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[Federal Register Volume 77, Number 148 (Wednesday, August 1, 2012)]
[Proposed Rules]
[Pages 45532-45535]
From the Federal Register Online via the Government Printing Office [www.gpo.gov]
[FR Doc No: 2012-18799]

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ENVIRONMENTAL PROTECTION AGENCY

40 CFR Part 52

[EPA-R05-OAR-2008-0520; FRL-9708-8]

Approval and Promulgation of Implementation Plans; Michigan; 
Detroit-Ann Arbor Nonattainment Area; Fine Particulate Matter 2005 Base 
Year Emissions Inventory

AGENCY: Environmental Protection Agency (EPA).

ACTION: Proposed rule.

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SUMMARY: EPA is proposing to approve the fine particulate matter 
(PM2.5) 2005 base year emissions inventory, a portion of the 
State Implementation Plan (SIP) revision submitted by the Michigan 
Department of Environmental Quality (MDEQ) on June 13, 2008. The 
emissions inventory is part of the June 13, 2008, SIP revision that 
Michigan submitted to meet the nonattainment requirements related to 
the Detroit-Ann Arbor (Livingston, Macomb, Monroe, Oakland, St. Clair, 
Washtenaw, and Wayne Counties) nonattainment area for the 1997 annual 
PM2.5 national ambient air quality standards (NAAQS). EPA is 
taking this action pursuant to sections 110 and 172 of the Clean Air 
Act (CAA).

DATES: Comments must be received on or before August 31, 2012.

ADDRESSES: Submit your comments, identified by Docket ID No. EPA-R05-
OAR-2008-0520, by one of the following methods:
    1. www.regulations.gov: Follow the on-line instructions for 
submitting comments.
    2. Email: blakley.pamela@epa.gov.
    3. Fax: (312) 692-2450.
    4. Mail: Pamela Blakley, Chief, Control Strategies Section, Air 
Programs Branch (AR-18J), U.S. Environmental Protection Agency, 77 West 
Jackson Boulevard, Chicago, Illinois 60604.
    5. Hand Delivery: Pamela Blakley, Chief, Control Strategies 
Section, Air Programs Branch (AR-18J), U.S. Environmental Protection 
Agency, 77 West Jackson Boulevard, Chicago, Illinois 60604. Such 
deliveries are only accepted during the Regional Office normal hours of 
operation, and special arrangements should be made for deliveries of 
boxed information. The Regional Office official hours of business are 
Monday through Friday, 8:30 a.m. to 4:30 p.m., excluding Federal 
holidays.
    Instructions: Direct your comments to Docket ID No. EPA-R05-OAR-
2008-0520. EPA's policy is that all comments received will be included 
in the public

[[Page 45533]]

docket without change and may be made available online at 
www.regulations.gov, including any personal information provided, 
unless the comment includes information claimed to be Confidential 
Business Information (CBI) or other information whose disclosure is 
restricted by statute. Do not submit information that you consider to 
be CBI or otherwise protected through www.regulations.gov or email. The 
www.regulations.gov Web site is an ``anonymous access'' system, which 
means EPA will not know your identity or contact information unless you 
provide it in the body of your comment. If you send an email comment 
directly to EPA without going through www.regulations.gov your email 
address will be automatically captured and included as part of the 
comment that is placed in the public docket and made available on the 
Internet. If you submit an electronic comment, EPA recommends that you 
include your name and other contact information in the body of your 
comment and with any disk or CD-ROM you submit. If EPA cannot read your 
comment due to technical difficulties and cannot contact you for 
clarification, EPA may not be able to consider your comment. Electronic 
files should avoid the use of special characters, any form of 
encryption, and be free of any defects or viruses. For additional 
instructions on submitting comments, go to Section I of the 
SUPPLEMENTARY INFORMATION section of this document.
    Docket: All documents in the docket are listed in the 
www.regulations.gov index. Although listed in the index, some 
information is not publicly available, e.g., CBI or other information 
whose disclosure is restricted by statute. Certain other material, such 
as copyrighted material, will be publicly available only in hard copy. 
Publicly available docket materials are available either electronically 
in www.regulations.gov or in hard copy at the Environmental Protection 
Agency, Region 5, Air and Radiation Division, 77 West Jackson 
Boulevard, Chicago, Illinois 60604. This facility is open from 8:30 
a.m. to 4:30 p.m., Monday through Friday, excluding Federal holidays. 
We recommend that you telephone Carolyn Persoon, Environmental 
Engineer, at (312) 353-8290, before visiting the Region 5 office.

FOR FURTHER INFORMATION CONTACT: Carolyn Persoon, Environmental 
Engineer, Control Strategies Section, Air Programs Branch (AR-18J), 
Environmental Protection Agency, Region 5, 77 West Jackson Boulevard, 
Chicago, Illinois 60604, (312) 353-8290, persoon.carolyn@epa.gov.

SUPPLEMENTARY INFORMATION:

I. Background
II. Analysis of the State's Submittal
III. Proposed Action
IV. Statutory and Executive Order Reviews

I. Background

    On July 18, 1997 (62 FR 38652), EPA established an annual 
PM2.5 NAAQS at 15.0 micrograms per cubic meter ([micro]g/
m\3\) based on a 3-year average of annual mean PM2.5 
concentrations. On January 5, 2005 (70 FR 944), EPA published its air 
quality designations and classifications for the 1997 annual 
PM2.5 NAAQS based upon air quality monitoring data for 
calendar years 2001-2003. These designations became effective on April 
5, 2005. The Detroit-Ann Arbor area (Livingston, Macomb, Monroe, 
Oakland, St. Clair, Washtenaw, and Wayne Counties) was designated 
nonattainment for the 1997 annual PM2.5 NAAQS.
    Designation of an area as nonattainment starts the process for a 
state to develop and submit to EPA a SIP under title I, part D of the 
CAA. This SIP must include, among other elements, a demonstration of 
how the NAAQS will be attained in the nonattainment area as 
expeditiously as practicable, but no later than the date required by 
the CAA. Under CAA section 172(b), a state has up to three years after 
an area's designation as nonattainment to submit its SIP to EPA. For 
the 1997 PM2.5 NAAQS, these SIPs were due April 5, 2008. See 
40 CFR 51.1002(a).
    On June 13, 2008, Michigan submitted an attainment demonstration 
and associated reasonably available control measures (RACM), a 
reasonable further progress (RFP) plan, contingency measures, a 2005 
base year emissions inventory and other planning SIP revisions related 
to attainment of the 1997 annual PM2.5 NAAQS in Detroit Ann-
Arbor area. Subsequently, on July 5, 2011, MDEQ submitted a 
redesignation request for the Detroit-Ann Arbor area showing that the 
area had attained the 1997 annual PM2.5 NAAQS based upon 
complete, quality-assured and certified ambient air monitoring data for 
the 2007-2009 and 2008-2010 design value periods. On July 5, 2012 (77 
FR 39659) EPA proposed to determine that the area has attained the 1997 
annual and 2006 24-hour PM2.5 NAAQS based on the most recent 
three-years of complete certified data. If EPA finalizes these proposed 
determinations, it would suspend the obligation for the area to submit 
an attainment demonstration and associated RACM, RFP plan, contingency 
measures, and other planning SIP revisions related to attainment of 
each of these PM2.5 standards so long as the area continues 
to attain the NAAQS. See 40 CFR 51.1004(c).
    With regard to the 1997 PM2.5 standard, EPA notes that 
its proposed determination of attainment did not suspend the obligation 
for the State to submit an emissions inventory under CAA section 
172(c)(3), and EPA is therefore proposing to act upon this portion of 
the submission. Section 172(c)(3) of the CAA requires submission and 
approval of a comprehensive, accurate, and current inventory of actual 
emissions. EPA is proposing to approve the emissions inventory portion 
of the SIP revision submitted by MDEQ on June 13, 2008, as meeting the 
requirements of section 172(c)(3).

II. Analysis of the State's Submittal

    As discussed above, section 172(c)(3) of the CAA requires areas to 
submit a comprehensive, accurate and current inventory of actual 
emissions from all sources of the relevant pollutant or pollutants in 
such area. MDEQ selected 2005 as base year for the emissions inventory 
per 40 CFR 51.1008(b). Emissions contained in MDEQ's June 13, 2008, SIP 
revision cover the general source categories of electric generating 
unit (EGU) point sources, non-EGU point sources, area sources, non-road 
mobile sources, marine-airport-rail (MAR) sources, on-road mobile 
sources, and modeled ammonia (NH3) sources. A detailed 
discussion of the emissions inventory development can be found in 
Appendix C of the MDEQ submittal; a summary is provided below.
    The table below provides a summary of the annual 2005 emissions of 
nitrogen oxides (NOX), direct PM2.5, volatile 
organic compounds (VOCs), sulfur dioxide (SO2), and modeled 
NH3 included in MDEQ's submittal.

[[Page 45534]]

                        Table 1--2005 Annual NOX Emissions for the Detroit-Ann Arbor Area
                                                 [Tons per year]
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                                                   Non-EGU
              County                Area source     point       On-road      Nonroad     EGU point    MAR source
                                                    source       source       source       source
----------------------------------------------------------------------------------------------------------------
Livingston........................       647.95       654.19      5417.90      1288.10         5.91        83.97
Macomb............................      2498.84       720.91     14121.20      5054.00       134.42       589.24
Monroe............................       606.83      3774.97      5454.40      1404.17     38483.26       958.21
Oakland...........................      4535.97      1096.91     31088.00      7153.48        71397       822.22
St. Clair.........................       563.69      1978.16      3812.60      1519.17     19690.31       557.31
Washtenaw.........................      1056.74      1050.26      9962.20      2999.65         1.45       203.64
Wayne.............................      6039.67      9408.81     43981.40      9410.39     11369.40      4166.30
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                   Table 2--2005 Annual Direct PM2.5 Emissions for the Detroit-Ann Arbor Area
                                                 [Tons per year]
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                                                   Non-EGU
              County                Area source     point       On-road      Nonroad     EGU point    MAR source
                                                    source       source       source       source
----------------------------------------------------------------------------------------------------------------
Livingston........................      1424.61         7.35        89.47       120.62         0.10         2.55
Macomb............................       468.79       113.13       265.44       339.65        12.83        13.91
Monroe............................      1176.54       668.31        91.00       121.96       597.66        29.11
Oakland...........................       761.34       124.44       559.86       614.54         8.86        23.91
St. Clair.........................       341.99       112.50        71.06       108.58       142.13        18.30
Washtenaw.........................       245.58        86.86       170.02      2632.17         0.02         6.02
Wayne.............................       920.34      1342.36       792.05       644.00       352.76        99.30
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                        Table 3--2005 Annual VOC Emissions for the Detroit-Ann Arbor Area
                                                 [Tons per year]
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                                                   Non-EGU
              County                Area source     point       On-road      Nonroad     EGU point    MAR source
                                                    source       source       source       source
----------------------------------------------------------------------------------------------------------------
Livingston........................      4338.29       176.95      1696.90      1927.32         0.19        23.38
Macomb............................     11807.62      2271.05      5784.70      4910.60        39.67       114.92
Monroe............................      3663.62      3555.73      1742.60      1893.76       300.92        61.48
Oakland...........................     17387.40      2487.15     11918.00      9862.11         8.54        93.30
St. Clair.........................      2671.18      1379.00      1550.90      2166.18       285.49        43.26
Washtenaw.........................      5406.23       388.83      3348.70      2632.17            0        19.96
Wayne.............................     24887.81      6319.64     16931.10      8396.96       175.34       460.03
----------------------------------------------------------------------------------------------------------------

                        Table 4--2005 Annual SO2 Emissions for the Detroit-Ann Arbor Area
                                                 [Tons per year]
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                                                   Non-EGU
              County                Area source     point       On-road      Nonroad     EGU point    MAR source
                                                    source       source       source       source
----------------------------------------------------------------------------------------------------------------
Livingston........................       226.78        13.70        71.32       139.72         0.07         7.53
Macomb............................       930.59        48.26       221.44       426.07         4.32        38.28
Monroe............................       181.05      7733.15        72.83       139.75    120386.70        82.64
Oakland...........................      1187.41       274.99       458.48       683.20         3.43        64.67
St. Clair.........................       238.80      1752.75        59.06       125.05     66576.72        72.99
Washtenaw.........................       325.00        20.75       136.90       342.20         0.28        16.93
Wayne.............................      1540.36      6396.53       647.06       883.35     40780.46       398.38
----------------------------------------------------------------------------------------------------------------

                                            Table 5--2005 Annual NH3 Emissions for the Detroit-Ann Arbor Area
                                                                     [Tons per year]
--------------------------------------------------------------------------------------------------------------------------------------------------------
                                                                              Non-EGU
                            County                             Area source     point       On-road      Nonroad     EGU point    MAR source  Modeled NH3
                                                                               source       source       source       source
--------------------------------------------------------------------------------------------------------------------------------------------------------
Livingston...................................................         3.32         0.15        200.7         1.30            0         0.05       280.31
Macomb.......................................................        13.42        16.24       645.87         4.42            0         0.27        224.2
Monroe.......................................................         2.88        79.41       205.50         1.44         2.59         0.57       638.69
Oakland......................................................        24.91        19.73      1319.26         7.24            0         0.44        84.74
St. Clair....................................................         3.29        10.33       171.71         1.71        11.78         0.34       273.56
Washtenaw....................................................         6.71         4.48       388.25         2.66            0         0.12       738.07
Wayne........................................................        32.01       132.61      1859.10         8.48         1.80         1.46       113.69
--------------------------------------------------------------------------------------------------------------------------------------------------------

[[Page 45535]]

    States develop the 172(c)(3) emissions inventory by the 
incorporation of data from multiple sources. States were required to 
develop and submit to EPA a triennial emissions inventory according to 
the Consolidated Emissions Reporting Rule for all source categories 
(i.e., point, area, nonroad mobile and on-road mobile). This inventory 
often forms the basis for data that states update with more recent 
information and data that they use in their attainment demonstration 
modeling inventory. Such was the case in the development of the 2005 
emissions inventory that MDEQ submitted in its attainment SIP for the 
Detroit-Ann Arbor area. The 2005 emissions inventory was based on data 
developed with the Lake Michigan Air Directors Consortium (LADCO) and 
the Midwest Regional Planning Organization (MRPO) and submitted by the 
states to the 2005 National Emissions Inventory (NEI). Data from many 
databases, studies and models (e.g., Vehicle Miles Traveled, fuel 
programs, the NONROAD 2002 model data for commercial marine vessels, 
locomotives and Clean Air Market Division, etc.) resulted in the 
inventory submitted in this SIP. The data were developed according to 
current EPA emissions inventory guidance ``Emissions Inventory Guidance 
for Implementation of Ozone and Particulate Matter National Ambient Air 
Quality Standards (NAAQS) and Regional Haze Regulations'' (August 2005) 
and a quality assurance project plan that was developed through LADCO 
and approved by EPA.
    EPA has reviewed MDEQ's emissions inventory and proposes to 
determine that it is adequate for the purposes of meeting section 
172(c)(3) emissions inventory requirement. Further, EPA's review shows 
that the emissions were developed consistent with the CAA, implementing 
regulations and EPA guidance for emission inventories.

III. Proposed Action

    EPA is proposing to approve the 2005 base year emissions inventory 
portion of the SIP revision submitted by MDEQ on June 13, 2008. EPA is 
making the determination that this action is consistent with sections 
110 and 172 of the CAA.

IV. Statutory and Executive Order Reviews

    Under the CAA, the Administrator is required to approve a SIP 
submission that complies with the provisions of the CAA and applicable 
federal regulations. 42 U.S.C. 7410(k); 40 CFR 52.02(a). Thus, in 
reviewing SIP submissions, EPA's role is to approve state choices, 
provided that they meet the criteria of the CAA. Accordingly, this 
proposed action merely approves state law as meeting federal 
requirements and does not impose additional requirements beyond those 
imposed by state law. For that reason, this proposed action:
     Is not a ``significant regulatory action'' subject to 
review by the Office of Management and Budget under Executive Order 
12866 (58 FR 51735, October 4, 1993);
     Does not impose an information collection burden under the 
provisions of the Paperwork Reduction Act (44 U.S.C. 3501 et seq.);
     Is certified as not having a significant economic impact 
on a substantial number of small entities under the Regulatory 
Flexibility Act (5 U.S.C. 601 et seq.);
     Does not contain any unfunded mandate or significantly or 
uniquely affect small governments, as described in the Unfunded 
Mandates Reform Act of 1995 (Pub. L. 104-4);
     Does not have Federalism implications as specified in 
Executive Order 13132 (64 F43255, August 10, 1999);
     Is not an economically significant regulatory action based 
on health or safety risks subject to Executive Order 13045 (62 FR 
19885, April 23, 1997);
     Is not a significant regulatory action subject to 
Executive Order 13211 (66 FR 28355, May 22, 2001);
     Is not subject to requirements of Section 12(d) of the 
National Technology Transfer and Advancement Act of 1995 (15 U.S.C. 272 
note) because application of those requirements would be inconsistent 
with the CAA; and
     Does not provide EPA with the discretionary authority to 
address, as appropriate, disproportionate human health or environmental 
effects, using practicable and legally permissible methods, under 
Executive Order 12898 (59 FR 7629, February 16, 1994).
    In addition, this proposed rule does not have tribal implications 
as specified by Executive Order 13175 (65 FR 67249, November 9, 2000), 
because the SIP is not approved to apply in Indian country located in 
the Commonwealth, and EPA notes that it will not impose substantial 
direct costs on tribal governments or preempt tribal law.

List of Subjects in 40 CFR Part 52

    Environmental protection, Air pollution control, Particulate 
matter, Reporting and record-keeping requirements.

    Dated: July 13, 2012.
Susan Hedman,
Regional Administrator, Region 5.
[FR Doc. 2012-18799 Filed 7-31-12; 8:45 am]
BILLING CODE 6560-50-P
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