1997 NAAQS

Eight-Hour Ozone

Revised Maintenance Plan

for

Shelby County, Tennessee

Prepared by:

Shelby County Health Department

Pollution Control Section

814 Jefferson Avenue

Memphis, Tennessee 38105

January 22May 1, 2014
TABLE OF CONTENTS

I. NON REGULATORY PORTION 1

1. Purpose 1

2. Background 1

3. Pollutants to be Reduced 2

4. Reduction Quantities 3

5. Emission Reduction Requirements 34

6. Emission Reductions 4

7. Regulatory Analysis 4

8. Intergovernmental Consultation 6

II. REGULATORY PORTION 7

These sections replace the 2010 Maintenance Plan approved effective February 3, 2010.

9. Revised Maintenance Plan 7

A. Projections 7

B. Motor Vehicle Emission Budgets 9

C. Air Quality Monitoring Network 11

D. Triennial Emission Inventory 12

E. Stationary Source Control 12

F. Voluntary Measures 12

G. Contingency Provisions 17

10. Meet All Requirements Under Section 110 And Part D of the CAA 19

11. Public Comment 20

Attachments

Attachment I - Federal Registers (in chronological order)

Attachment II - Intergovernmental Consultation

Attachment III - MOVES2010b Input Files

Attachment IV - MOVES2010b Output Files

Attachment V - Cleo Inc. Documentation

Attachment VI - Air Quality Monitoring

Attachment VII - 2003 SIP Submittal

Attachment VIII - Supplemental Support Documents

Attachment IX - Public Participation

Attachment X - Redline Version of Revised Maintenance Plan
1

I. NON REGULATORY PORTION

1. Purpose

The purpose of this plan revision is to provide and document sufficient alternative emission 

reductions to off-set emission benefits assigned to the City of Memphis’ Inspection and 

Maintenance (I/M) program in the Shelby County Ozone Maintenance Plan (2010 O3 Maintenance 

Plan) approved by the Environmental Protection Agency (EPA) (75 Federal Register (FR), January 

4, 2010 (see Attachment I)). This revision identifies the types and amounts of emission reductions 

attributable to I/M and where equivalent reductions will be achieved to off-set those I/M reductions 

so that this updated maintenance plan may be adopted.

If all other components of this plan are approved, Shelby County requests that the specific 

components of the City of Memphis’ I/M program approved into the State Implementation Plan 

(SIP) in 1986 be formally removed from the SIP to include removal from the 2010 O3 Maintenance 

Plan, as these new components will substitute for the air quality benefits attributable to I/M. The 

revised 2010 O3 Maintenance Plan will continue to identify county-wide basic I/M as a contingency 

measure and identify the events or conditions that would cause it to be triggered for 

implementation.

2. Background

The City of Memphis was designated as nonattainment of the carbon monoxide (CO) National 

Ambient Air Quality Standard (NAAQS) in 1978 (43 FR, March 3, 1978 (the 1978 document is not 

available but the date is referenced in 45 FR, p. 53810, left hand column, August 13, 1980 (see 

Attachment I))). Local transportation sources in the urbanized area were identified as the prime 

contributors of CO to monitored CO violations. As a result, I/M was adopted as the control strategy 

to return the area to attainment of the CO standard.

Effective on August 31, 1994, the CO nonattaiment area was redesignated to attainment of the CO 

standard (59 FR, p. 44938, August 31, 1994 (see Attachment I)). The initial 10-year maintenance 

plan approved with that redesignation contained a continuation of the approved I/M program.

Subsequently, further improvements in automotive technology led to a consistent reduction in 

locally monitored levels of CO. A required second 10-year CO maintenance plan was approved by 

the EPA (71 FR, p. 62384, October 25, 2006 (see Attachment I)) and demonstrated that I/M was no 

longer needed to maintain the CO NAAQS. The benefits of the continuation of the I/M program 

were not relied upon in that maintenance plan update.

In 2004, Shelby County, Tennessee, along with Crittenden County, Arkansas, was designated 

nonattainment of the 1997 ozone (O3) NAAQS, with a classification of ‘moderate’ (69 FR, p. 

23858, April 30, 2004 (see Attachment I)). Under Part D, Subpart 2 of the Clean Air Act 

Amendments of 1990 (CAA), moderate O3 nonattainment areas with a county population over a 

given threshold are required to adopt a county-wide I/M plan as part of the required SIP (CAA 

Section 182(b)(4)). At the time, the area’s O3 design value (DV) was within CAA requirements 

(Section 181(a)(4)) to consider reducing the classification from moderate to marginal nonattainment

of the 1997 ozone NAAQS. Shelby County worked closely with the State of Tennessee, Crittenden 
2

County and the State of Arkansas to prepare a petition for reconsideration. All parties involved in 

the petition adopted additional measures to control O3-forming emissions in the region. EPA 

granted the petition (69 FR, p. 56697, September 22, 2004 (see Attachment I)) which removed the 

SIP planning requirements mandated of moderate ozone non-attainment areas, including the 

adoption of a county-wide I/M program in Shelby County.

The reclassification to marginal also reset the expected attainment date of the area to June 15, 2007. 

The area failed to achieve attainment on that date and in accordance with CAA Section 

181(b)(2)(A), EPA reclassified the area to moderate O3 nonattainment (73 FR, p. 16547, March 28, 

2008 (see Attachment I)). This reclassification again reset the attainment date, this time to June 15, 

2010 with a SIP submittal due date of March 1, 2009. That SIP was to include all CAA 

requirements of a moderate O3 nonattainment area, including county-wide I/M in Shelby County.

The end of the 2008 ozone monitoring season resulted in the DV for the entire ozone nonattainment 

area meeting the 1997 O3 NAAQS. Shelby County and the State of Arkansas prepared separate 

redesignation requests and maintenance plans for their portions of the non-attainment area and 

coordinated their efforts in crafting the submittals. The separate submittals were made because 

Arkansas submits plans to EPA Region 6 headquarters in Dallas, Texas, while submittals from 

Tennessee are directed to EPA Region 4 headquarters in Atlanta, Georgia. After review and 

approval by the Tennessee State Air Board, the Shelby County request was submitted to EPA 

Region 4 in February, 2009.

EPA took final action on the Shelby County submittal (75 FR, January 4, 2010 (see Attachment I)) 

by approving the maintenance plan and redesignating the Shelby County portion of the 

nonattainment area to attainment with an effective date of February 3, 2010. While this removed the 

immediate requirement to adopt county-wide I/M, the approved maintenance plan included a 

continuation of the City of Memphis I/M program and set a county-wide I/M program as a 

contingency measure in the event that the 1997 O3 NAAQS was violated after redesignation to 

attainment.

In mid-2012, the Memphis City Council voted to defund the operation of the City of Memphis I/M 

program beginning with Fiscal Year 2013/2014. Vehicle inspection operations at all four City of 

Memphis inspection stations ended on June 28, 2013. This termination of services is the principal 

reason this plan has been drafted and submitted as a failure to correct the potential violation of the 

SIP by not conducting these vehicle inspections may lead to the imposition of available sanctions 

authorized by the CAA.

3. Pollutants to be Reduced

Although I/M was first implemented as a CO control measure, the program was shown to be 

unnecessary for continued maintenance of the CO NAAQS in the second 10-year maintenance plan 

as discussed above. Therefore, I/M emission reductions of CO are not being considered in this 

revision of the 2010 O3 Maintenance Plan. However, as the City of Memphis’ tailpipe I/M program 

is included as a control measure in the 2010 O3Maintenance Plan, reductions of ozone precursors 

identified by EPA as oxides of nitrogen (NOx) and volatile organic compounds (VOC) are 

attributable to the program, and therefore must be addressed. Although it may be possible with 
3

analysis to substitute NOx and VOC’s for one another, the goal of this plan is to provide an off-set 

at a ratio of 1.1 to 1.0 for each pollutant.

4. Reduction Quantities

Information can be found in the document, “Methodology Used for MOVES Runspec”, which 

describes the various parameters required to set up the MOVES Run Specification file for the 

MOVES2010b model. Information concerning methodology used to calculate mobile source 

emissions, temperatures, Reid Vapor Pressure, and humidity can be found in the document titled 

“Methodology Used to Develop MOVES Inputs”. Both documents are located in Attachment VIII -

Supplemental Support Documents of the maintenance plan revision.

The quantities of NOx and VOC reductions creditable to the City of Memphis’ I/M program were 

determined using the most current EPA approved on-road emission model, MOVES2010b, and 

inputs developed by the current travel demand model (TDM) used by the Memphis Area 

Metropolitan Planning Organization (MPO). These figures match those provided by the contractor 

for the MPO to conduct this modeling and are the most current available. After consultation with 

air quality and conformity partners on the MPO (as documented in Attachment II –

Intergovernmental Consultation), 2013 was chosen as the year for analysis of the affected change in 

emissions. While I/M testing ended in mid-2013, the air quality benefits associated with the 

program extends for the remainder of the 2013 ozone season as inspection and maintenance had 

occurred for all vehicles with effectiveness dropping off at a rate of approximately one twelfth 

(8.33%) per month or 25% by the end of September. Historically elevated levels of ozone after 

October 1st are rare.

2013 inputs for the MOVES2010b model were developed by interpolating TDM results for 2011 

and 2015 in order to achieve 2013 emission reductions attributable to the Memphis I/M program.

The results of this interpolation are provided in Table I below:

TABLE I

2013 Inspection and Maintenance Program Comparison*

No I/M With I/M Change

tons/day tons/day tons/day %

VOC 13.609 13.257 0.352 2.66%

NOx 29.652 29.652 - 0.00%

* As calculated by the SCHD-PCS (see MOVES2010b Input Files in Attachment III). Calculation 

does not include evaporative emissions from refueling which is included in the area source emissions 

category.

At 0.352 tons of VOC and 0.000 tons of NOx emissions per ozone season day, the target for 

alternative emission reductions to replace the effect of the City of Memphis discontinuing the I/M 

program are calculated as the actual emissions increase that must be offset is 129 128.48 tons per 

year (tpy) (0.352 tons per day times 365 days per year) of VOC and no reductions in NOx.

5. Emission Reduction Requirements
4

Creditable emissions reductions for use as off-sets during nonattainment must be quantifiable, 

enforceable, and permanent. Additionally, to the extent possible, they should be contemporaneous 

with the loss of the air quality benefits of the I/M program so as not to negatively affect local air 

quality in the short term. Further, reductions cannot be those that are otherwise required due to 

existing or new federal control requirements, or from the implementation of controls required from 

enforcement actions or prior SIP requirements.

Due to the current ozone non-attainment status of Shelby County currently being classified as 

marginal non-attainment of the newer 2008 O3 NAAQS, any past reductions that meet the criteria 

of being available for an emissions credit bank that can be used for industrial permitting off-sets, 

should be viewed as contemporaneous if those emissions are removed from the emissions bank and 

are therefore no longer available for industrial off-sets. Since the area is classified as marginal 

nonattainment, the off-set requirements are 1.1 to 1 (CAA Section 182). This means banked credits 

available must be divided by 1.1 to determine the amount available from this source for off-set 

credit.

6. Emission Reductions

The Shelby County Health Department, Pollution Control Section (Department), has identified 

reductions from the 2011 closure of Cleo Inc. (source number 0153) as banked emissions available 

for industrial permitting off-sets. The company ceased operation partway through CY 2011 and 

surrendered their Title V major source air pollution permit, making the reductions permanent and 

enforceable (see Attachment V). Cleo Inc. reported and paid air pollution fees on actual VOC 

emissions of 239.1 tons in 2009 and 254.5 tons in 2010. Since the DV used to designate the area 

nonattainment was based on 2009-2011 data, these stationary source emissions contributed to that 

DV and therefore are available as off-set credits. Dividing the average of the last two full years of 

operation by 1.1, results in 224.4 tons that are available to be used as off-sets. During the same 

operational period, Cleo averaged 1.09 tpy of NOx emissions, which have also been removed from 

the current local emissions inventory.

7. Regulatory Analysis

Carbon Monoxide (CO) and Ozone (O3)

This proposal satisfies both the requirements of Section 110(l) and Section 193 of the Clean Air 

Act (CAA). Section 193 reads as follows:

Each regulation, standard, rule, notice, order and guidance promulgated or issued by 

the Administrator under this chapter, as in effect before November 15, 1990, shall 

remain in effect according to its terms, except to the extent otherwise provided under 

this chapter, inconsistent with any provision of this chapter, or revised by the 

Administrator. No control requirement in effect, or required to be adopted by an order, 

settlement agreement, or plan in effect before November 15, 1990, in any area which 

is a nonattainment area for any air pollutant may be modified after November 15, 

1990, in any manner unless the modification insures equivalent or greater emission 

reductions of such air pollutant.
5

This provision requires EPA to call for “equivalent or greater reductions” before it can allow 

termination of the I/M program, but it only applies to a pollutant for which the area is currently nonattainment. Hence, there is a need to compensate with appropriate emissions off-sets any increases

in NOx and VOCs as precursors to ozone.

There is no requirement for equivalent reductions for CO because the Memphis area is now 

designated attainment for CO and is under its second ten-year maintenance plan. This approved 

maintenance plan includes a 480.69 tons per day (tpd) safety margin. It has been previously

demonstrated that the continuation of the I/M program is not necessary to prevent interference with 

maintenance of the CO standard. See 71 FR, pp. 62384-62388, October 25, 2006 which is included 

in Attachment I. This demonstration and the safety margin provided in the second ten-year 

maintenance plan meet the mandate of Section 110(l) of the CAA which states in part:

...The Administrator shall not approve a revision of a plan if the revision would 

interfere with any applicable requirement concerning attainment and reasonable 

further progress (as defined in section 171), or any other applicable requirement of 

this Act.

This revision of the O3 Maintenance Plan will not interfere with continued attainment of the CO

NAAQS.

Similar to the CO discussion above, the O3 Maintenance Plan is an applicable requirement that calls 

for the operation of an I/M program. This action modifies that plan and provides greater 

contemporaneous emission reductions than those achieved by the I/M program.

The method selected to demonstrate off-setting emissions and request a revision to the O3

Maintenance Plan is not without precedent. EPA has taken action to allow termination of I/M 

obligations for Louisville, Kentucky in 2005 (70 FR, p. 28429, May 18, 2005 (see Attachment I), 

and its approval of a revision to amend the Wisconsin SIP to change the I/M program in the 

Milwaukee area (78 FR, p. 24373, September 19, 2013 (see Attachment I)). Moreover, it is 

consistent with the approach proposed by the Illinois EPA to reduce the scope of vehicle coverage 

of the I/M programs in the Chicago and East St. Louis areas. This request involved dropping older 

vehicles that are not equipped with On-board Diagnostic (OBD) computer ports from the vehicles 

required to undergo emissions inspection (78 FR, p. 68378, November 14, 2013 (see Attachment 

I)).

Critical to the Louisville and Wisconsin revisions was the reliance upon stationary source emission 

reductions, and similarly, the proposal in Illinois is reliant on the shutdown of stationary sources as 

the source of “equivalent or greater reductions” for lost emissions reduction benefits from operation 

of the I/M programs. Likewise, the Memphis proposal relies upon use of a portion of the emission 

credits resulting from the shutdown of the Cleo Inc. plant in 2011.

Nitrogen Dioxide (NO2)

In 2010, EPA established a new 1-hour NO2 NAAQS of 100 parts per billion (ppb) and retained the 

existing annual NO2 NAAQS of 53 ppb. The Memphis area is in attainment of this standard and is 
6

expected to maintain that status. NO2 is a subset of NOx, and as shown in the modeling and 

discussed above regarding the O3 NAAQS, the elimination of the tailpipe-only I/M program results 

in no increase in on-road NOx emissions. Therefore, approval of this Plan amendment will not 

interfere with the area’s ability to attain or maintain the NO2 NAAQS.

Lead (Pb)

In 2008, EPA strengthened the Pb NAAQS to 0.15 μg/m3 , rolling 3-month average. The Memphis 

area is in attainment of this standard and is expected to maintain that status. Pb is no longer 

blendedwas phased out of into on-road motor fuel over 20 years ago, so that component of mobile 

sources has no contribution to Pb emissions. Therefore, approval of this Plan amendment will have 

no impact on Pb emissions in the communitynot interfere with the area’s ability to attain or 

maintain the Pb NAAQS.

Sulfur Dioxide (SO2)

In 2010, EPA established a new 1-hour SO2 NAAQS of 75 ppb and revoked the 24-hour and 

annual standards. The Memphis area is in attainment of this standard and is expected to maintain 

that status. SO2 is emitted from motor vehicles, but the amount emitted is a function of the sulfur 

content of the fuel being combusted. The I/M program did not address fuel composition. In fact, 

recent changes in the federal requirements for the sulfur content of on-road gasoline and on-road 

diesel fuel has resulted in a dramatic decrease in SO2 emissions attributable to on-road sources.

Therefore, approval of this Plan amendment will have no impact on SO2 emissions in the 

community. not interfere with the area’s ability to attain or maintain the SO2 NAAQS.

Particulate Matter (PM)

Shelby County is in attainment of all current PM standards based upon 2010-2012 air quality data.

Local annual and daily design values of 10.88 micrograms per cubic meter (μ/m3

) and 20.47 μ/m3, 

respectively, are well within the new fine particulate matter (PM2.5) NAAQS of 12 μ/m3 (annual) 

and 35 μ/m3 (daily). Also, local monitoring has shown a steady decrease in PM concentrations over 

many years. Ongoing stationary source and mobile source changes are expected to continue that 

trend. The tailpipe I/M program only tested for excess CO and hydrocarbons (VOCs) from gasoline 

powered motor vehicles. Studies have shown that VOCs can be a precursor to PM in certain 

chemical and meteorological circumstances. This revision to the maintenance plan offers a 1.1 to 1 

reduction of VOCs in the local airshed which should off-set any increase in PM concentrations 

from the program’s closure.

8. Intergovernmental Consultation

Crucial to the process to assure continuity and consistency between agencies throughout Shelby 

County, the State of Tennessee, and Region 4, is the intergovernmental consultation process 

required by 40 CFR 51, Subpart M. Information related to interagency contact and discussion can 

be found in Attachment II. This information validates the cooperation that has been achieved 

between the parties that have worked together through this revision process. The help and 

cooperation received has been needed and is much appreciated.
7

II. REGULATORY PORTION

These sections replace the 2010 Maintenance Plan approved effective February 3, 2010.

9. Revised Maintenance Plan

In accordance with the 1990 Clean Air Act Amendments, Section 107(d)(3)(e) and Section 175A, 

the following sections, including revisions to those sections necessary to adjust for increases in NOx

and VOC emissions from closure of the City of Memphis Inspection and Maintenance Program,

demonstrate maintenance of the 1997 8-hour NAAQS throughout the maintenance period. This 

maintenance plan, critical in preventing the deterioration of an area’s air quality, sets forth measures 

to be carried out until November 30, 2021. During these years, the plan contains commitments to 

continue existing programs and to implement programs and measures depending upon emission 

inventory and air quality monitoring results. These provisions of the plan assure both an on-going 

effort to maintain the NAAQS and the opportunity and obligation to implement new programs and 

measures in the event unforeseen developments overwhelm the effectiveness of the mandated effort 

to maintain the 1997 8-hour ozone NAAQS.

A. Projections – With this revision, Shelby County area and non-road sources of emissions for 

2021 remain the same as those provided in the 2010 O3 Maintenance Plan approved by the EPA (75 

FR, January 4, 2010 (see Attachment I)). However, with the exception of point and on-road source

emissions have changed. On-road emissions for 2006 and 2021 were remodeled utilizing 

MOVES2010b, which replaced and updated estimates from the previous model, MOBILE6.2 used 

for this purpose. Point source emissions for 2006 remain the same. 2021 point source emissions for 

VOC’s and for NOx have been adjusted from the 2010 O3 Maintenance Plan by subtracting the 

emissions that were credited to the closure of Cleo Inc. The actual emissions resulting from the 

closure, in the amount of 0.676 tpd VOC, are more than sufficient to account for the 0.387 tpd 

(0.352 tpd times 1.1) needed to off-set the VOC emissions increase resulting from the shutdown of 

the I/M Program, there being no change in NOx emissions from the shutdown. In keeping with the 

required 1.1 to 1 off-set ratio, the local emissions banked will be reduced by 0.352 multiplied by 1.1 

which yields 0.387 tpd or 141.3 tons per year (tpy). The emissions bank will therefore include the 

remaining VOC emissions that result from the shutdown of Cleo Inc. in the amount of 0.289 tpd or 

105.5 tpy. Projections for on-road mobile, point, area, and non-road mobile sources are presented in 

Table II and were projected forward from the 2006 inventory to 2021 (taking into account the 2013 

I/M and Cleo Inc. changes), beyond the 10-year interval required in Section 175(A) of the CAA.

This maintenance demonstration projects the future emissions of VOC’s and NOx will remain 

below those of base year 2006.

The Shelby County base year and future year emission inventory estimates are presented in Table II

and in Figures 1 and 2.
8

TABLE II

Summer Season Tons Per Day

Volatile Organic Compounds Emission Inventory

Type 

Inventory Year Area Non-Road On-Road* Point** Total Baseline

Baseyear 2006 37.531 22.698 24.16723.986 13.665 98.06197.880

98.06197.88

0

Projection 2021 47.039 19.734 8.558 17.715 93.046 98.06197.880

Nitrogen Oxides Emission Inventory

Baseyear 2006 2.101 26.657 58.013 14.458 101.229 101.229

Projection 2021 2.695 21.607 16.035 18.373 58.710 101.229

 Note: to resolve double counting, the point source emission estimates for Graphic Arts and Degreasing 

were subtracted from the area source emissions estimates. To accomplish this task, both the SIC and the 

SCC codes of the categories believed to be involved were located and the related emissions were then 

used.

 * 2006 On-Road emissions include the effect of I&M reductions on City of Memphis vehicles. As a result of 

the cessation of the I&M program by the City of Memphis in 2013, I&M reductions can no longer be included 

in 2021 projections. Estimates are made utilizing MOVES2010b.

 ** Cleo Inc. terminated their operating permit in 2011. 2009 and 2010 actual emissions of VOC amounted 

to 239.1 and 254.5 tons per year (tpy) as certified by the source for each of those years. These figures, 

averaged and divided by 365 results in 0.676 tpd which is subtracted from the 2010 O3 Maintenance 2021 

projection of 18.391 tpd yielding the point source emissions of 17.715 tpd for 2021.

Figure 1
9

Figure 2

B. Motor Vehicle Emissions Budgets - The transportation conformity rule found in 40 CFR 

Part 93 requires specific emission budgets be defined for the on-road mobile sources portion of the 

Shelby County emission inventory. These budgets are used by transportation authorities to assure 

that transportation plans, programs, and projects are consistent with, and conform to, the 

maintenance of acceptable air quality in Shelby County. Section 93.118(b) states in part:

Consistency with the motor vehicle emissions budget(s) must be demonstrated for

each year for which the applicable (and/or submitted) implementation plan 

specifically establishes motor vehicle emissions budget(s), for the attainment year (if 

it is within the timeframe of the transportation plan), for the last year of the 

transportation plan's forecast period, and for any intermediate years as necessary so 

that the years for which consistency is demonstrated are no more than ten years apart

These projections for on-road mobile, point, area, and non-road mobile sources are presented in

Table II and were projected forward from the 2006 inventory to 2021 (taking into account the 2013 

I/M and Cleo Inc. changes), beyond the 10-year interval required in Section 175(A) of the CAA.

This maintenance demonstration projects the future emissions of VOC’s and NOx will remain 

below those of base year 2006.

In accordance with Section 93.118, this maintenance plan sets motor vehicle emission budgets 

(MVEB) for Shelby County, based on a 2006 attainment base year inventory with 2021 as the final 

year of the plan,. With this revision of the maintenance plan, 2021 point and on-road sources of 

emissions have changed but area and non-road source categories and remain the same as those

provided in the 2010 O3 Maintenance Plan approved by the EPA (75 Federal Register, January 4, 

2010 (see Attachment I))., with the exception of point and on-road source emissions. On-road 

emissions for 2006 and 2021 were remodeled utilizing MOVES2010b which replaced and updated 

estimates from the previous model, MOBILE6.2. Point source emissions for 2006 remain the same.

2021 point source emissions for VOC’s and for NOx have been adjusted from the 2010 O3
10

Maintenance Plan by subtracting emissions credited to the closure of Cleo Inc. in 2013, and then 

ratioed to assure total off-set of the increase in emissions resulting from the shutdown of the City of 

Memphis I/M Program. Table III depicts the inventory analysis used to set the MVEBs.MVEBs for 

VOC’s and NOx are contained in Table III and are depicted in Figures 3 and 4.

TABLE III

Summer Season Tons Per Day

Volatile Organic Compounds Motor VehicleOn-Road Emission Budget (MVEB)

Type 

Inventory Year Area NonRoad On-Road Point

Offsets

from

Cleo Inc.

1.1 : 1

Total Baseline Safety 

Margin

PercentOnRoad

Allocation 

Percentof 

Safety 

Margin to 

MVEB

OnRoadMotor 

Vehicle

Safety 

Margin

On-Road 

BudgetMVEB

Baseyear 2006 37.531 22.698 24.16723.986 13.665 N/A 98.06197.880 98.06197.880 N/A N/A N/A 24.16723.986

Projection 2021 47.039 19.734 8.558 17.715 0.387 93.433 98.06197.880 4.447 0.95 4.3964.224 12.95412.782

Nitrogen Oxides Motor VehicleOn-Road Emission Budget (MVEB)

Baseyear 2006 2.101 26.657 58.013 14.458 - 101.229 101.229 N/A N/A N/A 58.01358.013

Projection 2021 2.695 21.607 16.035 18.373 - 58.710 101.229 42.519 0.95 40.393 56.428

 Note: to resolve double counting, the point source emission estimates for Graphic Arts and Degreasing were subtracted from the 

area source emissions estimates. To accomplish this task, both the SIC and the SCC codes of the categories believed to be 

involved were located and the related emissions were then used.

 * 2006 On-Road emissions include the aeffect of I&M reductions on City of Memphis vehicles. As a result of the cessation of the 

I&M program by the City of Memphis in 2013, I&M reductions can no longer be included in 2021 projections. Estimates are made 

utilizing MOVES2010b.

** Cleo Inc. terminated their operating permit in 2011. 2009 and 2010 actual emissions of VOC amounted to 239.1 and 254.5 tons 

per year (tpy) as certified by the source for each of those years. These figures, averaged and divided by 365, results in 0.676 tpd 

which is subtracted from the 2010 O3 Maintenance 2021 projection of 18.391 tpd, yielding the point source emissions of 17.715 tpd 

for 2021. On-road emissions increased as a result of the shutdown of the City of Memphis I/M program by 0.352 tpd. Emission 

reductions from the closure of Cleo Inc. amounted to 0.676 tpd. Of this amount 0.387 tpd (0.352 tpd times 1.1) were used to offset 

the on-road emission increase.

The MVEBs for VOC’s and NOx are restated as shown in Table IV to better clarify their values and

are depicted in Figures 3 and 4 to further improve this clarity.

TABLE IV

Year Pollutants MVEB (tons/day)

2006 VOC 23.986

NOX 58.013

2021 VOC 12.782

NOX 56.428

Figure 3
11

Figure 4

The MVEB reflects the total on-road mobile source emissions for 2021 plus an allocation from 

available VOC and NOx safety margins. The allocation from the safety margins is available because 

of reductions of VOC and NOx that have occurred, and are projected to occur, primarily from 

mobile sources. VOC and NOx reductions are anticipated from point and the non-road mobile 

source category categoriesbut are expected to increase in the point source category due to future 

economic factors. The point source emissions increase shown in Table III does not take into 

account reductions from known point source closures with the exception of Cleo Inc., but not to the 

extent that they occur in the on-road source category. VOC reductions from area sources are also 

anticipated to occur due to control techniques instituted on a federal level on industrial 

manufacturing activities. However, future population increases act to balance area source 

reductions such that there is a net increase in VOC emissions in this category. The MVEB is 

constrained to assure that the total emissions from all source categories do not exceed the 2006 

attainment year emissions.

Under 40 CFR 93.101, the safety margin is the difference between the attainment level and the 

projected level, from all sources, of emissions in the maintenance plan. The attainment level of 

emissions is the level of emissions during one of the years in which Shelby County met the 1997 8-

hour ozone NAAQS. The safety margin, in whole or in part, can be allocated to the transportation 

sector as long as total emissions from all categories remain below the attainment level. Ninety-five 

percent (95%) of the safety margin emissions are allocated to the MVEB. Specifically, 4.7524.224

tpd of the available VOC safety margin and 40.39040.393 tpd of the available NOx safety margin,

are allocated to the 2021 MVEB. The remaining safety margin in 2021 for VOC is 0.250.223 tpd 

and for NOx is 2.126 tpd. The MVEB is consistent with the plan for maintaining total emissions 

from all source categories at or below the 2006 VOC and NOx emission levels through 2021. For 

future year conformity determinations, transportation authorities should rely on the MVEB unless 

plan revisions occur.

C. Air Quality Monitoring Network – The existing Shelby County ozone air quality 
12

monitoring network will continue to be operated in its present configuration. Any change to the 

present configuration will be in accordance with the Memorandum of Agreement (MOA) finalized 

on June 20, 2008 between the Shelby County Government, Arkansas Department of Environmental 

Quality (ADEQ) and the Mississippi Department of Environmental Quality (MDEQ). This MOA is 

in accordance with 40 CFR 58 Appendix D, Section 2(e), and is located in Attachment VI along 

with a 2014 map showing ozone monitor locations in the Memphis MSA. In addition, any changes 

in the air monitoring network will be discussed with EPA prior to the change.

D. Triennial Emission Inventory – In order to track the progress of the maintenance plan, a 

triennial emission inventory of actual emissions for Shelby County will be performed using the 

latest emission factors, models and methodologies to include area, non-road mobile, on-road mobile 

and point sources of VOC and NOx. The first year for inclusion as an inventory year considering the 

date of this revision to the 2010 O3 Maintenance Plan is 2014. Successive inventory years will be 

2017 (which is also a transportation emission budget year that coincides with the Shelby County 

Revised CO Maintenance Plan) and 2020.

E. Stationary Source Control - Sources wishing to locate in Memphis will continue to 

undergo new source review requirements. Existing stationary source control will continue.

Companies will continue to be sought for the purpose of voluntarily reducing VOC and/or NOx

emissions where possible. Implementation of new federal control measures, as expected and where 

and when appropriate, will continue to be required.

The NOx SIP Call indicated that Tennessee’s 8-hour ozone nonattainment areas received significant 

contributions from several upwind states. The Department believes that additional NOx emission 

reductions to comply with the NOx SIP call will contribute to continued compliance with the Ozone 

NAAQS in the area.

The Clean Air Interstate Rule (CAIR) updates and expands the NOx Budget Trading Program 

required by the NOx SIP call and continues to require additional NOx reductions that began in 2009.

The CAIR also includes reduction requirements in states not previously included in the NOx SIP 

call that could have a positive impact on ozone air quality in the Memphis area. These include, 

Mississippi, Arkansas, Louisiana, and Missouri. The significant additional NOx reductions required 

by CAIR are expected to aid in the maintenance of the 8-hour ozone NAAQS in this area.

F. Voluntary Measures

The Department, as well as other entities in the County and the State, continues to research and 

implement voluntary measures that have a positive effect on local air quality. Some of the agencies 

involved in this effort include: The Shelby County Health Department Pollution Control Section, 

the Memphis Area Transit Authority (MATA), Memphis Light Gas and Water (MLGW), the 

Metropolitan Planning Organization (MPO), the Shelby Farms Park Conservancy, and the 

Memphis and Shelby County Division of Planning and Development which includes the Memphis 

and Shelby County Office of Sustainability.

1. Energy Reduction:
13

There are many individual energy reduction projects that have recently occurred in the 

nonattainment area. Many of these have come about due to political leadership encouraging such 

projects through several initiatives.

As one example, the Green Building Task Force reviewed the Existing Building Code, among other 

such materials, recommending revisions that would lead to Memphis and Shelby County becoming 

a regional leader for green buildings, sustainable development, and adaptive reuse of existing 

buildings in the jurisdiction. The task force and consultant submitted their final recommendations 

in June 2012. For the end result, energy efficiency codes will be proposed before the legislative 

bodies. Once adopted it is estimated these codes could reduce utility consumption by at least 

933,790 kilowatt-hours (kWh) on an annual basis.

The Clean and Green Initiative (www.memphiscleanandgreen.com) is a 5 year strategy for 

developing renewable energy at municipal facilities. Led by Memphis Bioworks Foundation, in 

conjunction with Siemens Industry, Inc., Building Technologies Division, the specific activities 

associated with the Clean & Green Initiative include: energy conservation and reduction in 

municipal buildings and facilities, including street lights; energy generation, including solar or other 

technologies; conversion of vehicles to compressed natural gas (CNG); public safety efforts, 

including street lighting; trash recycling and redeployment of materials; biomass conversion to 

energy, liquid fuels and chemicals; waste remediation and environmental clean-up; and waste and 

water management systems that preserve energy, improve the environment and increase the value 

of City services.

In The Mayors’ Energy Challenge, City of Memphis Mayor A C Wharton, Jr. and Shelby County 

Mayor Mark H. Luttrell, Jr. have partnered with Pathway Lending, a non-profit commercial lender 

in Tennessee, as well as the State of Tennessee, MLGW, and the Tennessee Valley Authority to 

present the Challenge to business owners and residents in Memphis and Shelby County. This 

public-private partnership is designed to provide the necessary tools and resources to motivate 

individuals in the community to make their homes and businesses more energy efficient. This 

provides a threefold return to the community: individuals will be able to save money; contractors 

will have more business opportunities; and there will be less carbon emitted in the community.

Examples of some of the projects inspired by these and other initiatives include:

 Visitor’s Center at Shelby Farms. This building underwent an energy conservation based 

renovation in 2012. A new HVAC system, window tinting and UV-lamp to clean the HVAC 

coils were all installed. A 20% reduction in the energy use is anticipated from these 

renovations.

 Trustee’s Building at 157 Poplar Ave. This building was refurbished last year. This work 

included the installation of a new more energy efficient HVAC system and other energy 

conservation upgrades.

 Sears Crosstown Sustainability Improvements. The historic Sears Crosstown building is being 

preserved and redeveloped as a mixed-use vertical urban village in Midtown Memphis. Eight 

Founding Partners have committed to inhabit nearly 600,000 square feet of the historic 

building. The project seeks to use $2.01 million in Qualified Energy Conservation Bond 

proceeds to finance a number of sustainable design elements, including rainwater harvesting, 
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green roofs, low-flow plumbing fixtures, high efficiency building systems, and light emitting 

diode (LED) lighting among other items.

 20 public electric vehicle (EV) charging stations in Shelby County as reported on the EV 

website: http://www.blinknetwork.com/blinkMap.html

 Solar Energy Generation Installations:

• Agricenter Solar Farm is a 998.4 kilowatt (kW) farm producing 1,600,000 kWh 

annually

• Bioworks solar panels on their parking garage: a 750 kW array

• All Better Pediatrics: a 28 kW array

• Memphis Pediatrics Germantown: a 50 kW array

• St. Agnes-St. Dominic School: 17.4 kW array

• Brother Industries: two 59.8 kWh solar farms. Additionally, in 2012, Brother installed a 

High Efficiency Air Compressor to replace an inefficient unit installed in 1998. The 

new compressor consumes 171,000 less kW per year due to the compressor using a 

variable drive system.

2. Land Use Planning:

The Memphis and Shelby County Office of Sustainability has been charged with the 

implementation and oversight of the Sustainable Shelby Implementation Plan developed from 

extensive community input in 2008. The Office is local government’s leading advocate and 

resource for sustainability and coordinates various regional initiatives. One such initiative is the 

ongoing updating of the recently adopted Unified Development Code (UDC) designed to reduce 

sprawl, encourage renewed urban development, and make communities more people focused.

Through this office, Shelby County Government received a $2.6 million grant that is being used to 

establish a “greenprint” plan. This plan will establish a unified vision for a region-wide network of 

greenspace areas including parks, greenways, byways, blueways, conservation lands, natural areas, 

wildlife management areas, open space areas, and other similar spaces. A consortium of greenway 

organizations, related businesses and local and state governments is leading the planning effort.

In addition to the new UDC and the Regional Greenprint plan currently being developed, the City 

of Memphis recently adopted a Complete Streets policy that will complement the other two. This 

helps to ensure that future development and redevelopment will focus on providing accommodation 

to all users of transportation and public spaces.

3. Transportation:

The Tennessee Department of Transportation (TDOT) has been aggressively working on an 

Intelligent Transportation System in Shelby County. In 2007, the system was made fully functional 

with the completion of the local control center. Besides assisting in managing flow on local 

expressways and improving incident response times, which greatly reduce congestion and 

associated pollution, the message boards are used to alert citizens to unhealthy air quality forecasts 

and encourage actions to avert such episodes.

Shelby County is experiencing dramatic growth in greenway and bicycle trail planning and 

construction. The 6.5 mile Shelby Farms Greenline has been a community-building success and it is 
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to be extended seven miles east from the current eastern terminus at the centrally-located 4,500-acre 

Shelby Farms Park. Additionally, the Wolf River Greenway continues to be expanded with the 

future goal of having an off-road path from the Mississippi River to the eastern edge of the County.

The Main to Main Multi-Modal Connector Project (http://main2main.com) will include major 

infrastructure repairs and improvements on Downtown Memphis' Main Street from Uptown to 

the Harahan Bridge and convert the Harahan Bridge into a bike/pedestrian path. This project is 

made possible by $15 million in federal funds through the Transportation Investment Generating 

Economic Recovery Grant (TIGER IV), as well as matching grants from state and local funds 

and private funds.

The Shelby County Trails Plan proposed possible alternative routes and enhanced connectivity from

the Mississippi River Corridor Trail to various points in the city. The southern route expansion will 

create a recognized access to jobs because it will directly connect neighborhoods to the business 

district and industrial complexes in Memphis within Shelby County. The goal is to create a Trails 

Plan that includes the expansion of the southern route which will provide an alternative 

transportation choice.

After being identified as one of the most unfriendly areas in the country for bicycles by Bicycling 

Magazine, local elected officials rallied to improve the area’s position in the important 

transportation mode. The effort resulted in the magazine recognizing the area as the ‘Most 

Improved’ in its most recent evaluation. This has translated into increased public and private 

funding for new and innovative infrastructure projects that have received national and international 

recognition. These projects not only help provide safe alternative transportation choices, but also 

help address health and air quality concerns in the area.

The Greater Memphis area has been the recipient of federal Congestion Management/Air Quality 

(CMAQ) funding since the program was first adopted into national highway legislation. Various 

projects have been evaluated, approved by the MPO and either fully or partially implemented. The 

area is noted as being a leader in traffic signalization projects to reduce congestion. As part of the 

approval process, expected emissions reductions are developed. Again, while recognizing these 

reductions are not creditable, the role they play in helping the area to maintain progress toward 

acceptable ozone air quality is important. Below is a summary of those programs and their expected

benefit in reducing emissions.

Shelby County Bike Infrastructure (miles)

FY 2009 FY 2010 FY 2011 FY 2012 FY 2013

Shared Use Path 15 22 25 26 31

Shared Lanes 56 56 65 70 115

Bike Lanes 2 8 31 48 74

Mtn. Bike Trails 17 17 17 17 17

Source: City of Memphis Division of Engineering, September 23, 2013

This table notes the expansion of bicycle paths and infrastructure in Shelby County over the past five years.
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SUMMARY OF CMAQ PROJECTS AND PROJECTED EMISSIONS REDUCTIONS

Name of Project Cost

(Millions)

CO 

Reduction

(tpy)

VOC 

Reduction

(tpy)

NOx

Reduction

(tpy)

Shelby County Signal Project $21.13 72.580 6.076 6.540

MATA Hybrid Bus Purchase $2.4 0.03 1.9 7.7

Coordinated Signal System 1 $1.07 5.28 0.45 0.60

Coordinated Signal System 2 $1.77 40.26 3.42 4.56

Coordinated Signal System 3 $2.72 40.26 3.42 4.56

Houston Levee at Houston Hill Traffic Signal $0.12 1.65 0.14 0.19

Covington Pike Signal System $0.90 4.91 58.62 (-0.99)

City of Memphis - 50-Mile Connections $1.70 0.70 0.53 5.95

TOTAL $31.81 165.67 74.56 30.1

4. Health Department Initiatives:

Recognizing that industrial regulation was no longer the only path to clean air, in 2007 Shelby 

County Government established the Air Quality Improvement Branch (AQIB) within the Pollution 

Control Section. AQIB staff has been tasked with identifying other projects and funding sources to 

support local clean air efforts.

On Ozone Action Days, the cost of bus or trolley fare is subsidized from Health Department funds 

allowing the rider to pay just $0.25 to ride public transportation. There have been 36 actions days 

since their start in 2009 with an average estimated daily ridership increase for those days of 5% -

10%. Additionally, since implementation of the program, the Memphis Area Transit Authority 

(MATA) reports that overall daily ridership has increased by 4%. See the table below for additional 

information.

Calendar Year Ozone Action 

Days

Total Riders on Action 

Days

Average Daily Ridership 

On Action Days

2009 3 121,548 40,516

2010 4 109,429 27,357

2011 13 350,641 26,972

2012 14 403,763 28,840

2013 2 44,405 22,203

The retrofitting of older diesel engines is a recognized cost-effective method of reducing emissions 

from mobile sources. The Department has been aggressively pursuing this initiative. To date, this 
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program has resulted in the retrofitting of approximately 298 public school busses, 85 sanitation 

trucks and 80 public transit buses. These fleets were targeted because they are heavy diesel engine 

vehicles that regularly travel through heavily populated areas.

The Department also manages a rideshare/vanpool program and supports it with a multi-faceted

education and outreach program. The education and outreach initiatives include on-site visits to 

businesses, industry, events such as the local Earth Day celebration, and multi-media ads. Through 

this program, the Department was a founding planning member and participant in the now annual 

Tiger Blue Goes Green celebration on the campus of the University of Memphis.

In 2007, the Department received a Community-Scale Air Toxics monitoring grant to help further 

research emissions from Barge traffic on the Mississippi River. The study was completed in late 

2010. As the fourth largest inland port in the United States, it is believed that this traffic could be a 

significant contributor to local air quality problems. EPA’s Office of Air Quality Planning and 

Standards is using information gathered during that study to further research the test methods 

utilized during this innovative project. This local study identified potential problems of venting into 

the air of emissions from petro-chemical barges and resulted in the tank barge industry adopting a 

new ‘Best Practices’ guide for petro-chemical tank barge operators.

The Department is currently developing and preparing to implement a new and inventive air toxics 

monitoring project across the County. This project will document actual public exposure to toxic air 

pollutants across 100 census tracts and may be used to identify suspect sources of that exposure.

G. Contingency Provisions

Section 175A of the Act requires a maintenance plan to include contingency provisions to promptly 

correct any violation of the NAAQS which occurs after redesignation of an area as an attainment 

area. In addition, in order for an area to take early action to address potential violations of the 

NAAQS before they occur, it is recommended that contingency provisions will be enacted when 

specified action levels indicate the need to do so. Shelby County is adopting a three-phase approach 

to addressing ozone related air quality problems in the area. Each phase will include increasingly 

aggressive provisions to be implemented in the event of specified indicators.

Phase 1 is designed to respond immediately to potential ozone air quality problems and to assist the 

area in meeting the new 2008 8-hour ozone NAAQS. Whenever the Department forecasts ozone 

levels above the 2008 NAAQS, an air quality alert will be issued to the local media and other 

interested parties. On such an alert, the following actions will take place:

• All open burning permits issued by the Department are suspended until the forecast shows 

improvement. During ozone season, holders of such permits are required to contact the office 

on a daily basis to determine if burning will be allowed.

• Air quality alerts, which began in 2009, will continue to be posted on the Intelligent 

Transportation System boards located on the expressway system in Shelby County, encouraging 

motorists to take actions to reduce emissions.

• The Memphis Area Transit Authority will offer greatly reduced fares on these days. The 

Department has received Congestion Mitigation and Air Quality funds, approved through the 

local MPO to support this program which began in 2009.
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• The Memphis area has a significant amount of installed standby electrical power generation 

capacity. The largest of these is a bank of standby combustion turbines operated by TVA’s 

Allen Steam Plant. Beginning with the steam plant, then adopted as standard permitting practice 

by the Department in 2008, all such equipment is prohibited from operation strictly for 

maintenance or readiness testing on ozone air quality alert days. Stationary source inspections 

now include a review of the operating days of this type of equipment.

Besides these provisions, the Department will continue to look into effective ozone alert day 

measures, and will continue an aggressive public education and outreach program which began in 

2009. The Department maintains a meteorologist on staff to produce local air quality forecasts.

These forecasts have been recognized by the states of Tennessee, Arkansas and Mississippi, as the 

primary forecasts for the region, and they use them to conduct outreach to the counties surrounding 

Shelby County. The Department will continue to work with State and local agencies to encourage 

adoption of measures to reduce ozone formation at all times, but especially during air quality alerts.

Phase 2 of the plan is designed to address potential future problems as a result of unanticipated 

increases in local emissions. This part of the plan will be implemented when the Departmentcertified triennial emissions inventory of VOCs or NOx (ozone season tons per day) exceeds the 

2006 base year attainment inventory by ten percent (10%) or more, with at least one exceedance of 

the 1997 ozone NAAQS being recorded at any nonattainment area monitor, based on certified data,

during the most recent monitoring season. On this occurrence, the Department will conduct an 

investigation into the possible causes to determine if they are attributable to reporting errors or a 

non-recurring anomaly in the local emission profile. The investigation will last no longer than three 

months when the results will be reported to the EPA and the Tennessee Air Pollution Control 

Division.

If the investigation reveals the data are valid, further action is required. Following consultation with 

the Tennessee Air Pollution Control Division and the EPA, the Department will seek to expand 

voluntary programs and develop regulations for submission to affected local legislative bodies,

and/or the Tennessee State Air Board, as appropriate, to address the causes of concern. Proof of 

adoption of such regulations will be submitted to the EPA within nine months after the end of the 

investigation. All regulatory programs will be implemented within eighteen to twenty-four months.

Such measures could include, but are not limited too:

• Programs or incentives to decrease motor vehicle use;

• Programs to require additional emissions reductions on stationary sources;

• Restrictions of certain roads or lanes for, or construction of such roads or lanes for use by, 

passenger buses or high-occupancy vehicles

• Employer-based transportation incentive plans; and,

• Additional programs for new construction of paths for use by pedestrian or non-motorized 

vehicles when economically feasible and in the public interest.

Phase 3 will be implemented when a monitored violation of the 1997 ozone NAAQS occurs in the 

nonattainment area, according to certified data, during the most recent monitoring season. Similar 

to Phase 2, on that occasion, the Department will conduct an investigation to determine if the cause 

of the violation can be attributed to errors or clearly identifiable exceptional events outside of local 

control. Prior to certification of the data, the Department will solicit the involvement of all State 
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agencies having jurisdiction in the surrounding area. The investigation will last no longer than three 

months when the results will be reported to the EPA and the Tennessee Air Pollution Control 

Division.

If the investigation reveals the data are valid, further action is required. In addition to the provisions 

described in Phase 2, according to EPA guidance, provisions required to be implemented in such 

circumstances are certain measures initially required under the area’s ‘moderate’ 

designationclassification. Those provisions are:

• Expansion and implementation of a Basic I&M program in Shelby County that meets the 

requirements of Section 182(a)(2)(B) of the CAA.

• A Reasonably Available Control Technology (RACT) regulation for legacy major sources of 

NOx emissions in Shelby County.

• Adoption of all industrial and commercial VOC controls as provided in final EPA-approved 

Control Technology Guidelines (CTGs) through the date of the recorded violation.

Within six months of theUpon conclusion of the investigation, the Department will prepare 

regulations for submission to affected local legislative bodies and/or the Tennessee State Air Board, 

as appropriate, to adopt these controls. The effective date of these controls will be within eighteen 

to twenty-four months offrom certification of final adoption by the appropriate entitythe monitored 

violation.

910. Meet All Requirements Applicable To The Area Under Section 110 And 

Part D Of The Clean Air Act

Regulations for Memphis and Shelby County were originally approved by the EPA on May 31, 

1972 (37 FR 10842 to 10894) as an appendix to the Tennessee SIP. The SIP contained a section 

that recognized the Department as the agency with authority for the control of air pollution in 

Shelby County and included a control strategy demonstration along with the Department’s 

regulations. In 1978, the City of Memphis was designated nonattainment for carbon monoxide and 

Shelby County was designated nonattainment for ozone. Nonattainment plans, along with new 

control strategy demonstrations, were developed for Memphis and Shelby County. In 1980 and 

1981 (45 FR, p. 8004, February 6, 1980; 45 FR, p. 53809, August 13, 1980; and 46 FR, p. 43970, 

September 2, 1981 (see Attachment I), the EPA approved those plans. The Department revised the 

regulations in several administrative and substantive areas. The Department adopted certain 

portions of the State regulations, revised old regulations and recodified the air pollution control 

section of Memphis and Shelby County Codes accordingly. On July 7, 1986, the State of Tennessee 

submitted to the EPA Memphis and Shelby County regulations (Board Order 17-86) as a revision to 

the SIP. The EPA placed the regulations on hold until the federally approved SIP for Tennessee and 

Memphis could be compiled. The EPA compared the federally approved State regulations and the 

federally approved Memphis regulations to determine the approvability of the revised Memphis 

regulations. The EPA's direct final approval/disapproval of the 1986 submittal was formalized in 

the Federal Register (54 FR, p. 25456, June 15, 1989 (see Attachment I)) and became effective on 

August 14, 1989.

EPA concluded that the control strategy demonstration was adequate in protecting the National 

Ambient Air Quality Standards. Consequently, the EPA approved the local regulations as a transfer 

of enforcement authority rather than as a substantive revision to the SIP. The EPA used the 
20

following conditions and conclusions to arrive at the above procedure:

• The local regulations must be equal to the corresponding federally approved State regulation.

• The local regulations cannot be treated as separable from the SIP, which the State submits and 

implements, but must be considered part of the SIP.

• As Tennessee State law requires that a local regulation be equivalent to or not less stringent 

than the corresponding state regulation, the State of Tennessee must certify to the EPA that each 

regulation has been reviewed by the State and found to meet this requirement.

• Tennessee must retain overall authority and responsibility for developing and implementing, 

including enforcing, the SIP.

Administrative materials and regulatory documents were submitted to the Tennessee Air Pollution 

Control Board on September 23, 2003 with a request that a submittal be made to EPA in order to 

revise the SIP for Memphis and Shelby County, taking into account changes that have occurred in 

the Memphis and Shelby County Air Program since 1989. Information regarding this submittal is 

found in Attachment VII.

The Tennessee Code Annotated, Section 68-201-115 (see Attachment VIII, Supplemental Support 

Documents), requires geopolitical areas within Tennessee that desire to have their own air pollution 

control programs to adopt regulations as stringent as State of Tennessee regulations. After review 

by and upon the recommendation of the Tennessee Air Pollution Control Division, the Tennessee 

Air Pollution Control Board issues a certificate granting this authority but subject to limitations as 

established by the Board. This authority continues to be granted to Shelby County and all included 

municipalities every two years, the most recent certificate having been issued for the 2008-2010 

period. Copies of these recent certificates are also found in Attachment VIII.

Regulatory changes made by the State of Tennessee will be adopted by reference by the Department 

when and where applicable, prior to the granting of authority by the Tennessee Air Pollution 

Control Board to the Department, as provided by the Tennessee Code Annotated and the Certificate 

of Exemption process. Where such authority is not transferred it remains with the State of 

Tennessee.

11. Public Comment

Public comment was sought concerning the maintenance plan revision during a comment period 

from January 31, 2014 to March 14, 2014. A public hearingPublic hearings were was held on

March 4, 2014 and March 6, 2014. Comments were received concerning the redesignation 

requestrevision to the 2010 ozone maintenance plan. Comments and response to comments are 

contained in Attachment IX. A copy of the newspaper notice is also included.