UNITEDSTATESENVIRONMENTALPROTECTIONAGENCYREGIONIII1650ArchStreetPhiladelphia,Pennsylvania19103DATE:26May2011SUBJECT:TechnicalSupportDocument—DistrictofColumbia,Maryland,andVirginia;2002BaseYearEmissionsInventory,ReasonableFurtherProgressPlan,ContingencyMeasures,ReasonablyAvailableControlMeasures,andTransportationConformityBudgetsfortheMetropolitanWashington,DC19978-HourOzoneModerateNonattainmentAreaFROM:MariaA.’Pino,SeniorAirQualityPlanningSpecialistOfficeofAirProgramPlanningTO:File(2J2sJ//ITHRU:CristinaFernandez,AssociateDirectofOfficeofAirProgramPlanningThisdocumentprovidesatechnicalreviewofrevisionstotheDistrictofColumbia,Maryland,andVirginiaStateImplementationPlans(SIPs)fortheWashington,DC-MD-VAmoderate19978-hourozonenonattainmentarea(theWashingtonArea).TheDistrictofColumbiaDepartmentoftheEnvironment(DDOE),theMarylandDepartmentoftheEnvironment(MDE),andtheVirginiaDepartmentofEnvironmentalQuality(VADEQ)workedtogethertodevelopajointplanfortheWashingtonAreatoaddressemissionsinventory,reasonablefurtherprogress(RFP),reasonablyavailablecontrolmeasures(RACM)analysis,andRFPcontingencymeasurerequirementsforthe19978-hourozonenationalambientairqualitystandard(NAAQS).Thisplan,entitled“PlantoImproveAirQualityintheWashington,DCMD-VARegion,StateImplementationPlan(SIP)for8-HourOzoneStandard,ModerateAreaSIP,”willbereferredtoas“theWashingtonArea8-hourozoneplan”throughoutthisdocument.TheWashingtonArea8-hourozoneplanwassubmittedtotheEnvironmentalProtectionAgency(EPA)asaSIPrevisionbyDDOEonJune12,2007,byMDEonJune4,2007,andbyVADEQonJune12,2007.TheseSIPrevisionsalsoestablishamotorvehicleemissionsbudget(MVEB)for2008fortheWashingtonArea.I.BACKGROUNDA.GeneralRequirementsSection182oftheCleanAirAct(CAA)ands19978-hourozoneregulations(40CFR51.910)requireeachmoderateandabove8-hourozonenonattainmentareatosubmitanemissionsinventoryandRFPSIPrevisionthatdescribeshowtheareawillachieveactualemissionsreductionsofvolatileorganiccompounds(VOC)andnitrogenoxides(NOx)fromabaselineemissionsinventory.Anemissionsinventoryisanestimationofactualemissionsofairpollutantsinanarea.TheemissionsinventoryforanozonenonattainmentareacontainsVOCandNOxemissions,whichareprecursorstoozoneformation.Inthiscase,a“baseline”emissionsinventoryisrequiredfortheyear2002.Pursuanttosection172(c)(1)oftheCAA,statesarerequiredtosubmitplansfornonattainmentareasthatprovidefortheimplementofallRACMasexpeditiouslyaspracticable.Specifically,section172(c)(1)statesthefollowing:“Suchplanprovisionsshallprovidefortheimplementationofallreasonablyavailablecontrolmeasuresasexpeditiouslyaspracticable(includingsuchreductionsinemissionsfromexistingsourcesintheareaasmaybeobtainedthroughtheadoption,ataminimum,ofreasonablyavailablecontroltechnology)andshallprovideforattainmentofthenationalprimaryambientairqualitystandards.”ControlmeasuresthatwouldadvancetheattainmentdateareconsideredRACMandmustbeincludedintheSIP.RACMarenecessarytoensurethattheattainmentdateisachieved“asexpeditiousaspracticable.”Phase1ofthe8-hourozoneimplementationrule,publishedonApril30,2004(69FR23951),setoutcriteriaforclassifyingnonattainmentareasunderthe19978-hourozonestandard.ThePhase1rulealsoaddressedrevocationofthe1-hourNAAQS;howanti-backslidingprincipleswillensurecontinuedprogresstowardattainmentofthe8-hourozoneNAAQS;attainmentdates;andthetimingofemissionsreductionsneededforattainment.OnNovember29,2005,EPApublishedthePhase2finalruleforimplementationofthe8-hourstandard.ThePhase2ruleaddressedtheRFPcontrolandplanningobligationsastheyapplytoareasdesignatednonattainmentforthe19978-hourozoneNAAQS(70FR71612).ThePhase2finalrulewasrevisedonJune8,2007(72FR31727).Amongotherthings,thePhase1and2rulesoutlinetheSIPrequirementsanddeadlinesforvariousrequirementsinareasdesignatedasmoderatenonattainment.TherulessetaduedateofJune15,2007fortherequiredbaseyearemissioninventory,RFPplan,modelingandattainmentdemonstration,RACM,MVEB,andcontingencymeasures(40CFR51.908(a)).Section182(b)(1)oftheCAAandEPA’s19978-hourozoneimplementationrule(40CFR51.910)requireeach8-hourozonenonattainmentareadesignatedmoderateandabovetosubmitforreviewandapprovalintoitsSIPanemissionsinventoryandRFPplanthatdescribeshowtheareawillachieveactualemissionsreductionsofVOCandNOxfromabaselineemissionsinventory.Foramoderate8-hourozonenonattainmentareawithanattainmentdatemorethan5yearsafterdesignation,a15percentRFPreductioninozoneprecursoremissionsisrequiredwithin6years(2002-2008).Foramoderateareawithanapproved15percentrate-ofprogress(ROP)planunderthe1-hourstandard,statescanusereductionsfromVOCorNOxoracombinationofeither.ForamoderateareawithoutandapprovedROPplan,a15%reductioninVOCisrequired.Thereductionsmaycomefromanywherewithinthe8-hournonattainmentarea.Table1outlinestheserequirements.2Table1.RFPRequirementsforModerate8-HourOzoneNonattainmentAreaswithAttainmentDatesMorethan5YearsafterDesignationAreaRequirement40CFRReferenceWithapproved15%VOC15%VOCandlorNOxreductions51.910(a)(1)(iii)(B)(2)&ROPplan(2002—2008)51.910(b)(2)(b)(ii)Withoutapproved15%15%VOCreductions(2002-2008).51.910(a)(1)(iii)(B)(1)VOCROPplanThereductionsmaycomefromanywherewithinthe8-hournonattainmentarea.Inaddition,RFPplansmustincludecontingencymeasures,whichareadditionalcontrolsthatwouldbeimplementediftheareafailstomakereasonablefurtherprogress.$CAAsection172(c)(9).Implementationofthesemeasureswouldprovideadditionalemissionsreductionsofupto3percentoftheadjustedbaseyearinventory(orlesserpercentagethatwillmakeuptheidentifiedshortfall).RFPplansmustalsoincludeaMVEB,whichistheallowableon-roadmobileemissionanareacanproduceandcontinuetodemonstrateRFP.40CFR93.B.TheWashingtonAreaIn1997,EPArevisedthehealth-basedNAAQSforozone,settingitat0.08partspermillion(ppm)averagedoveran8-hourtimeframe.EPAsetthe8-hourozonestandardbasedonscientificevidencedemonstratingthatozonecausesadversehealtheffectsatlowerozoneconcentrationsandoverlongerperiodsoftime,thanwasunderstoodwhenthepre-existing1-hourozonestandardwasset.EPAdeterminedthatthe8-hourstandardwouldbemoreprotectiveofhumanhealth,especiallychildrenandadultswhoareactiveoutdoors,andindividualswithapre-existingrespiratorydisease,suchasasthma.OnApril30,2004(69FR23951),EPAfinalizeditsattainment/nonattainmentdesignationsforareasacrossthecountrywithrespecttothe8-hourozonestandard.TheseactionsbecameeffectiveonJune15,2004.AmongthosenonattainmentareasistheWashingtonArea.ThisWashingtonAreaincludestheDistrictofColumbia(theDistrict);Arlington,Fairfax,Loudoun,andPrinceWilliamCountiesandthecitiesofAlexandria,Fairfax,FallsChurch,Manassas,andManassasParkinVirginia(theNorthernVirginiaarea)andCalvert,Charles,Frederick,Montgomery,andPrinceGeorge’sCountiesinMaryland.PursuanttoPhase1ofthe8-hourozoneimplementationrule,anareawasclassifiedunderSubpart2oftheCAAbasedonits8-hourdesignvalueifthatareahada1-hourdesignvalueatorabove0.121ppm(thelowest1-hourdesignvalueinTable1ofSubpart2).Basedonthiscriterion,theWashingtonAreawasclassifiedunderSubpart2asamoderatenonattainmentarea.See40CFR81.309,81.321and81.347.II.EVALUATIONOFSTATESUBMITTALA.BaseYearEmissionsInventoryAnemissionsinventory,requiredbysection172(c)(3)oftheCAA,isacomprehensive,3accurate,andcurrentinventoryofactualemissions.Forozonenonattainmentareas,theemissionsinventoryneedstocontainVOCandNOxemissionsbecausethesepollutantsareprecursorsofozone.EPArecommended2002asthebaseyearemissionsinventory,andisthereforethestartingpointforcalculatingRFP.This2002baseyearemissionsinventoryincludesallpoint,area,nonroadmobile,andonroadmobilesourceemissionsintheWashingtonArea.The2002baseyearemissionsinventorymustcoveremissionsonanannualbasisandalsoforonatypicalozoneseasondaybasis.TheinventoriesforRFPandattainmentdemonstrationplanningarecomputedbasedona“typical”ozoneseasonday.DDOE,MDEandVADEQ(theStates)alongwiththeMetropolitanWashingtonCouncilofGovernments(MWCOG)workedtogethertodevelopa2002baseyearinventoryfortheWashingtonArea.ThisinventoryisfoundinChapter3andAppendixBoftheWashingtonArea8-hourozoneplan.AsummaryoftheWashingtonArea2002baseyearVOCandNOxemissionsinventoryisincludedinTables2aand2b,below.Table2a.WashingtonArea2002BaseYearVOCEmissionsinTonsperDay(tad)SourceCategoryDistrictofMarylandVirginiaSourceCategoryColumbiaTotalsPoint0.244.68.0712.91Area16.8192.4983.35192.64NonroadMobile8.9163.8253.06125.79On-roadMobile13.0956.1347.71116.94Total(excludingbiogenics)39.05217.04192.19448.28BiogenicEmissions13.63166.7134.41314.74Total52.68383.74326.6763.02Table2b.WashingtonArea2002BaseYearNOxEmissionsinTonsperDay(tpd)Districtof...SourceCategorySourceSector.MarylandVirginiaColumbiaTotalPoint4.89155.7859.93220.6Area2.166.7715.3224.25NonroadMobile10.5434.2140.9785.72On-roadMobile23.7132.27110.68266.65Total(excludingbiogenics)41.29329.03226.9597.22BiogenicEmissions0.11.751.223.07Total41.39330.78228.12600.29EPARegionIII’sAirQualityAnalysisBranch(AQAB)reviewedthe2002baseyearinventoryfortheWashingtonAreausingtheappropriateEPApolicyandguidance.Pleaseseetheattached“TechnicalSupportDocument(TSD)fortheEmissionInventoriesfortheWashingtonDC-MD-VA8HourOzoneStateImplementationPlan(SIP)BaseYearInventory,”preparedbyJanetC.KremerandsignedbyWalterWilkie,AirQualityAnalysisBranchChief,onFebruary4,2009(WashingtonAreaEmissionInventoryTSD).Asdiscussedindetailinthe4WashingtonAreaEmissionInventoryTSD,theprocedures,methodologies,andresultusedtodeveloptheWashingtonArea2002baseyearinventoryareapprovable.B.AdjustedBaseYearInventory,2008RFPTargetLevelsTheprocessfordeterminingtheemissionsbaselinefromwhichtheRFPreductionsarecalculatedisdescribedinsection182(b)(l)oftheCAAand40CFR51.910.Thisbaselinevaluehasbeendeterminedtobethe2002adjustedbaseyearinventory.Sections182(b)(1)(B)and(D)requiretheexclusionfromthebaseyearinventoryofemissionsbenefitsresultingfromtheFederalMotorVehicleControlProgram(FMVCP)regulationspromulgatedbyJanuary1,1990andtheReidVaporPressure(RVP)regulationspromulgatedJune11,1990(55FR23666).TheFMVCPandRVPemissionsreductionsaredeterminedbythestateusingEPA’son-roadmobilesourceemissionsmodelingsoftware,MOBILE6.TheFMVCPandRVPemissionreduétionsarethenremovedfromthebaseyearinventorybythestate,resultinginanadjustedbaseyearinventory.TheemissionreductionsneededtosatisfytheRFPrequirementarethencalculatedfromtheadjustedbaseyearinventory.ThesereductionsarethensubtractedfromtheadjustedbaseyearinventorytoestablishtheemissionstargetfortheRFPmilestoneyear(2008).FormoderateareasliketheWashingtonArea,theCAAspecifiesa15percentreductioninozoneprecursoremissionsoveraninitial6-yearperiod.InthePhase2Rule(70FR71612),EPAinterpretedthisrequirementforareasthatwerealsodesignatednonattainmentandclassifiedasmoderateorhigherforthe1-hourozonestandard.InthePhase2Rule,EPAprovidedthatanareaclassifiedasmoderateorhigherthathasthesameboundariesasanarea,orisentirelycomposedofseveralareasorportionsofareas,forwhichEPAfullyapproveda15percentplanforthe1-hourNAAQS,isconsideredtohavemettherequirementsofsection182(b)(1)oftheCAAforthe8-hourNAAQS.Inthissituation,amoderatenonattainmentareaissubjecttoRFPundersection172(c)(2)oftheCAAandshallsubmit,nolaterthan3yearsafterdesignationforthe8-hourNAAQS,aSIPrevisionthatmeetstherequirementsof40CFR51.910(b)(2).TheRFPSIPrevisionmustprovidefora15percentemissionreduction(eitherNOxandlorVOC)accountingforanygrowththatoccursduringthe6-yearperiodfollowingthebaselineemissionsinventoryyear,thatis,2002-2008.TheWashingtonnonattainmentareaunderthe1-hourozonestandardwasclassifiedassevere.Forthe1-hourozoneNAAQS,EPAfullyapprovedthe15%ROPplansfortheWashington,DC1-hoursevereozonenonattainmentareaonAugust5,1999(64FR42600),July19,2000(65FR44686),andOctober6,2000(65FR59727).Therefore,accordingtothePhase2Rule,theRFPplanfortheWashingtonAreamayuseeitherNOxorVOCemissionsreductions(orboth)toachievethe15percentemissionreductionrequirement.Accordingtosection182(b)(1)(D)oftheCAA,emissionreductionsthatresultedfromtheFMVCPandRVPrulespromulgatedpriorto1990arenotcreditableforachievingRFPemissionreductions.Therefore,the2002baseyearinventorymustbeadjustedbysubtractingtheVOCandNOxemissionreductionsthatareexpectedtooccurbetween2002andthefuturemilestoneyearsduetotheFMVCPandRVPrules.5Theadjustmentsarecalculatedusingthefollowingsteps:A)EstimatetheactualanthropogenicbaseyearinventoryforbothVOCandNOxin2002withall2002controlprogramsinplace.B)Usingthesamehighwayvehicleactivityinputsusedtocalculatetheactual2002inventory,runtheappropriatemotorvehicleemissionsmodelfor2002andfor2008withallpost-1990CAAmeasuresturnedoff.Anyotherlocalinputsforvehicleinspectionandmaintenance(JIM)programsshouldbesetaccordingtotheprogramthatwasrequiredtobeinplacein1990.FuelRVPshouldbesetat9.0or7.8dependingontheRVPrequiredinthelocalareaasaresultoffuelRVPregulationspromulgatedinJune1990.C)Calculatethedifferencebetween2002and2008VOCemissionsfactorscalculatedinStepBandmultiplyby2002vehiclemilestraveled(VMT).TheresultistheVOCemissionsreductionsthatwilloccurbetween2002and2008withoutthebenefitsofanypost-1990CAAmeasures.Thesearethenon-creditableVOCreductionsthatoccuroverthisperiod.Calculatethedifferencebetween2002and2008NOxemissionsfactorscalculatedinStepBandmultiplyby2002VMT.ThisresultistheNOxemissionsreductionsthatwilloccurbetween2002and2008withoutthebenefitsofanypost-1990CAAmeasures.Thesearethenon-creditableNOxreductionsthatoccuroverthisperiod.D)Subtractthenon-creditableVOCreductionscalculatedinStepCfromtheactualanthropogenic2002VOCinventoryestimatedinStepA.Subtractthenon-creditableNOxreductionscalculatedinStepCfromtheactualanthropogenic2002NOxinventoryestimatedinStepA.TheseadjustedVOCandNOxinventoriesarethebasisforcalculatingthetargetlevelofemissionsin2008.E)ThetargetlevelofVOCandNOxemissionsin2008neededtomeetthe2008ROPrequirementisanycombinationofVOCandNOxreductionsfromtheadjustedinventoriescalculatedinStepDthattotal18percent.Forexample,thetargetlevelofVOCemissionsin2008couldbea10percentreductionfromtheadjusted.TheStatessetsoutthecalculationsfortheadjustedbaseyearinventoryand2008RFPtargetlevelsinSection5oftheWashingtonArea8-hourozoneplan.A)TheWashingtonArea2002anthropogenicbaseyearinventoryisfoundinTable5-1oftheWashingtonArea8-hourozoneplan,andissummarizedinTable3,below.Table3.WashingtonArea2002AnthronoenicBaseYearInventory(OzoneSeasontnd)SourceCategoryVOCNOxPoint12.91220.6Area192.6424.25Nonroad125.7985.72On-Road116.94266.65Total448.28597.226B&C)TheStatescalculatedthenon-creditableemissionreductionsbetween2002and2008bymodelingits2002and2008motorvehicleemissionswithallpost-1990CAAmeasuresturnedoff,andcalculatingthedifference.SeeTables5-2,5-3,and5-4oftheWashingtonArea8-hourozoneplan.Thenon-creditablereductionsarecalculatedinTable4,below.Table4.WashingtonAreaNon-CreditableEmissionReductions(OzoneSeasontpd)SourceCategoryVOCNOx(i)2002On-Road166.55308.24(ii)2008On-Road154.10276.63Non-creditableReductions(i)—(ii)12.4531.61D&E)TheState’scalculationsoftheWashingtonArea2002VOCinventoryadjustedto2008andtheVOCtargetlevelfor2008arefoundinTable5-5oftheWashingtonArea8-hourozoneplan,andaresummarizedinTable5,below.Table5.WashingtonArea2008RFPTargetLevelCalculations(OzoneSeasontpd)DescriptionFormulaVOCA2002Rate-OfProgressBaseYearInventory448.28BFMVCP/RVPReductionsBetween2002And200812.45C2002AdjustedBaseYearInventoryRelativeTo2008A-B435.83DFPRatio15%EmissionsReductionsRequiredBetween2002&2008C*D65.37FrargetLevelfor2008C-E370.45PleasenotethattheStateselectedtoRFPintheWashingtonAreausingonlyVOCreductions.AsexplainedinSectionA.Iofthisdocument,thisisallowable.Amoderate8-hourozonenonattainmentareawithandapproved15percentROPplanunderthe1-hourstandardcanusereductionsfromVOCorNOxoracombinationofeither.C.ProjectedInventoriesandDeterminationofRFPTheStatesdescribestheirmethodsusedfordevelopingits2008projectedVOCandNOxinventoriesinSection4.0oftheWashingtonArea8-hourozoneplan.Projecteduncontrolledandcontrolled2008VOCandNOxemissionsarefoundTables4-5and4-6oftheWashingtonArea8-hourozoneplan.EPARegionIII’sAQABreviewedtheproceduresusedtodevelopitsprojectedinventoriesandfoundthemtobereasonable.PleaseseetheattachedWashingtonAreaEmissionInventoryTSD.Projectedcontrolled2008emissionsfortheWashingtonAreaaresummarizedinTable4-9and4-10oftheWashingtonArea8-hourozoneplan.ThedatafromTables4-9and4-10ispresentedinTable6,below.7Table6.WashingtonArea2008ProjectedControlledVOC&NOxEmissions(tpd)EmissionSourceVOCEmissionsNOxEmissionsCategory(tpd)(tpd)Point13.98229.36Area181.5926.93Nonroad92.4876.91Mobile70.98160.30Total358.84493.22Todetermineif2008RFPismetintheWashingtonArea,thetotalprojectedcontrolledemissionsmustbecomparedtothetargetlevelscalculatedintheprevioussectionofthisdocument.AsshownbelowinTable7,thetotalVOCemissionprojectionsmeetthe2008RFPemissiontarget.Therefore,the2008RFPintheWashingtonAreaisdemonstrated.Table7.DeterminationofwhetherRFPismetin2008intheWashingtonArea..VOCEmissionsDescription(tpd)ATotal2008ProjectedControlledEmissions358.84BTargetLevelfor2008370.45R1?PmetifA<BYesD.ControlMeasuresandEmissionReductionsforRFPThecontrolmeasurestheStatestookcreditforinordertomeettheRFPrequirementintheWashingtonAreaaredescribedinSection6.0oftheWashingtonArea8-hourozoneplan.TomeettheRFPrequirementfortheWashingtonArea,theStatesusedacombinationofareasourcecontrol,nonroadmobile,andon-roadmobilemeasures.1.AreaSourceMeasures.MobileRepairandRefinishingThisruleestablishesVOClimitsforpaintsusinginmobilerepairandrefinishing.TheVOClimitsareconsistentwithfederallimitsformobileequipmentrefinishingmaterials.Therulealsorequiresimprovedtransferefficiencyapplicationequipment,enclosedsprayguncleaning,andminimaltraining.Thisruleappliestoallmanufacturersofpaintsusedinmobilerepairandrefinishingandoperatorsofmobilerepairandrefinishingfacilities.•PortableFuelContainersRule,PhaseIThismeasureintroducesperformancestandardsforportablefuelcontainersandspouts,andisintendedtoreduceemissionsfromstorage,transportandrefuelingactivities.Therulealsoincludedadministrativeandlabelingrequirements.8•ArchitecturalandIndustrialMaintenance(AIM)CoatingsAfederalmeasurerequiresreformulationofAIMcoatings,whicharefield-appliedcoatingsusedbyindustry,contractors,andhomeownerstocoathouses,buildings,highwaysurfaces,andindustrialequipmentfordecorativeorprotectivepurposes.VOCemissionsresultfromtheevaporationofsolventsfromthecoatingsduringapplicationanddrying.•ReformulatedConsumerProductsRule(ConsumerandCommercialProducts),PhaseIConsumerandcommercialproductsareitemssoldtoretailcustomersforhousehold,personalorautomotiveuse,alongwiththeproductsmarketedbywholesaledistributorsforuseininstitutionalorcommercialsettingssuchasbeautyshops,schools,andhospitals.VOCemissionsresultfromtheevaporationofsolventcontentsintheproductsorsolventsusedaspropellants.ThismeasurerequiresthereformulationofcertainconsumerproductstoreducetheirVOCcontent.•SolventCleaningOperationsRuleThisruleestablisheshardwareandoperatingrequirementsandalternativecomplianceoptionsforvaporcleaningmachinesusedtocleanmetalparts.Thesemachinesareusedinmanufacturingoperationstocleangrease,wax,oilandothercontaminantsfrompartswhenahighlevelorcleanlinessisnecessary.Therulealsoaffectscoldcleaners,whichareusedinautomobileandmaintenancefacilitiesandindustrialmaintenanceshops.Theruleappliestoallcountiesinthenonattainmentarea.•ReformulatedConsumerProductsRule(ConsumerandCommercialProducts),PhaseIIPhaseIIoftheConsumerandCommercialProductsRulecontainsmorestringentVOCcontentlimitsthantheexistingfederalconsumerproductsnile.Therulealsocontainsrequirementsforlabelingandreporting.Manufacturersofvariousspecialtychemicalsnamedintherule,suchasaerosoladhesives,floorwaxstrippers,drycleaningfluidsandgeneralpurposecleanersareaffectedbythisrule.AreaSource2008EmissionReductions:30.98tpdVOCand0tpdNOx.2.NonroadMeasures—NONROADModelTheStatescalculatedtheemissionreductionsfor2008RFPusingtheEPANONROADmodelforthefollowingmeasures:•Non-RoadGasolineEnginesRule-PhaseIandIIEmissionsStandardsforGasoline-PoweredNonroadUtilityEnginesThisfederalmeasureestablishedemissionsforsmallnonroad,spark-ignition(i.e.,gasolinepowered)utilityengines.Themeasureaffectsgasoline-powered(orotherspark-ignition)lawnandgardenequipment,constructionequipment,andotherutilityequipmentratedatorbelow19kilowatts(anequivalentof25orfewerhorsepower).Phase2oftheruleappliedfurthercontrolsonhandheldandnon-handheldoutdoorequipment.(See60FR34581,65FR24267,and64FR15207.)9•EPANon-RoadDieselEnginesRule-EmissionsStandardsforDiesel-PoweredNon-RoadUtilityEnginesof50orMoreHorsepowerThisfederalmeasuresetsemissionsstandardsfornonroad,compression-ignitionutilityenginesratedat37kilowattsorabove.Thismeasureappliestoallcompression-ignitionenginesexceptenginesusedinaircraft,marinevessels,locomotivesandundergroundminingactivity.NOxemissionsresultfromcombustionofdieselfuelusedtopowerthisequipment.(See63FR56967and69FR38957.)•EmissionsStandardsforSparkIgnitionMarineEnginesThisfederalmeasurecontrolsexhaustemissionsfromnewspark-ignitiongasolinemarineengines,includingoutboardengines,personalwatercraftengines,andjetboatengines.Oncetheprogramisfullyimplemented,manufacturersoftheseenginesmustdemonstratetoEPAthathydrocarbonemissionsarereduced,by75%frompresentlevels,bytestingenginesrepresentativeoftheproductlinebeforesaleandafteruse.(See61FR52087.)•EmissionsStandardsforLargeSparkIgnitionEnginesThisfederalmeasurecontrolsVOCandNOxemissionsfromseveralgroupsofpreviouslyunregulatednonroadengines,includinglargeindustrialspark-ignitionengines,recreationalvehicles,anddieselmarineengines.TheemissionstandardsapplytoallnewenginessoldintheUnitedStatesandanyimportedenginesmanufacturedafterthesestandardsbegin.Controlsonthecategoryoflargeindustrialspark-ignitionenginesarefirstrequiredin2004.Controlsontheotherenginecategoriesarerequiredbeginninginyearsafter2005.(See67FR68241.)•ReformulatedGasolineUseinNonroadMotorVehiclesandEquipmentThisfederallymandatedmeasurerequirestheuseoflowerpolluting“reformulated”gasolineintheWashingtonArea.See“ReformulatedGasolineinOn-roadVehicles,”above.Thismeasureaffectsthevariousnonroadmobilesourcesthatbumgasoline,suchaslawnmowers,trimmers,generators,andcompressors.TheprogramhasbeeninplaceintheWashingtonAreasince1995.NonroadMobile2008EmissionReductions(NONROADModel):36.91tpdVOCand11.68tpdNOx.AsdiscussedintheWashingtonAreaEmissionInventoryTSD,EPARegionIII’sAQABreviewedtheproceduresthattheState’susedtodevelopitsprojectedinventories,includingtheuseoftheNONROADmodel,andfoundthemtobereasonable.3.OtherNonroadMeasures•StandardsforLocomotivesThisnationalmeasureestablishesemissionstandardsfornewlymanufacturedandremanufactureddiesel-poweredlocomotivesandlocomotiveengines.Thisregulationtookeffectin2000.(See63FR18998.)10LocomotiveStandards2008EmissionReductions:0.05tpdVOCand2.54tpdNOx.4.On-RoadMobileMeasuresTheStatescalculatedtheemissionreductionsfor2008RFPusingtheMOBILEmodelforthefollowingmeasures.High-TechVehicleInspectionandMaintenance(EnhancedI/M)TheCAArequiresenhancedJ/Mprogramsinserious,severe,andextremeozonenonattainmentareas,metropolitanstatisticalareas(MSA),andconsolidatedMSA(CMSA)portionsoftheOzoneTransportRegion(OTR)withurbanizedpopulationsover200,000.EnhancedJIMwasrequiredintheWashington1-hourozonenonattainmentarea.Thatrequirementisstillinplaceduetotheanti-backslidingprovisionsofCAAsection110(1).InMarylandandtheDistrictofColumbia,emissionstestsareperformedattest-onlystations.Virginiatestsvehiclesinstationsthatmayalsoperformrepairsusingadecentralizedprogram.•FederalTierIVehicleEmissionStandardsandNewFederalEvaporativeTestProceduresTheCAArequiredcleanerfederalmotorvehicleemissionsstandards(TierIstandards)beginningwithmodelyear1994.TheCAAalsorequiresauniformlevelofevaporativeemissioncontrols,whicharemorestringentthanmostevaporativecontrolsusedinoldervehicles.Thesefederallyimplementedprogramsaffectlightdutyvehiclesandtrucks.See40CFRPart86.•NationalLowEmissionVehicle(NLEV)ProgramTheNLEVprogramisavehicletechnologyprogramthatprovideslightdutyvehiclesandtrucksthataresignificantlycleanerthanpre-1998models.TheNationalLEVprogramwasdevelopedthroughanunprecedented,cooperativeeffortbythenortheasternstates,automanufacturers,environmentalists,fuelproviders,EPA,andotherinterestedparties.NationalLEVvehiclesare70%cleanerthan1998models.TheNationalLEVprogramwillresultinsubstantialreductionsinVOCsandNOx.TheStateshaveadoptedtheNLEVprogramandEPAapprovedtheStates’programsintotheirSIPs.(See64FR72564and65FR44981.)•Tier2VehicleStandardsThisfederalmeasuresetemissionsstandardsforallpassengervehicles,includingsportutilityvehicles(SUVs),minivans,vansandpick-uptrucks.Theseregulationsalsorequirelowerlevelsofsulfuringasoline.Thenewtailpipestandardsaresetatanaveragestandardof0.07gramspermileforNOxforallclassesofpassengervehiclesbeginningin2004.(See65FR6697.)•HeavyDutyDieselEngine(HDDE’)RuleThisfederalprogramaffectsheavy-dutydieselenginesintrucks.UndertheHDDErule,truckmanufacturersmustcomplywithmorestringenttailpipestandardsforNOxandhydrocarbonsstartingin2004.(See62FR54694.)11On-roadMobile2008EmissionReductions(MOBILEModel):6.19tpdVOCand29.67tpdNOx.AsdiscussedintheWashingtonAreaEmissionInventoryTSD,EPARegionIII’sAQABreviewedtheproceduresthattheStatesusedtodeveloptheprojectedinventories,includingtheuseoftheMOBILEmodel,andfoundthemtobereasonable.5.TransportationControlMeasures(TCMs)andVehicleTechnology,Fuel,orMaintenanceMeasuresSection108(f)oftheCAAprovidesexamplesofTCMsthatcanbeimplementedtoreduceemissionsfrommobilesources.MostTCMsaredesignedtoreducevehiclemilestraveledorvehicletripsorimprovetheflowoftraffic.Inconjunctionwithstatedepartmentsoftransportationandlocaltransitauthorities,theStatesidentifiedanumberofprojectsdesignedtoreducevehicletravelandmitigatetrafficcongestionintheWashingtonArea.Thesemeasuresincludepurchaseofalternative-fueledvehicles,improvementstobicycleandpedestrianfacilities,andimprovementstotransitservicesandaccesstotransitfacilities.AdditionalinformationonTCMsiscontainedinAppendixFoftheWashingtonArea8-hourozoneplan.TCMandVehicleTechnology,FuelandMaintenanceMeasures2008EmissionReductions:0.19tpdVOCand0.49tpdNOx.6.VoluntaryBundleStatescantakecreditforemissionreductionsfromvoluntarymeasurespursuanttoEPA’sSeptember2004andAugust2005policymemoranda,“IncorporatingEmergingandVoluntaryMeasuresinaStateImplementationPlan(SIP)”and“GuidanceonIncorporatingBundledMeasuresinaStateImplementationPlan.”TheStatesdevelopedasetofmeasuresforthevoluntarybundlethatincludesnewmeasuresaswellassomevoluntarymeasuresfromtheWashingtonArea1-hourozoneSIP.TheStatesincludedanestimateoftheemissionreductionsfromthevoluntarymeasuresinAppendixHoftheWashingtonArea8-hourozoneplan.VoluntaryBundle2008EmissionReductions:0.19tpdVOCand0.28tpdNOx.7.RFPEmissionReductionSummaryWhilemanyoftheemissioncontrolmeasuresusedtomeetRFPalsoresultedinNOxemissionreductions,theStateselectedtomeetRFPintheWashingtonAreausingonlyVOCreductions.Table8summarizestheVOCemissionreductionsthattheStatesclaimedintheWashingtonArea8-hourozoneplantomeetRFPintheWashingtonArea.12Table8.VOCControlMeasuresand2008EmissionReductionsintheWashingtonAreaControlMeasureVOC(tpd)AreaSourcesMeasures30.98NonroadMeasures(NONROADModel)36.91NonroadMeasure(LocomotiveStandards)0.05OnroadMeasures(MOBILEModel)6.19OnroadMeasures(TCMs)0.19VoluntaryBundle0.19Total74.32E.ContingencyMeasuresforFailuretoMeetRFPSection172(c)(9)oftheCAArequiresastatewithamoderateoraboveozonenonattainmentareatoincludesufficientadditionalcontingencymeasuresinitsRFPplanincasetheareafailstomeetRFP.ThesameprovisionoftheCAAalsorequiresthatthecontingencymeasuresmustbefullyadoptedcontrolmeasuresorrules.UponfailuretomeetanRFPmilestonerequirement,thestatemustbeabletoimplementthecontingencymeasureswithoutanyfurtherrulemakingactivities.Uponimplementationofsuchmeasures,additionalemissionreductionsofatleast3percentoftheadjusted2002baselineemissionsmustbeachieved.Formoreinformationoncontingencymeasures,seetheApril16,1992GeneralPreamble(57FR13512)andtheNovember29,2005Phase28-hourozoneimplementationrule(70FR71612).1.RequirementsandTargetCalculationsTomeettherequirementsforcontingencyemissionreductions,EPAallowsstatestouseNOxemissionreductionstosubstituteforVOCemissionreductionsintheircontingencyplans.However,theStateschosetouseonlyVOCreductionstomeetthecontingencymeasurerequirementintheWashingtonArea.TheStatesdiscusstheWashingtonAreacontingencymeasuresforfailuretomeetRFPinSection11oftheWashington8-hourozoneplan.TheStatescalculatedthecontingencyVOCreductionfortheWashingtonAreaasshowninTable9,below.TheRFPcontingencyrequirementmaybemetbyincludingintheRFPplanademonstrationof18percentVOC&NOxRFP.Theadditional3percentreductionabovethe15percentrequirementmustbeattributedtospecificmeasures.13Table9.WashingtonArea2008RFPContingencyMeasureTargetLevelCalculationsDescriptionFormulaVOCNOxAW02Rate-OfProgressBaseYearInventory448.28597.22BMVCP/RVPReductionsBetween2002And200812.4531.61C2002AdjustedBaseYearInventoryRelativeTo2008A-B435.83565.61DFPRatio15%0.FPEmissionsReductionsRequiredBetween2002&6537E2008C*D0FContingencyPercentage0.3%2.7%1.3115.270ContingencyEmissionReductionRequirementsC*FHContingencyMeasureTargetLevelfor2008C-E-G369.15550.342.VOCContingencyMeasures•PortableFuelContainersRule,PhaseIandPhaseIIThismeasureintroducesperformancestandardsforportablefuelcontainersandspouts,andisintendedtoreduceemissionsfromstorage,transportandrefuelingactivities.Therulealsoincludedadministrativeandlabelingrequirements.2008VOCEmissionReductions:1.31tpd3.NOxContingencyMeasures•CleanAirInterstateRule(CAIR)CAIRrequiresNOxandS02emissionreductionsfromlargefossilfuel-firedelectricgeneratingunits.TheruleissetupinseveralphaseswiththefirstphaseofNOxreductionstocomeby2009.EPAapprovedVirginiaCAIRprogramintotheVirginiaSIPin2007(72FR73602).EPAputaFederalImplementationPlan(FTP)inplacefortheDistrictin2006(71FR25328).OnJuly11,2008,theDCCircuitCourtissueditsdecisiontovacateandremandbothCAIRandtheassociatedCAIRFIPs(NorthCarolinav.EPA,531F.3d836(DCCir.,2008).However,inresponsetoEPA’spetitionforrehearing,thecourtissuedanorderremandingCAIRtoEPAwithoutvacatingeitherCAIRortheCAIRFIPs(NorthCarolinav.EPA,550F.3d1176(DCCir.,2008)).Thecourt,thereby,leftCAIRinplaceinorderto“temporarilypreservetheenvironmentalvaluescoveredbyCAIR”untilEPAreplacesitwitharuleconsistentwiththecourt’sopinion(id.at1178).BecauseCAIRhasbeenremandedtoEPAwithoutvacatur,CAIRandCAIRFIPsarecurrentlyineffectinVirginiaandtheDistrict.•Maryland’sHealthyAirAct(HAA)TheHAArequiresreductionsinNOx,SO2,andmercuryemissionsfromMaryland’slargestandoldestcoalfiredpowerplants.EPAapprovedtheHAAintoMaryland’sSIPin2008.(See73FR51599.)2008NOxEmissionReductions:15.3tpd(total)(DC:0.66tpd;MD:12.19tpd;VA:2.45tpd)144.ContingencyMeasureEvaluationTodetermineiftheStatesmeetthethreepercentcontingencymeasurerequirementfortheWashingtonArea,thetotalprojectedcontrolledemissionsmustbecomparedtothecontingencymeasuretargetlevelscalculatedabove.2008ProjectedControlledVOCandNOxEmissionsarefoundinTables4-9and4-10oftheWashingtonArea8-hourozoneplan.AsshownbelowinTable10,thetotalVOCandNOxemissionprojectionsmeetthe2008contingencymeasuretargets.Therefore,theStateshavemetthecontingencymeasurerequirementfortheWashingtonArea.Table10.EvaluationoftheWashingtonArea2008RFPContingencyMeasureRequirementDescriptionVOCNOx(tpd)(tpd)ATotal2008ProjectedControlledEmissions358.84493.22BContingencyMeasureTargetLevelfor2008369.15550.34ContingencymeasurerequirementmetifA<BYesYesF.RACMAnalysisandDetermination1.RACMRequirementPursuanttosection172(c)(1)oftheCAA,statesarerequiredtoimplementallRACMasexpeditiouslyaspracticableforeachnonattainmentarea.Specifically,section172(c)(1)statesthefollowing:“Ingeneral—Suchplanprovisionsshallprovidefortheimplementationofallreasonablyavailablecontrolmeasuresasexpeditiouslyaspracticable(includingsuchreductionsinemissionsfromexistingsourcesintheareaasmaybeobtainedthroughtheadoption,ataminimum,ofreasonablyavailablecontroltechnology)andshallprovideforattainmentofthenationalprimaryambientairqualitystandards.”Furthermore,inEPA’sPhase2Rule,EPAdescribeshowstatesmustincludeaRACManalysiswiththeirattainmentdemonstration(70FR71659).ThepurposeoftheRACManalysisistodeterminewhetherornotreasonablyavailablecontrolmeasuresexistthatwouldadvancetheattainmentdatefornonattainmentareas.ControlmeasuresthatwouldadvancetheattainmentdateareconsideredRACMandmustbeincludedintheSIP.RACMarenecessarytoensurethattheattainmentdateisachieved“asexpeditiousaspracticable.”RACMisdefinedbytheEPAasanypotentialcontrolmeasureforapplicationtopoint,area,on-roadandnonroademissionsourcecategoriesthatmeetsthefollowingcriteria:•Thecontrolmeasureistechnologicallyfeasible;•Thecontrolmeasureiseconomicallyfeasible;•Thecontrolmeasuredoesnotcause“substantialwidespreadandlong-termadverseimpacts;’’•Thecontrolmeasureisnot“absurd,unenforceable,orimpracticable;”and•Thecontrolmeasurecanadvancetheattainmentdatebyatleastoneyear.152.StateSubmittalTheStatesaddresstheRACMrequirementinSection7.0andAppendixIoftheWashingtonArea8-hourozoneplan.TheStatesusedthefollowingcriteriatoevaluatepotentialRACMmeasures.Individualmeasuresmust:•reduceemissionsbythebeginningoftheWashingtonregion’s2008ozoneseason(May1,2008);•beenforceable;•betechnicallyfeasible;•beeconomicallyfeasible(proposedasacostof$3,500-$5,000pertonorless);•notcreatesubstantialorwidespreadadverseimpactswithintheregion;and•reduceemissionsfromthesourcebeingcontrolledmorethanthedeminimisthreshold,proposedas0.1tonsperday.Asstatedinsection7.1.8oftheWashingtonArea8-hourozoneplan,preliminarymodelingresultsindicatethatanyRACMwouldneedtocollectivelyreduceNOxand/orVOCemissionbymorethan20to40tpdbythe2008ozoneseasoninordertoadvancetheattainmentdatebyoneyear.TheStatesevaluated322potentialstationary,area,nonroad,andmobilesourcecontrolmeasuresagainsttheRACMcriteria.Severalmeasureswouldhaveprovidedsomeemissionreductions.However,theStatesdeterminedthatnoneofthemandatorymeasureswouldachievereductionsinthe2008ozoneseason.Inaddition,theStatesdeterminedthatthetotalreductionsfromthesemeasureswouldbelessthan20to40tpd.Therefore,theStatesconcludedthattherearenoRACMappropriatetoadvancetheWashingtonArea’sattainmentdate.3.EPAEvaluationEPAhasreviewedtheStates’analysis.TomeettheRACMrequirement,theStatesmustdemonstratethatithasadoptedallRACMnecessarytomovetheWashingtonAreatowardattainmentasexpeditiouslyaspracticableandtomeetallRFPrequirements.AsdemonstratedaboveinsectionIVofthisdocument,theStateshavemettheRFPrequirementsfortheWashingtonArea.TheStatesevaluatedallsourcecategoriesthatcouldcontributemeaningfulemissionreductions,andcompiledanextensivelistofpotentialcontrolmeasures.Furthermore,theStatesconsideredthetimeneededtodevelopandadoptregulationsandthetimeitwouldtaketoseethebenefitfromthesemeasures.WhiletheStatesfoundthatthemeasurescouldnotbeusedtoadvancetheWashingtonArea’sattainmentdate,theState’sdeterminedthatmanyofthemeasureswereusefulandwouldbeconsideredforfutureSIPsfortheWashingtonArea.Therefore,EPAconcurswiththeStates’conclusionthattherearenoRACMthatwouldhaveadvancedthe2010attainmentdatefortheWashingtonArea.16G.TransportationConformityBudgetsTransportationconformityisrequiredbyCAAsection176(c).EPA’sconformityrulerequiresthattransportationplans,programsandprojectsconformtostateairqualityimplementationplansandestablishesthecriteriaandprocedurefordeterminingwhetherornottheydo.ConformitytoaSIPmeansthattransportationactivitieswillnotproducenewairqualityviolations,worsenexistingviolations,ordelaytimelyattainmentofthenationalambientairqualitystandards.ThecriteriabywhichEPAdetermineswhetheraSIP’sMVEBsareadequateforconformitypurposesareoutlinedin40CFR93.118(e)(4).TheprocessfordeterminingtheadequacyofsubmittedSIPbudgetsisdescribedin40CFR93.118(f).StatesmustestablishVOCandNOxMVEBsforeachofthemilestoneyearsuptotheattainmentyearandsubmitthemobilebudgetstoEPAforapproval.UponadequacydeterminationorapprovalbyEPA,statesmustconducttransportationconformityanalysisfortheirTransportationImprovementPrograms(TIPs)andlongrangetransportationplanstoensurehighwayvehicleemissionswillnotexceedrelevantMVEBs.Failureofdemonstratingsuchtransportationconformitylapsesresultinginfreezingoffederalhighwayfundsandallfederalhighwayprojectsinthelapsedarea.TheStatesdiscusstransportationconformityinSection8.0oftheWashingtonArea8-hourozoneplan.TheStatesdescribetheirmethodsandprovidedetailedinputparametersusedinmodelingtheinventoriesinAppendicesElandE2oftheWashingtonArea8-hourozoneplan.IntheWashingtonArea,theMetropolitanWashingtonAirQualityCommittee(MWAQC)consultswiththeTransportationPlanningBoard(TPB)toestablishmobilesourceemissionsbudgets.TheMWCOGTransportationPlanningDepartmentcalculatedthe2008mobileemissionsinventoryusingEPA’sMOBILE6.2andtheTravelDemandModelVersion2.ld#50with2005vehicleregistrationdata.TheWashingtonAreaMVEBforthe2008RFPisbasedontheprojected2008mobilesourceemissionsaccountingforallmobilecontrolmeasures.(SeeTable6,“WashingtonArea2008ProjectedControlledVOC&NOxEmissions(tpd).”)Thebudgetsareequaltotheprojected2008on-roadmobilesourceemissioninventoriesminusreductionsfromtransportationcontrolmeasures.TheStatesalsoestablishedMVEBsfor2009,butEPAisnotevaluatingthatbudgetinthisdocument.TheMVEBsforthe2008RFPareshowninTable11,below.Table11.WashingtonArea2008RFPMVEBsVOC(tpd)NOx(tpd)(A)ProjectedControlledMobileEmissions70.98160.30(B)TransportationControlMeasures0.190.49(A)-(B)70.79159.81MVEB(roundedtonearest0.1tpd)70.8159.8Forbudgetstobeapprovable,theymustmeet,ataminimum,sadequacycriteria(40CFR93.118(e)(4)).InaSeptember4,2009FederalRegisternotice,EPAnotifiedthepublicthat17EPA found

that

the 2008

RFP MVEBs

in the Washington

Area 8-hour

ozone

plan

are adequate for transportation

conformity

purposes

(74

FR 45853).

As

a result

of EPA’s

finding,

the States must

use

the MVEBs

from

the Washington

Area 8-hour

ozone

plan

for future conformity determinations

for

the

1997 8-hour

ozone standard. In addition

to the budgets

being adequate

for transportation

conformity

purposes,

as stated

above,

EPA Region

III’s AQAB

found

the procedures

the States

used

to develop

the MVEBs

to

be reasonable.

Because

the 2008

RFP MVEBs

are adequate

for transportation conformity

purposes

and

the methods

the States

used

to develop

them

are correct,

the 2008

RFP budgets

are approvable. III. SUMMARY

AND RECOMMENDATIONS: The EPA Region

III

Air Protection

Division

(APD)

has reviewed

the States’

2008

RFP plan, contingency

measures

for failure

to meet

RFP,

and RACM

analysis

for

the Washington

Area and found

them

to

be approvable.

In addition,

EPA Region

III’s AQAB determined

that

the States

used acceptable

techniques

and methodologies

to develop

the Washington

Area

2002

base year emission

and 2008 milestone

year projected inventories. Furthermore,

APD

has found

the Washington

Area’s

2008

REP MVEBs

adequate

for transportation

conformity

purposes. Therefore,

APD recommends

approval

of the following

SIP elements

in the Washington

Area

8- hour ozone

plan:

the 2002

base

year emissions

inventory,

the RFP

plan

and associated

2008 projected

emission inventories,

the RACM

analysis,

the contingency

measures

for failure

to meet 2008

RFP,

and

the 2008 MVEBs

for

the Washington,

DC-MD-VA

moderate nonattainment

area. Attachments:- “Technical

Support Document

(TSD)

for

the Washington,

DC-MD-VA Nonattainment

Area: 8 Hour Ozone

State Implementation

Plan

(SIP) Attainment Demonstration

and Base

Year Inventory,”

prepared

by Janet

C. Kremer

and signed

by Walter

Wilkie,

Air Quality Analysis Branch

Chief,

on February

4, 2009 (Washington

Area Emission

Inventory

TSD).- “Adequacy

Status

of the Metropolitan

Washington

DC Area (DC—MD—VA)

Area 8-Hour Ozone Non-Attainment

Area’s Reasonable

Further Progress

Plan Vehicle Emission

Budgets for Transportation

Conformity

Purposes”

(74

FR 45853).-_.____.

18