482-2 of this Title."

Fees generated by this requirement fund New York's Title V Program and the

state commits to continue to implement the major stationary source permit fee

regulations.

Consultation / Participation by Affected Local Entities f110fa)(2)(M))

CAA section 110(a)(2)(IVl) requires states to provide for consultation and

participation by local political subdivisions affected by the plan.

The Department established an Inter-agency Consultation Group (ICG) pursuant

to 6 NYCRR Part 240, "Conformity to State or Federal Implementation Plans of

Transportation Plans, Programs, and Projects Developed, Funded or Approved under

Title 23 U.S.C. or the Federal Transit Laws." Members of this group include the Federal

Transit Administration, Federal Highway Administration, the New York State

Department of Transportation, the United States Environmental Protection Agency, the

New York State Department of Environmental Conservation, and several Metropolitan

Planning Organizations statewide. The ICG is central to the entire transportation

conformity process, and serves as the underpinning for conformity determinations and

as the primary mechanism for ensuring early coordination and negotiation among all

parties affected by transportation conformity, including the general public, the business

1 US EPA 2007. "Guidance on the use of models and other analyses for demonstrating attainment of air

quality goals for ozone, PM35 and regional haze." EPA-454/B-07-002.

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community, and other interested parties.

Additional consultation and participation by local political subdivisions are

prpvided through the SIP Task Force that was established on December 22, 2005,

which consists of officials from thirty-seven local governments and designated

organizations of elected officials. Meetings and conference calls are held at appropriate

times as SIPs are being developed or issues arise.

The Department commits to continue to provide for consultation and participation

in the SIP development process by local political subdivisions.

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