Document ID: EPA-R08-OAR-2006-0163-0016
Agency: epa
Document Type: Rule
Title: Federal Register Notice. Final Rule. Montana SIP Revisions; Missoula Carbon Monoxide Redesignation to Attainment, Designation of Areas for Air Quality Planning Purposes, and Approval of Related Revisions
Posted Date: 2007-08-17T04:00Z

[Federal Register: August 17, 2007 (Volume 72, Number 159)]
[Rules and Regulations]               
[Page 46158-46161]
From the Federal Register Online via GPO Access [wais.access.gpo.gov]
[DOCID:fr17au07-11]                         

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ENVIRONMENTAL PROTECTION AGENCY

40 CFR Parts 52 and 81

[EPA-R08-OAR-2006-0163; FRL-8452-9]

 
Approval and Promulgation of Air Quality Implementation Plans; 
State of Montana; Missoula Carbon Monoxide Redesignation to Attainment, 
Designation of Areas for Air Quality Planning Purposes, and Approval of 
Related Revisions

AGENCY: Environmental Protection Agency (EPA).

ACTION: Final rule.

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SUMMARY: EPA is approving State Implementation Plan (SIP) revisions 
submitted by the State of Montana. EPA is approving a request submitted 
by the State of Montana on May 27, 2005 requesting to redesignate the 
Missoula ``moderate'' carbon monoxide (CO) nonattainment area to 
attainment for the CO National Ambient Air Quality Standard (NAAQS). 
EPA is also approving the CO maintenance plan, which was also submitted 
on May 27, 2005 and includes transportation conformity motor vehicle 
emission budgets (MVEB) for 2000, 2010, and 2020. Lastly, EPA is 
approving CO periodic emission inventories for 1993 and 1996 that the 
State had previously submitted for the Missoula nonattainment area. The 
intended effect of this action is to make federally enforceable those 
provisions that EPA is approving. This action is being taken under 
section 110 of the Clean Air Act (CAA).

DATES: Effective Date: This final rule is effective September 17, 2007.

ADDRESSES: EPA has established a docket for this action under Docket ID 
No. EPA-R08-OAR-2006-0163. All documents in the docket are listed on 
the http://www.regulations.gov Web site. Although listed in the index, 

some information is not publicly available, e.g., Confidential Business 
Information (CBI) or other information whose disclosure is restricted 
by statute. Certain other material, such as copyrighted material, is 
not placed on the Internet and will be publicly available only in hard 
copy form. Publicly available docket materials are available either 
electronically through http://www.regulations.gov or in hard copy at 

the Air and Radiation Program, Environmental Protection Agency (EPA), 
Region 8, 1595 Wynkoop Street, Denver, Colorado 80202-1129. EPA 
requests that if at all possible, you contact the individual listed in 
the FOR FURTHER INFORMATION CONTACT section to view the hard copy of 
the docket. You may view the hard copy of the docket Monday through 
Friday, 8 a.m. to 4 p.m., excluding Federal holidays.

FOR FURTHER INFORMATION CONTACT: Rebecca Russo, Air and Radiation 
Program, Environmental Protection Agency (EPA), Region 8, Mailcode 8P-
AR, 1595 Wynkoop Street, Denver, Colorado 80202-1129, (303) 312-6757, 
russo.rebecca@epa.gov.

SUPPLEMENTARY INFORMATION:

Table of Contents

I. Background
II. Redesignation From Nonattainment to Attainment for CO for the 
Missoula Area
III. Approval of the Missoula Area's 2000 Attainment Emission 
Inventory and Maintenance Plan
IV. Approval of the Transportation Conformity Motor Vehicle Emission 
Budgets
V. Approval of 1993 and 1996 CO Periodic Emission Inventories
VI. Final Action
VII. Statutory and Executive Order Reviews

Definitions

    For the purpose of this document, we are giving meaning to 
certain words or initials as follows:
    (i) The words or initials Act or CAA mean or refer to the Clean 
Air Act, unless the context indicates otherwise.
    (ii) The words EPA, we, us or our mean or refer to the United 
States Environmental Protection Agency.
    (iii) The initials SIP mean or refer to State Implementation 
Plan.
    (iv) The words State or Montana mean the State of Montana, 
unless the context indicates otherwise.
    (v) The initials NAAQS mean National Ambient Air Quality 
Standard.

I. Background

    On April 25, 2007 (72 FR 20480), EPA published a notice of proposed 
rulemaking (NPR) for the State of Montana. The NPR proposed approval of 
the change in the legal designation of the Missoula area from 
nonattainment for CO to attainment. The NPR also proposed approval of 
the year 2000 attainment emission inventory and the maintenance plan 
that is designed to keep the area in attainment for CO for the next 13 
years. The NPR also proposed approval of the transportation conformity 
motor vehicle emissions budgets (MVEB) for 2000, 2010, and 2020, and 
proposed approval of the 1993 and 1996 CO periodic emission inventories 
(PEI).
    On May 27, 2005, the Governor of Montana submitted a request to 
redesignate the Missoula ``moderate'' CO nonattainment area to 
attainment for the CO NAAQS. The Governor also submitted a CO 
maintenance plan, which includes transportation conformity MVEBs for 
2000, 2010, and 2020. Before EPA can approve a redesignation request, 
we must decide that all applicable SIP provisions have been fully 
approved. Approval of the applicable SIP provisions may occur 
simultaneously with our final approval of the redesignation request, 
which is why we are also approving the 1993 and 1996 CO periodic 
emission inventories.
    The NPR provided the public until May 25, 2007 to provide comments. 
Because no adverse comments were received by EPA, we are finalizing 
this rulemaking.

II. Redesignation From Nonattainment to Attainment for CO for the 
Missoula Area

    Under the CAA, we can change designations if acceptable data are 
available and if certain other requirements are met. See CAA section 
107(d)(3). Section 107(d)(3)(E) of the CAA provides that the 
Administrator may not promulgate a redesignation of a nonattainment 
area to attainment unless five conditions have been met. Each one will 
be discussed below.
    (i) The Administrator determines that the area has attained the 
national ambient air quality standard. Montana's CO redesignation 
request for the Missoula area is based on an analysis of quality 
assured ambient air quality monitoring data that are relevant to the

[[Page 46159]]

redesignation request. As presented in section 2.1.1 of the maintenance 
plan, ambient air quality monitoring data for consecutive calendar 
years 2000 through 2003 show a measured exceedance rate of the CO NAAQS 
of 1.0 or less per year, per monitor, in the Missoula nonattainment 
area. Further, we have reviewed ambient air quality data from 2004 
through December 2006 and the Missoula area continues to show 
attainment of the CO NAAQS. Therefore, we believe the Missoula area has 
met the first component for redesignation: Demonstration of attainment 
of the CO NAAQS. We note that the State has also committed, in the 
maintenance plan, to continue the necessary operation of the CO monitor 
in compliance with all applicable Federal regulations and guidelines.
    (ii) The Administrator has fully approved the applicable 
implementation plan for the area under CAA section 110(k). EPA 
previously approved SIP revisions based on the pre-1990 CAA and its 
implementing regulations as well as SIP revisions required under the 
CAA 1990 amendments. In this action, EPA is approving the Missoula 
area's 1993 periodic CO emissions inventory, the 1996 periodic CO 
emissions inventory, and the 2000 CO emission inventory (for 1999) as 
meeting the periodic emissions inventory requirement. Thus, with our 
final approval of these SIP revisions, we will have fully approved the 
Missoula area's CO inventory provisions of the SIP under CAA section 
110(k).
    (iii) The Administrator determines that the improvement in air 
quality is due to permanent and enforceable reductions in emissions 
resulting from implementation of the applicable implementation plan and 
applicable Federal air pollutant control regulations and other 
permanent and enforceable reductions. The CO emissions reductions for 
the Missoula area were achieved primarily through an oxygenated fuels 
program, the Federal Motor Vehicle Control Program, residential 
woodburning regulations, changes in the transportation infrastructure 
involving the reconstruction of the Brooks/South/Russell (B/S/R) 
intersection, and outdoor open burning regulations. These five control 
strategies are fully discussed in section 2.3 of the maintenance plan. 
We have evaluated the various local, state, and federal control 
measures, the original 1990 base year CO emission inventory, the 1993 
periodic CO emission inventory, the 1996 periodic CO emission 
inventory, and the 2000 attainment year CO inventory that was provided 
with the State's May 27, 2005 submittal and have concluded that the 
improvement in air quality in the Missoula nonattainment area has 
resulted from emission reductions that are permanent and enforceable.
    (iv) The Administrator has fully approved a maintenance plan for 
the area as meeting the requirements of CAA section 175A. Section 175A 
of the CAA sets forth the elements of a maintenance plan for areas 
seeking redesignation from nonattainment to attainment. The maintenance 
plan must demonstrate continued attainment of the applicable NAAQS for 
at least ten years after the Administrator approves a redesignation to 
attainment. Eight years after the promulgation of the redesignation, 
the State must submit a revised maintenance plan that demonstrates 
continued attainment for a subsequent ten-year period following the 
initial ten-year maintenance period. To address the possibility of 
future NAAQS violations, the maintenance plan must contain contingency 
measures, with a schedule for adoption and implementation that are 
adequate to assure prompt correction of a violation. EPA is approving 
the maintenance plan for the Missoula nonattainment area because we 
have determined that the State's maintenance plan meets the 
requirements of section 175A.
    (v) The State containing such area has met all requirements 
applicable to the area under section 110 and part D of the CAA. On 
January 10, 1980, we approved revisions to Montana's SIP as meeting the 
requirements of section 110(a)(2) of the CAA (see 45 FR 2034). Although 
section 110 of the CAA was amended in 1990, most of the changes were 
not substantial. Thus, we have determined that the SIP revisions 
approved in 1980 continue to satisfy the requirements of section 
110(a)(2). In addition, we have analyzed the SIP provisions we are 
approving as part of this action, and we have determined they comply 
with the relevant requirements of section 110(a)(2).
    Before the Missoula ``moderate'' CO nonattainment area may be 
redesignated to attainment, the State must have fulfilled the 
applicable requirements of CAA part D. See, CAA section 172 et seq. 
Under part D, an area's classification indicates the requirements to 
which it will be subject. Subpart 1 of part D sets forth the basic 
nonattainment requirements applicable to all nonattainment areas, 
whether classified or nonclassified. Subpart 3 of part D contains 
specific provisions for ``moderate'' CO nonattainment areas.
    The relevant subpart 1 requirements are contained in CAA sections 
172(c) and 176. Our General Preamble (see 57 FR 13529, 13533, April 16, 
1992) provides EPA's interpretations of the CAA requirements for 
``moderate'' CO areas, and states that the applicable requirements of 
CAA section 172 are 172(c)(3) (emissions inventory), 172(c)(5) (new 
source review permitting program), 172(c)(7) (section 110(a)(2) air 
quality monitoring requirements), and 172(c)(9) (contingency measures).
    For the CAA section 172(c)(3) emissions inventory requirement, the 
State submitted a 1990 base year CO inventory for the Missoula area on 
July 18, 1995 which met the requirements of section 172(c)(3) of the 
CAA. We approved this inventory on December 15, 1997 (62 FR 65613).
    For CAA section 172(c)(5) New Source Review (NSR) requirements, the 
State has a fully-approved NSR program (60 FR 36715, July 18, 1995.) 
The State also has a fully approved PSD program (60 FR 36715, July 18, 
1995) that will now apply, instead of nonattainment NSR.
    For CAA section 172(c)(7) provisions (compliance with CAA section 
110(a)(2) Air Quality Monitoring Requirements), Montana's CO 
redesignation request for the Missoula area is based on an analysis of 
quality assured ambient air quality monitoring data that are relevant 
to the redesignation request. As presented in section 2.1.1 of the 
maintenance plan, ambient air quality monitoring data for consecutive 
calendar years 2000 through 2003 show a measured exceedance rate of the 
CO NAAQS of 1.0 or less per year, per monitor, in the Missoula 
nonattainment area. Further, we have reviewed ambient air quality data 
from 2004 through December 2006 and the Missoula area continues to show 
attainment of the CO NAAQS. All of these data were collected and 
analyzed as required by EPA (see 40 CFR 50.8 and 40 CFR 50, Appendix C) 
and have been archived by the State in our Air Quality System (AQS) 
national database. Therefore, we have determined that the Missoula area 
has met the applicable air quality monitoring requirements of CAA 
section 110(a)(2).
    For CAA section 172(c)(9) contingency measures requirements, the 
State submitted a contingency measure, involving residential 
woodburning devices, on March 2, 1994. We approved this CO contingency 
measure on December 13, 1994 (59 FR 64133).
    The relevant subpart 3 provisions appear in CAA section 187. The 
CAA requirements for a CO nonattainment area, classified as 
``moderate'' with a design value of 12.7 ppm or less, that are 
applicable to Missoula are a 1990

[[Page 46160]]

base year inventory (CAA section 187(a)(1)), contingency provisions 
(CAA section 187(a)(3)), and periodic emission inventories (CAA section 
187(a)(5)).
    For CAA section 187(a)(1) emissions inventory requirement, the 
State submitted a 1990 base year CO emissions inventory for the 
Missoula area on July 18, 1995 which met the requirements of CAA 
section 187(a)(1). We approved this inventory on December 15, 1997 (62 
FR 65613).
    For CAA section 187(a)(3) contingency provisions requirement, as 
discussed above the State submitted a contingency measure involving 
residential woodburning devices on March 2, 1994. We approved this CO 
contingency measure on December 13, 1994 (59 FR 64133).
    For CAA section 187(a)(5) PEI requirements, the State submitted CO 
PEIs for 1993 and 1996 on January 27, 2000. In addition, the State 
submitted a year 2000 CO emission inventory, on July 19, 2004, that 
qualifies for the 1999 PEI and is also the basis for the attainment 
year 2000 CO emission inventory that is part of the State's Missoula CO 
maintenance plan. We have reviewed these CO PEIs and have determined 
they contain comprehensive information with respect to point, area, 
non-road, and on-road mobile sources and were prepared in accordance 
with EPA guidance and meets the requirements of CAA section 187(a)(5).

III. Approval of the Missoula Area's 2000 Attainment Emission Inventory 
and Maintenance Plan

    We are approving the year 2000 attainment emission inventory and 
the maintenance plan that is designed to keep the area in attainment 
for CO for the next 13 years. The year 2000 attainment emission 
inventory is discussed in the paragraph above concerning CAA section 
187(a)(5) PEI requirements.
    The State submitted a maintenance plan on May 27, 2005 for the 
Missoula nonattainment area. The plan uses a year 2000 attainment 
inventory and includes interim-year projections with a final 
maintenance year of 2020. EPA is approving the maintenance plan because 
we have determined that it meets the requirements of CAA section 175A.

IV. Approval of the Transportation Conformity Motor Vehicle Emission 
Budgets

    In this action we are also approving the transportation conformity 
MVEBs for 2000, 2010, and 2020. The Missoula CO maintenance plan 
defines the CO MVEBs in the Missoula maintenance area. Our analysis 
indicates that the submitted budgets are consistent with maintenance of 
the CO NAAQS throughout the maintenance period. Therefore, we are 
approving the 44.86 tons per day budget for 2000, 43.22 tons per day 
budget for 2010, and 42.67 tons per day budget for 2020 for the 
Missoula area.

V. Approval of 1993 and 1996 CO Periodic Emission Inventories

    The State submitted CO PEI for 1993 and 1996 on January 27, 2000. 
We have reviewed these CO PEI and have determined they contain 
comprehensive information with respect to point, area, non-road, and 
on-road mobile sources and were prepared in accordance with EPA 
guidance.

VI. Final Action

    In this action, EPA is approving the request for redesignation from 
nonattainment to attainment for CO for the Missoula area. In this 
action, EPA is also approving the Missoula area's 2000 attainment 
emission inventory and the maintenance plan that is designed to keep 
the area in attainment for CO for the next 13 years. In this action we 
are also approving the transportation conformity MVEB for 2000, 2010, 
and 2020. And finally, in this action we are approving the 1993 and 
1996 CO PEI.

VII. Statutory and Executive Order Reviews

    Under Executive Order 12866 (58 FR 51735, October 4, 1993), this 
action is not a ``significant regulatory action'' and therefore is not 
subject to review by the Office of Management and Budget. For this 
reason, this action is also not subject to Executive Order 13211, 
``Actions Concerning Regulations That Significantly Affect Energy 
Supply, Distribution, or Use'' (66 FR 28355, May 22, 2001). This action 
merely approves state law as meeting Federal requirements and imposes 
no additional requirements beyond those imposed by state law. 
Accordingly, the Administrator certifies that this rule will not have a 
significant economic impact on a substantial number of small entities 
under the Regulatory Flexibility Act (5 U.S.C. 601 et seq.). Because 
this rule approves pre-existing requirements under state law and does 
not impose any additional enforceable duty beyond that required by 
state law, it 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).
    This rule also does not have tribal implications because it will 
not have a substantial direct effect on one or more Indian tribes, on 
the relationship between the Federal Government and Indian tribes, or 
on the distribution of power and responsibilities between the Federal 
Government and Indian tribes, as specified by Executive Order 13175 (65 
FR 67249, November 9, 2000). This action also does not have Federalism 
implications because it does not have substantial direct effects on the 
States, on the relationship between the national government and the 
States, or on the distribution of power and responsibilities among the 
various levels of government, as specified in Executive Order 13132 (64 
FR 43255, August 10, 1999). This action merely approves a state rule 
implementing a Federal standard, and does not alter the relationship or 
the distribution of power and responsibilities established in the Clean 
Air Act. This rule also is not subject to Executive Order 13045 
``Protection of Children from Environmental Health Risks and Safety 
Risks'' (62 FR 19885, April 23, 1997), because it approves a state rule 
implementing a Federal standard.
    In reviewing SIP submissions, EPA's role is to approve state 
choices, provided that they meet the criteria of the Clean Air Act. In 
this context, in the absence of a prior existing requirement for the 
State to use voluntary consensus standards (VCS), EPA has no authority 
to disapprove a SIP submission for failure to use VCS. It would thus be 
inconsistent with applicable law for EPA, when it reviews a SIP 
submission, to use VCS in place of a SIP submission that otherwise 
satisfies the provisions of the Clean Air Act. Thus, the requirements 
of section 12(d) of the National Technology Transfer and Advancement 
Act of 1995 (15 U.S.C. 272 note) do not apply. This rule does not 
impose an information collection burden under the provisions of the 
Paperwork Reduction Act of 1995 (44 U.S.C. 3501 et seq.).
    The Congressional Review Act, 5 U.S.C. section 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 
rule 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

[[Page 46161]]

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 Clean Air Act, petitions for 
judicial review of this action must be filed in the United States Court 
of Appeals for the appropriate circuit by October 16, 2007. Filing a 
petition for reconsideration by the Administrator of this final rule 
does not affect the finality of this rule 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. This action may not be challenged later in proceedings 
to enforce its requirements. (See section 307(b)(2).)

List of Subjects

40 CFR Part 52

    Environmental protection, Air pollution control, Carbon monoxide, 
Intergovernmental relations, Reporting and recordkeeping requirements.

40 CFR Part 81

    Air pollution control, National parks, Wilderness areas.

    Dated: July 30, 2007.
Kerrigan G. Clough,
Acting Regional Administrator, Region 8.

0
40 CFR parts 52 and 81 are amended as follows:

PART 52--[AMENDED]

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

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

Subpart BB--Montana

0
2. Section 52.1373 is amended by adding paragraph (d) to read as 
follows:

Sec.  52.1373  Control Strategy: Carbon monoxide.

* * * * *
    (d) Revisions to the Montana State Implementation Plan, Carbon 
Monoxide Redesignation Request and Maintenance Plan for Missoula, as 
approved by the Missoula City-County Air Pollution Control Board on 
January 20, 2005, by the Missoula County Commissioners on January 26, 
2005 and by the Missoula City Council on March 7, 2005; and submitted 
by the Governor on May 27, 2005.

PART 81--[AMENDED]

0
1. The authority citation for part 81 continues to read as follows:

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

Subpart C--[Amended]

0
2. In Sec.  81.327, the table entitled ``Montana-Carbon Monoxide'' is 
amended by revising the entry for the ``Missoula area'' to read as 
follows:

Sec.  81.327  Montana.

* * * * *

                                            Montana--Carbon Monoxide
----------------------------------------------------------------------------------------------------------------
                                              Designation                             Classification
       Designated area        ----------------------------------------------------------------------------------
                                 Date\1\                Type               Date\1\               Type
----------------------------------------------------------------------------------------------------------------

                                                  * * * * * * *
Missoula Area:                   September  Attainment.................
                                  17, 2007
    Missoula County (part)...
        Missoula and vicinity
         including the
         following (Range and
         Township) sections:
         R19W T14N--sections:
         29 and 32; R19W
         T13N--sections 2, 5,
         7, 8, 11, 14 through
         24, and 26 through
         34; R19W T12N--
         sections: 4 through
         7; R20W T13N--
         sections: 23 through
         26, 35 and 36.

                                                  * * * * * * *
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\1\ This date is November 15, 1990, unless otherwise noted.

* * * * *
[FR Doc. E7-15784 Filed 8-16-07; 8:45 am]

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