Document ID: EPA-R05-OAR-2015-0009-0002
Agency: epa
Document Type: Rule
Title: Direct Final Approval of the Illinois NAAQS Updates
Posted Date: 2016-06-13T04:00Z

[Federal Register Volume 81, Number 112 (Friday, June 10, 2016)]
[Rules and Regulations]
[Pages 37517-37520]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2016-13700]

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ENVIRONMENTAL PROTECTION AGENCY

40 CFR Part 52

[EPA-R05-OAR-2015-0009; EPA-R05-OAR-2015-0314; FRL-9946-80-Region 5]

Air Plan Approval; Illinois; NAAQS Updates

AGENCY: Environmental Protection Agency (EPA).

ACTION: Direct final rule.

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SUMMARY: The Environmental Protection Agency (EPA) is approving revised 
rules submitted by the State of Illinois as State Implementation Plan 
(SIP) revisions. The submitted rules update Illinois' ambient air 
quality standards to include the 2012 primary National Ambient Air 
Quality Standard (NAAQS) for fine particulate matter 
(PM2.5), add EPA-promulgated monitoring methods, and address 
the ``sunset provisions'' in our regulations. In addition, the revised 
rules contain the timing requirements for the ``flagging of exceptional 
events'' and the submitting of documentation supporting the 
determination of exceptional events for the 2012 primary annual 
PM2.5 standard.

DATES: This direct final rule will be effective August 9, 2016, unless 
EPA receives adverse comments by July 11, 2016. If adverse comments are 
received by EPA, EPA will publish a timely withdrawal of the direct 
final rule in the Federal Register informing the public that the rule 
will not take effect.

ADDRESSES: Submit your comments, identified by Docket ID No. EPA-R05-
OAR-2015-0009 or EPA-R05-OAR-2015-0314 at http://www.regulations.gov or 
via email to Aburano.Douglas@epa.gov. For comments submitted at 
Regulations.gov, follow the online instructions for submitting 
comments. Once submitted, comments cannot be edited or removed from 
Regulations.gov. For either manner of submission, EPA may publish any 
comment received to its public docket. Do not submit electronically any 
information you consider to be Confidential Business Information (CBI) 
or other information whose disclosure is restricted by statute. 
Multimedia submissions (audio, video, etc.) must be accompanied by a 
written comment. The written comment is considered the official comment 
and should include discussion of all points you wish to make. EPA will 
generally not consider comments or comment contents located outside of 
the primary submission (i.e. on the web, cloud, or other file sharing 
system). For additional submission methods, please contact the person 
identified in the FOR FURTHER INFORMATION CONTACT section. For the full 
EPA public comment policy, information about CBI or multimedia 
submissions, and general guidance on making effective comments, please 
visit http://www2.epa.gov/dockets/commenting-epa-dockets.

FOR FURTHER INFORMATION CONTACT: Edward Doty, Attainment Planning and 
Maintenance Section, Air Programs Branch (AR-18J), Environmental 
Protection Agency, Region 5, 77 West Jackson Boulevard, Chicago, 
Illinois 60604, (312) 886-6057, Doty.Edward@epa.gov.

SUPPLEMENTARY INFORMATION: Throughout this document whenever ``we,'' 
``us,'' or ``our'' is used, we mean EPA. This SUPPLEMENTARY INFORMATION 
section is arranged as follows:

I. When and why did the State make these submittals?
II. What are the State rule revisions?
A. April 23, 2015, Submittal--Rule Revision Group R14-06
B. December 18, 2014, Submittal--Rule Revision Group R14-17
III. Did the State hold public hearings for these submittals?
IV. What is EPA's analysis of the State's submittals?
V. What action is EPA taking?
VI. Incorporation by Reference
VII. Statutory and Executive Order Reviews

I. When and why did the State make these submittals?

    Section 109 of the Clean Air Act (CAA) requires EPA to establish 
national primary (protective of human health) and secondary (protective 
of human welfare) air quality standards for pollutants for which air 
quality criteria have been issued under Section 108 of the CAA (the 
criteria pollutants \1\). Individually and collectively these standards 
are referred to as NAAQS. Section 109(d)(1) of the CAA requires EPA to 
review, and if necessary, based on accumulated health and welfare data, 
to revise each NAAQS every five years. If a NAAQS is revised, states 
whose rules include state air quality standards may revise their rules 
to address the revised NAAQS and associated monitoring requirements, 
and submit them to EPA as SIP revision requests. See, e.g., 415 ILCS 5/
10(H).
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    \1\ The criteria pollutants are ozone (O3), nitrogen 
oxides (represented by nitrogen dioxide (NO2)), sulfur 
oxides (represented by sulfur dioxide (SO2)), carbon 
monoxide (CO), particulate matter (represented by total suspended 
particulates (TSP), particulates (PM10), and fine 
particulates (PM2.5)), and lead (Pb). Note that Illinois 
also has air quality standard and monitoring rules for ``coarse 
particulate matter'' (PM2.5-10), although this is not a 
criteria pollutant and is generally considered to be included in 
PM10.
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    On December 18, 2014, the Illinois Environmental Protection Agency 
(IEPA) submitted to EPA for approval as SIP revisions updates to the 
methods used by Illinois to monitor air quality for several NAAQS. 
These updates correspond to EPA's revised monitoring methods 
promulgated during the period of July 1, 2013, through December 31, 
2013. The Illinois Pollution Control Board (IPCB) adopted these rule 
revisions on June 5, 2014, as rule revision group R14-17.
    On April 23, 2015, IEPA submitted to EPA for approval as SIP 
revisions an additional update to include the 2012 primary annual and 
24-hour PM2.5 NAAQS and a provision incorporating by 
reference EPA-promulgated monitoring methods. These rule updates 
correspond to the NAAQS and monitoring methods promulgated by EPA 
during the period of January 1, 2013, through June 30, 2013, and on 
July 3, 2013, and August 5, 2013. This state submittal also addressed 
the ``sunset provisions'' of 40 CFR 50.4(e), finding that the 1971 
NAAQS for sulfur dioxide (SO2) no longer applies to the 
Lemont and Pekin areas in Illinois. Finally, the revised rules contain 
the timing requirements for the ``flagging of exceptional events'' and 
the submitting of documentation supporting the determination of 
exceptional events for the 2012 primary annual PM2.5 
standard. The IPCB adopted these rule revisions on September 5, 2013, 
as rule revision group R14-6.

II. What are the State rule revisions?

A. April 23, 2015, Submittal--Rule Revision Group R14-06

    The rule revisions contained in the April 23, 2015 submittal are 
summarized below.

[[Page 37518]]

35 IAC 243.107. Reference Conditions
    Illinois amended this section to apply applicable monitoring 
requirements to the 2012 primary annual and 24-hour PM2.5 
NAAQS, which Illinois codified at 35 IAC 243.120(d). Volume 35 of the 
Illinois Administrative Code section 243.107 (35 IAC 243.107) sets 
forth the reference air temperature and reference pressure measurements 
to determine air quality concentrations of monitored air pollutants, 
and mirrors the requirements of title 40 of the Code of Federal 
Regulations (CFR) 50.3. Among other things, this section requires that 
measurements of PM2.5 must be reported based on actual 
ambient air volume measured at actual temperature and pressure at the 
monitoring site. See also the discussion of 35 IAC 243.120(d), below.
35 IAC 243.108. Incorporations by Reference
    Illinois updated 35 IAC 243.108 to incorporate by reference the 
2013 versions of appendices A-1, A-2, B, C, D, F, G, H, I, J, K, L, N, 
O, P, Q, R, S, and T of 40 CFR part 50. These appendices contain the 
reference monitoring methods for and the ``interpretation'' of (i.e., 
data handling conventions and computations) the ambient standards for 
the criteria air pollutants.
    EPA made two changes in the 2013 versions of these appendices 
relative to the 2012 versions. First, EPA revised the appendix G 
reference method for the determination of lead in suspended particulate 
matter (78 FR 40000, July 3, 2013). Second, EPA revised appendix N for 
the data handling conventions and computations necessary for 
determining when the primary and secondary NAAQS for PM2.5 
are met. 78 FR 3086, 3277-3281 (January 15, 2013). Illinois' rule 
revisions incorporate by reference these amended CFR appendices.
    Additionally, Illinois references an August 5, 2013, (78 FR 47191) 
EPA Federal Register document as revising appendix N of 40 CFR part 50. 
However, EPA's August 5, 2013 Federal Register document establishes 
area designations for the 2010 SO2 primary NAAQS, and does 
not address or relate to appendix N. Therefore, this rule revision 
contains an incorrect reference to EPA rulemaking, and is further 
discussed in Section IV, below.
35 IAC 243.120. PM10 and PM2.5
    Illinois added Subsection (d) to incorporate EPA's 2012 primary 
annual and 24-hour NAAQS for PM2.5. These revised 
PM2.5 standards include an annual average level of 12 
micrograms per cubic meter and a 24-hour average level of 35 micrograms 
per cubic meter. See 78 FR 3086 (January 15, 2013).
    Consistent with 40 CFR 50.13, this section also requires that the 
revised PM2.5 standards be measured by either a Federal 
Reference Method (FRM) based on appendix L of 40 CFR part 50, 
incorporated by reference in 35 IAC 243.108, or a Federal Equivalent 
Method (FEM) designated by EPA in accordance with 40 CFR part 53 and 
listed in EPA's ``List of Designated Reference and Equivalent 
Methods,'' which is also incorporated by reference in 35 IAC 
243.108.\2\ See http://www3.epa.gov/ttnamti1/files/ambient/criteria/reference-equivalent-methods-list.pdf.
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    \2\ The ``List of Designated Reference and Equivalent Methods'' 
is an EPA Web page that lists all FRMs and FEMs by pollutant and 
documents the Federal rulemakings that promulgated the monitoring 
methods. Other than the Federal Register notices for these 
rulemakings, it is the only comprehensive source of FEMS designated 
by EPA.
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35 IAC 243.122. Sulfur Oxides (Sulfur Dioxide)
    Illinois amended the IPCB Board Note in subsection (a)(5) to 
address the ``sunset provisions'' in 40 CFR 50.4(e). Under 40 CFR 
50.4(e), the 1971 primary annual and 24-hour NAAQS for SO2 
no longer apply to the Lemont and Pekin areas, effective October 4, 
2014, because: (1) One year has passed since EPA designated these areas 
as nonattainment for the 2010 primary 1-hour SO2 NAAQS, 
effective October 3, 2013; (2) these areas were not designated as 
nonattainment for the 1971 SO2 NAAQS as of June 22, 2010; 
and (3) there has not been a SIP call for the 1971 SO2 NAAQS 
for these areas. See 75 FR 47191 (August 5, 2013). The 1971 
SO2 NAAQS continues to apply for other areas in Illinois 
until these areas meet the sunset provisions specified in 40 CFR 
50.4(e).
35 IAC 243. Table A. Schedule of Exceptional Event Flagging and 
Documentation Submission for New or Revised NAAQS
    Illinois has amended Table A to add the flagging deadlines by year 
for the 2012 annual PM2.5 standard adopted in 2012 and 
promulgated on January 15, 2013 (78 FR 3086). For PM2.5 data 
collected in 2010 and 2011, the exceptional events were required to be 
flagged and described by July 1, 2013, and supported by complete 
documentation by December 12, 2013. For PM2.5 data collected 
in 2012, the exceptional events were required to be flagged and 
described by July 1, 2013, and supported by complete documentation by 
December 12, 2013. For PM2.5 data collected in 2013, the 
exceptional events were required to be flagged and described by July 1, 
2014, and supported by complete documentation by August 1, 2014. The 
flagging and demonstration submittal deadlines are the same as the 
deadlines provided in Table 1 in 40 CFR 50.14.
    Table A lists the deadlines for exceptional event flagging and 
documentation of such flagging by pollutant standard. Under 40 CFR 
50.14, a state may request that EPA exclude data showing violations or 
exceedances of the NAAQS from air quality determinations if the state 
can demonstrate to EPA's satisfaction that these violations or 
exceedances were due to exceptional events unlikely to reoccur and 
cause additional violations of the NAAQS at any monitoring site. Where 
such an event has occurred, the state may flag air quality data 
affected by the event and request that EPA approve the exclusion of 
these data from further air quality determinations, including 
designation of nonattainment areas and assessment of air quality data 
used for purposes of redesignation to attainment. The criteria for 
approval of exceptional event exclusion are given in 40 CFR 50.14(b) 
and the schedule and procedures for data flagging by the state are 
discussed in 40 CFR 50.14(c).

B. December 18, 2014, Submittal--Rule Revision Group R14-17

    The rule revisions contained in the December 18, 2014, submittal 
are summarized below.
35 IAC 243.108. Incorporations by Reference
    Illinois revised this section to incorporate by reference EPA's 
updated ``List of Designated Reference and Equivalent Methods'' from 
June 27, 2013, to December 17, 2013. On December 17, 2013, EPA issued 
an updated version of the ``List of Designated Reference and Equivalent 
Methods'' that includes five new FEMs for monitoring of 
PM10, PM2.5-10, PM2.5, and oxides of 
nitrogen (NOx) promulgated by EPA. See 78 FR 67360 (November 
12, 2013). More specifically, EPA promulgated the following FEMs: (1) 
For PM2.5-10, Automated Equivalent Method EQPM-1013-207 
(``Thermo Scientific TEOM[supreg] 1405-Dichotomous Ambient Particulate 
Monitor with FDMS''); (2) for PM10, Automated Equivalent 
Method EQPM-1013-208 (``Thermo Scientific TEOM[supreg] 1405-Dichotomous 
Ambient Particulate Monitor with FDMS''); (3) for PM2.5, 
Automated Equivalent Method EQPM-1013-209 (``Met One BAM-1022 Real Time 
Beta Attenuation Mass Monitor-

[[Page 37519]]

Outdoor PM2.5 FEM Configuration'') and Automated Equivalent 
Method EQNA-1013-210 (``Environment S.A. Model MP101M PM2.5 
Beta Attenuation Monitor''); and (4) for NOx, Automated 
Equivalent Method EQNA-1013-210 (``Environment S.A. Model AS32M cavity 
attenuated phase shift spectroscopy Nitrogen Dioxide Analyzer''). 
Illinois also added a statement to 35 IAC 243.108 that the 
incorporation by reference of EPA's promulgated monitoring methods 
``does not include USEPA methods approvals that occurred after December 
17, 2013.''

III. Did the State hold public hearings for these submittals?

    Illinois held a public hearing for the rule changes discussed in 
the December 18, 2014, submittal (R14-17) on May 7, 2014. Illinois held 
a public hearing for the rule revisions discussed in the April 23, 
2015, submittal (R14-6) on October 31, 2013. The state received one 
comment for the R14-6 rule revisions in support of adoption of the 
proposed rule revisions.

IV. What is EPA's analysis of the State's submittals?

    EPA finds the state's requested SIP revisions to be acceptable 
because the state's rule revisions make the state's air quality 
standards and associated monitoring requirements identical-in-substance 
to EPA's promulgated NAAQS and monitoring methods, as revised through 
December 17, 2013.
    Additionally, EPA finds that the specified exceptional event 
flagging and demonstration submittal deadlines are acceptable because 
they are consistent with the deadlines in 40 CFR 50.14.
    EPA also agrees with Illinois' application of the ``sunset 
provisions'' in 40 CFR 50.4(e) to the Lemont and Pekin areas. EPA has 
designated the Lemont and Pekin areas as nonattainment for the 2010 
SO2 NAAQS, which means that Illinois must submit a 
regulation for SIP approval that meets Federal requirements and that 
provides for attainment of the 2010 SO2 NAAQS in these areas 
no later than October 4, 2018. The 1971 SO2 NAAQS no longer 
applies to the Lemont and Pekin areas because EPA designated the Lemont 
and Pekin areas as nonattainment for the 2010 SO2 NAAQS, 
these areas were not designated as nonattainment for the 1971 
SO2 NAAQS as of June 22, 2010, and there has not been a SIP 
call for the 1971 SO2 NAAQS. See 78 FR 47192.
    Finally, as discussed above, the state's rule revisions to 35 IAC 
243.108 incorrectly cite an August 5, 2013 EPA rulemaking at 78 FR 
47191 as amending appendix N to 40 CFR part 50. Appendix N sets forth 
the data handling and computational requirements needed to demonstrate 
compliance with the 2012 PM2.5 NAAQS. The August 5, 2013, 
EPA rulemaking establishes area designations for the 2010 
SO2 NAAQS, but does not amend appendix N to 40 CFR part 50. 
Although this citation is incorrect, we are still approving the 
submission because Illinois has also incorporated by reference the 2013 
version of appendix N to 40 CFR part 50 at 35 IAC 243.108. Appendix N, 
as codified in the CFR, contains the reference monitoring methods for 
SO2 under the 2010 NAAQS and does not contain a citation to 
the August 5, 2013, EPA rulemaking. Therefore, it is unlikely that the 
public would be confused when determining the applicable data handling 
and computational requirements to demonstrate compliance with the 2012 
PM2.5 NAAQS. Illinois should correct this incorrect citation 
in a subsequent rule revision, but it does not appear to present any 
implementation or enforcement issues for the state or EPA.

V. What action is EPA taking?

    EPA is approving the submitted rule revisions as revisions of the 
Illinois SIP. Specifically, we are approving 35 IAC sections 243.107, 
243.108, 243.120, 243.122, and 243.Table A revised as discussed above, 
and we are incorporating by reference these revised rules into the 
Illinois SIP.
    We are publishing this action without prior proposal because we 
view this as a noncontroversial amendment and anticipate no adverse 
comments. However, in the proposed rules section of this Federal 
Register publication, we are publishing a separate document that will 
serve as the proposal to approve the state plan if relevant adverse 
written comments are filed. This rule will be effective August 9, 2016 
without further notice unless we receive relevant adverse written 
comments by July 11, 2016. If we receive such comments, we will 
withdraw this action before the effective date by publishing a 
subsequent document that will withdraw the final action. All public 
comments received will then be addressed in a subsequent final rule 
based on the proposed action. EPA will not institute a second comment 
period. Any parties interested in commenting on this action should do 
so at this time. Please note that, if EPA receives adverse comment on 
an amendment, paragraph, or section of this rule and if that provision 
may be severed from the remainder of the rule, EPA may adopt as final 
those provisions of the rule that are not the subject of an adverse 
comment. If we do not receive any comments, this action will be 
effective August 9, 2016.

VI. Incorporation by Reference

    In this rule, EPA is finalizing regulatory text that includes 
incorporation by reference. In accordance with requirements of 1 CFR 
51.5, EPA is finalizing the incorporation by reference of the Illinois 
Regulations described in the amendments to 40 CFR part 52 set forth 
below. EPA has made, and will continue to make, these documents 
generally available electronically through www.regulations.gov and/or 
in hard copy at the appropriate EPA office (see the ADDRESSES section 
of this preamble for more information).

VII. 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 
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 action:
     Is not a ``significant regulatory action'' subject to 
review by the Office of Management and Budget under Executive Orders 
12866 (58 FR 51735, October 4, 1993) and 13563 (76 FR 3821, January 21, 
2011);
     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 FR 43255, 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);

[[Page 37520]]

     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, the SIP is not approved to apply on any Indian 
reservation land or in any other area where EPA or an Indian tribe has 
demonstrated that a tribe has jurisdiction. In those areas of Indian 
country, the rule does not have tribal implications and will not impose 
substantial direct costs on tribal governments or preempt tribal law as 
specified by Executive Order 13175 (65 FR 67249, November 9, 2000).
    The Congressional Review Act, 5 U.S.C. 801 et seq., as added by the 
Small Business Regulatory Enforcement Fairness Act of 1996, generally 
provides that before a rule may take effect, the agency promulgating 
the rule must submit a rule report, which includes a copy of the rule, 
to each House of the Congress and to the Comptroller General of the 
United States. EPA will submit a report containing this action and 
other required information to the U.S. Senate, the U.S. House of 
Representatives, and the Comptroller General of the United States prior 
to publication of the rule in the Federal Register. A major rule cannot 
take effect until 60 days after it is published in the Federal 
Register. This action is not a ``major rule'' as defined by 5 U.S.C. 
804(2).
    Under section 307(b)(1) of the CAA, petitions for judicial review 
of this action must be filed in the United States Court of Appeals for 
the appropriate circuit by August 9, 2016. Filing a petition for 
reconsideration by the Administrator of this final rule does not affect 
the finality of this action for the purposes of judicial review nor 
does it extend the time within which a petition for judicial review may 
be filed, and shall not postpone the effectiveness of such rule or 
action. Parties with objections to this direct final rule are 
encouraged to file a comment in response to the parallel notice of 
proposed rulemaking for this action published in the proposed rules 
section of this Federal Register, rather than file an immediate 
petition for judicial review of this direct final rule, so that EPA can 
withdraw this direct final rule and address the comment in the proposed 
rulemaking. This action may not be challenged later in proceedings to 
enforce its requirements. (See section 307(b)(2).)

List of Subjects in 40 CFR Part 52

    Environmental protection, Air pollution control, Carbon monoxide, 
Incorporation by reference, Intergovernmental relations, Lead, Nitrogen 
dioxide, Ozone, Particulate matter, Reporting and recordkeeping 
requirements, Sulfur dioxide.

    Dated: May 10, 2016.
Robert A. Kaplan,
Acting Regional Administrator, Region 5.

    40 CFR part 52 is amended as follows:

PART 52--APPROVAL AND PROMULGATION OF IMPLEMENTATION PLANS

0
1. The authority citation for part 52 continues to read as follows:

    Authority: 42 U.S.C. 7401 et seq.

0
2. Section 52.720 is amended by adding paragraph (c)(208) to read as 
follows:

Sec.  52.720  Identification of plan.

* * * * *
    (c) * * *
    (208) On December 18, 2014, and April 23, 2015, Illinois submitted 
amendments to its State Implementation Plan at 35 Illinois 
Administrative Code part 243, which updates Illinois air quality 
standards to reflect National Ambient Air Quality Standards promulgated 
by EPA through December 17, 2013, and incorporates Federal test 
procedures for these pollutants.
    (i) Incorporation by Reference. (A) Illinois Administrative Code 
Title 35: Environmental Protection; Subtitle B: Air Pollution; Chapter 
I: Pollution Control Board; Subchapter I: Air Quality Standards And 
Episodes; Part 243: Air Quality Standards; Sections 243.107 Reference 
Conditions, 243.120 p.m.10 and PM2.5, 243.122 
Sulfur Oxides (Sulfur Dioxide), and 243.Table A Schedule of Exceptional 
Event Flagging and Documentation Submission for New or Revised NAAQS, 
effective November 27, 2013.
    (B) Illinois Administrative Code Title 35: Environmental 
Protection; Subtitle B: Air Pollution; Chapter I: Pollution Control 
Board; Subchapter I: Air Quality Standards And Episodes; Part 243: Air 
Quality Standards; Section 243.108 Incorporation by Reference, 
effective June 9, 2014.

[FR Doc. 2016-13700 Filed 6-9-16; 8:45 am]
 BILLING CODE 6560-50-P