Document ID: EPA-R05-OAR-2020-0353-0001
Agency: epa
Document Type: Proposed Rule
Title: Proposed Approval: Indiana; Infrastructure SIP Requirements for the 2015 Ozone National Ambient Air Quality Standards and References to the Code of Federal Regulations
Posted Date: 2022-06-29T04:00Z

[Federal Register Volume 87, Number 124 (Wednesday, June 29, 2022)]
[Proposed Rules]
[Pages 38693-38702]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2022-13716]

=======================================================================
-----------------------------------------------------------------------

ENVIRONMENTAL PROTECTION AGENCY

40 CFR Part 52

[EPA-R05-OAR-2018-0788; EPA-R05-OAR-2020-0353; FRL-9879-01-R5]

Air Plan Approval; Indiana; Infrastructure SIP Requirements for 
the 2015 Ozone NAAQS and References to the Code of Federal Regulations

AGENCY: Environmental Protection Agency (EPA).

[[Page 38694]]

ACTION: Proposed rule.

-----------------------------------------------------------------------

SUMMARY: The Environmental Protection Agency (EPA) is proposing to 
approve elements of a State Implementation Plan (SIP) submission from 
Indiana regarding the infrastructure requirements of section 110 of the 
Clean Air Act (CAA) for the 2015 ozone National Ambient Air Quality 
Standards (NAAQS). The infrastructure requirements are designed to 
ensure that the structural components of each state's air quality 
management program are adequate to meet the state's responsibilities 
under the CAA. EPA is also proposing to approve revisions to the 
Indiana SIP that would incorporate by reference a more recent edition 
of the Code of Federal Regulations (CFR).

DATES: Comments must be received on or before July 29, 2022.

ADDRESSES: Submit your comments, identified by Docket ID No. EPA-R05-
OAR-2018-0788 or EPA-R05-OAR-2020-0353 at https://www.regulations.gov, 
or via email to [email protected]. 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 https://www2.epa.gov/dockets/commenting-epa-dockets.

FOR FURTHER INFORMATION CONTACT: Andrew Lee, Physical Scientist, 
Attainment Planning and Maintenance Section, Air Programs Branch 
(AR18J), Environmental Protection Agency, Region 5, 77 West Jackson 
Boulevard, Chicago, Illinois 60604, (312)-353-7645, 
[email protected]. The EPA Region 5 office is open from 8:30 a.m. to 
4:30 p.m., Monday through Friday, excluding Federal holidays and 
facility closures due to COVID-19.

SUPPLEMENTARY INFORMATION: This supplementary information section is 
arranged as follows:

I. What is the background of these SIP submissions?
II. What is EPA's analysis of the November 2, 2018, SIP submission?
III. What is EPA's analysis of the June 24, 2020, SIP submission?
IV. What action is EPA taking?
V. Incorporation by Reference
VI. Statutory and Executive Order Reviews

I. What is the background of these SIP submissions?

    Whenever EPA promulgates a new or revised NAAQS, CAA section 
110(a)(1) requires states to make SIP submissions to provide for the 
implementation, maintenance, and enforcement of the NAAQS. This 
particular type of SIP submission is commonly referred to as an 
``infrastructure SIP.'' These submissions must meet the various 
requirements of CAA section 110(a)(2), as applicable. Due to ambiguity 
in some of the language of CAA section 110(a)(2), EPA believes that it 
is appropriate to interpret these provisions in the specific context of 
acting on infrastructure SIP submissions. EPA has previously provided 
comprehensive guidance on the application of these provisions through 
its September 13, 2013, Infrastructure SIP Guidance (EPA's 2013 
Guidance) \1\ and through regional actions on infrastructure 
submissions. Unless otherwise noted below, EPA is following that 
existing approach in acting on this submission. In addition, in the 
context of acting on such infrastructure submissions, EPA evaluates the 
submitting state's SIP for facial compliance with statutory and 
regulatory requirements, not for the state's implementation of its 
SIP.\2\ EPA has other authority to address any issues concerning a 
state's implementation of the rules, regulations, consent orders, etc. 
that comprise its SIP.
---------------------------------------------------------------------------

    \1\ EPA explains and elaborates on these ambiguities and its 
approach to address them in its September 13, 2013, Infrastructure 
SIP Guidance (available at https://www3.epa.gov/airquality/urbanair/sipstatus/docs/Guidance_on_Infrastructure_SIP_Elements_Multipollutant_FINAL_Sept_2013.pdf), as well as in numerous agency actions, including EPA's prior 
action on Indiana's infrastructure SIP to address the 2012 
PM2.5 NAAQS (August 31, 2017, 82 FR 41379, proposed rule 
and February 1, 2018, 83 FR 4595, final rule).
    \2\ See U.S. Court of Appeals for the Ninth Circuit decision in 
Montana Environmental Information Center v. EPA, 902 F.3d 971.
---------------------------------------------------------------------------

    Pursuant to section 110(a), states must provide reasonable notice 
and opportunity for public hearing for all infrastructure SIP 
submissions. On August 24, 2018, the Indiana Department of 
Environmental Management (IDEM) opened a 30-day comment period and 
provided the opportunity for public hearing. No requests for public 
hearing were received. Indiana received four separate comments 
pertaining to the transport requirements of section 110(a)(2)(D)(i)(I). 
EPA has proposed action on the transport portion of Indiana's 
submission in a separate rulemaking, therefore those comments are not 
germane to this action. See 87 FR 9838, February 22, 2022.
    IDEM submitted these rules to EPA on November 2, 2018. In this 
rulemaking, EPA is proposing to approve most elements of this 
submission, which is intended to address all applicable infrastructure 
requirements for the 2015 ozone NAAQS.
    Additionally, in this rulemaking EPA is proposing to approve a June 
24, 2020, submission from IDEM that seeks to revise the Indiana SIP by 
incorporating by reference a more recent edition of the CFR.

II. What is EPA's analysis of the November 2, 2018, SIP submission?

    Indiana has provided a detailed synopsis of how various components 
of its SIP meet each of the applicable requirements in section 
110(a)(2) for the 2015 ozone NAAQS, as applicable. The following review 
evaluates the state's submission.

A. Section 110(a)(2)(A)--Emission Limits and Other Control Measures

    This section requires SIPs to include enforceable emission limits 
and other control measures, means or techniques, schedules for 
compliance, and other related matters. EPA has long interpreted 
emission limits and control measures for attaining the standards as 
being due when nonattainment planning requirements are due.\3\ In the 
context of an infrastructure SIP, EPA is not evaluating the existing 
SIP provisions for this purpose. Instead, EPA is only evaluating 
whether the state's SIP has basic structural provisions for the 
implementation of the NAAQS.
---------------------------------------------------------------------------

    \3\ E.g., EPA's final rule on ``National Ambient Air Quality 
Standards for Lead.'' 73 FR 66964 at 67034.
---------------------------------------------------------------------------

    EPA's 2013 Guidance states that to satisfy section 110(a)(2)(A) 
requirements, ``an air agency's submission should identify existing 
EPA-approved SIP provisions or new SIP provisions that the air agency 
has adopted and submitted for EPA approval that limit emissions of 
pollutants relevant to the subject

[[Page 38695]]

NAAQS, including precursors of the relevant NAAQS pollutant where 
applicable.'' IDEM's authority to adopt emissions standards and 
compliance schedules is found in the Indiana Code (IC) at IC 13-14-8, 
IC 13-17-3-4, IC 13-17-3-11, and IC 13-17-3-14. IDEM identified 
existing controls and emission limits in the IC. These regulations 
include controls and emission limits for volatile organic compounds 
(VOC) and nitrogen oxides (NOX), which are precursors to 
ozone. VOC as an ozone precursor is regulated at 326 Indiana 
Administrative Code (IAC) 8, and NOX as an ozone precursor 
is regulated by 326 IAC 10.
    Furthermore, in Rules 326 IAC 8 and 326 IAC 10, respectively, 
Indiana provides category-specific and source-specific VOC and 
NOX emission limits in addition to general VOC emission 
limits for Boone, Clark, Dearborn, Elkhart, Floyd, Hamilton, Hancock, 
Harrison, Hendricks, Johnson, Lake, Marion, Morgan, Porter, St. Joseph, 
and Shelby counties, and general NOX emission limits for 
Clark, Floyd and Warrick counties.
    In this rulemaking, EPA is not proposing to take any action on any 
new provisions currently in the IAC. EPA is also not proposing to take 
any action on any existing state provisions or rules related to start-
up, shutdown or malfunction or director's discretion in the context of 
section 110(a)(2)(A). EPA proposes that Indiana has met the 
infrastructure SIP requirements of section 110(a)(2)(A) with respect to 
the 2015 ozone NAAQS.

B. Section 110(a)(2)(B)--Ambient Air Quality Monitoring/Data System

    This section requires SIPs to provide for establishing and 
operating ambient air quality monitors, collecting and analyzing 
ambient air quality data, and, upon request, to make these data 
available to EPA. EPA's 2013 Guidance states that submission of annual 
monitoring network plans consistent with EPA's ambient air monitoring 
regulations at 40 CFR 58.10 is one way of satisfying requirements to 
provide EPA information regarding air quality monitoring activities. 
EPA's review of a state's annual monitoring plan includes EPA's 
determination that the state: (i) monitors air quality at appropriate 
locations throughout the state using EPA-approved Federal Reference 
Methods or Federal Equivalent Method monitors; (ii) submits data to 
EPA's Air Quality System (AQS) in a timely manner; and, (iii) provides 
EPA Regional Offices with prior notification of any planned changes to 
monitoring sites or the network plan.
    In accordance with 40 CFR part 53 and 40 CFR part 58, IDEM 
continues to operate an air monitoring network that is used to 
determine compliance with the NAAQS. IDEM enters air monitoring data 
into AQS and provides EPA with prior notification when changes to its 
monitoring network or plan are being considered. Further, Indiana 
submits annual monitoring network plans to EPA. EPA approved Indiana's 
2020 Annual Air Monitoring Network Plan on November 21, 2019, including 
the plan for ozone. EPA proposes that Indiana has met the 
infrastructure SIP requirements of section 110(a)(2)(B) with respect to 
the 2015 ozone NAAQS.

C. Section 110(a)(2)(C)--Program for Enforcement of Emission 
Limitations and Control Measures; Minor NSR; PSD

    This section requires SIPs to set forth a program providing for 
enforcement of all SIP measures and the regulation of construction of 
new or modified stationary sources to meet New Source Review (NSR) 
requirements under Prevention of Significant Deterioration (PSD) and 
Nonattainment NSR (NNSR) programs. Part C of the CAA (sections 160-
169B) addresses PSD, while part D of the CAA (sections 171-193) 
addresses NNSR requirements. EPA's 2013 Guidance states that the NNSR 
requirements of section 110(a)(2)(C) are generally outside the scope of 
infrastructure SIPs; however, a state must provide for regulation of 
minor sources and minor modifications (minor NSR).
1. Program for Enforcement of Emission Limitations and Control Measures
    A state's infrastructure SIP submission should identify the 
statutes, regulations, or other provisions in the SIP that provide for 
enforcement of emission limits and control measures.
    IDEM maintains an enforcement program to ensure compliance with SIP 
requirements. Specifically, IC 13-14-1-12 provides the Commissioner 
with the authority to enforce rules ``consistent with the purpose of 
the air pollution control laws.'' Additionally, IC 13-14-2-6, IC 13-14-
2-7, IC 13-17-3-3 and 13-30-3 provide the Commissioner with the 
authority to assess civil penalties and obtain compliance with any 
applicable rule a board has adopted in order to enforce air pollution 
control laws. Lastly, IC 13-14-10-2 allows for an emergency restraining 
order that prevents any person from causing, or introducing 
contaminants, that cause or contribute to air pollution. EPA proposes 
that Indiana has met the enforcement of SIP measures requirements of 
section 110(a)(2)(C) with respect to the 2015 ozone NAAQS.
2. Minor NSR
    An infrastructure SIP submission should identify the existing EPA-
approved SIP provisions that govern the minor source pre-construction 
program that regulates emissions of the relevant NAAQS pollutant.
    EPA approved Indiana's minor NSR program on March 16, 2015 (80 FR 
13493); since that date, IDEM and EPA have relied on the existing minor 
NSR program to ensure that new and modified sources not captured by the 
major NSR permitting programs do not interfere with attainment and 
maintenance of the NAAQS. As stated in EPA's 2013 Guidance, the CAA 
allows EPA to approve infrastructure SIP submissions that do not 
implement the 2002 NSR Reform Rules. Therefore, EPA is not proposing 
action on existing NSR Reform regulations for Indiana. EPA proposes 
that Indiana has met the minor NSR requirements of section 110(a)(2)(C) 
with respect to the 2015 ozone NAAQS.
3. PSD
    The evaluation of each state's submission addressing the 
infrastructure SIP requirements of section 110(a)(2)(C) covers: (i) PSD 
provisions that explicitly identify NOX as a precursor to 
ozone in the PSD program; (ii) identification of precursors to 
PM2.5 \4\ and the identification of PM2.5 and 
PM10 \5\ condensibles in the PSD program; (iii) 
PM2.5 increments in the PSD program; and (iv) greenhouse gas 
(GHG) permitting and the ``Tailoring Rule'' in the PSD program.\6\
---------------------------------------------------------------------------

    \4\ PM2.5 refers to particles with an aerodynamic 
diameter of less than or equal to 2.5 micrometers, also referred to 
as ``fine'' particles.
    \5\ PM10 refers to particulate matter particles with 
an aerodynamic diameter of less than or equal to 10 micrometers.
    \6\ In EPA's April 28, 2011, proposed rulemaking for 
infrastructure SIPS for the 1997 ozone and PM2.5 NAAQS, 
EPA stated that each state's PSD program must meet applicable 
requirements for evaluation of all regulated NSR pollutants in PSD 
permits (76 FR 23757 at 23760). This view was reiterated in EPA's 
August 2, 2012, proposed rulemaking for infrastructure SIPs for the 
2006 PM2.5 NAAQS (77 FR 45992 at 45998). In other words, 
if a state lacks provisions needed to adequately address 
NOX as a precursor to ozone, PM2.5 precursors, 
PM2.5 and PM10 condensibles, PM2.5 
increments, or the Federal GHG permitting thresholds, the provisions 
of Section 110(a)(2)(C) requiring a suitable PSD permitting program 
must be considered not to be met irrespective of the NAAQS that 
triggered the requirement to submit an infrastructure SIP, including 
the 2012 PM2.5 NAAQS.
---------------------------------------------------------------------------

    Some PSD requirements under section 110(a)(2)(C) overlap with 
elements of section 110(a)(2)(D)(i), section 110(a)(2)(E), and section 
110(a)(2)(J).

[[Page 38696]]

These links are discussed in the appropriate areas below.
a. PSD Provisions That Explicitly Identify NOX as a 
Precursor to Ozone in the PSD Program
    EPA's ``Final Rule to Implement the 8-Hour Ozone National Ambient 
Air Quality Standard--Phase 2; Final Rule to Implement Certain Aspects 
of the 1990 Amendments Relating to New Source Review and Prevention of 
Significant Deterioration as They Apply in Carbon Monoxide, Particulate 
Matter, and Ozone NAAQS; Final Rule for Reformulated Gasoline'' (Phase 
2 Rule) was published on November 29, 2005 (70 FR 71612). Among other 
requirements, the Phase 2 Rule obligated states to revise their PSD 
programs to explicitly identify NOX as a precursor to ozone 
(70 FR 71612 at 71679, 71699-71700). This requirement was codified in 
40 CFR 51.166.\7\
---------------------------------------------------------------------------

    \7\ Similar changes were codified in 40 CFR 52.21.
---------------------------------------------------------------------------

    The Phase 2 Rule required that states submit SIP revisions 
incorporating the requirements of the rule, including provisions 
specifically identifying NOX as a precursor to ozone, by 
June 15, 2007 (see 70 FR 71612 at 71683, November 29, 2005).
    EPA approved revisions to Indiana's PSD SIP reflecting these 
requirements on July 2, 2014 (79 FR 37646), and therefore proposes that 
Indiana has met this set of infrastructure SIP requirements of section 
110(a)(2)(C) with respect to the 2015 ozone NAAQS.
b. Identification of Precursors to PM2.5 and the 
Identification of PM2.5 and PM10 Condensibles in 
the PSD Program
    On May 16, 2008 (73 FR 28321), EPA issued the Final Rule on the 
``Implementation of the New Source Review (NSR) Program for Particulate 
Matter Less than 2.5 Micrometers (PM2.5)'' (2008 NSR Rule). 
The 2008 NSR Rule finalized several new requirements for SIPs to 
address sources that emit direct PM2.5 and other pollutants 
that contribute to secondary PM2.5 formation. One of these 
requirements is for NSR permits to address pollutants responsible for 
the secondary formation of PM2.5, otherwise known as 
precursors. In the 2008 rule, EPA identified precursors to 
PM2.5 for the PSD program to be sulfur dioxide 
(SO2) and NOX (unless the state demonstrates to 
the Administrator's satisfaction or EPA demonstrates that 
NOX emissions in an area are not a significant contributor 
to that area's ambient PM2.5 concentrations). The 2008 NSR 
Rule also specifies that VOCs are not considered to be precursors to 
PM2.5 in the PSD program unless the state demonstrates to 
the Administrator's satisfaction or EPA demonstrates that emissions of 
VOCs in an area are significant contributors to that area's ambient 
PM2.5 concentrations.
    The explicit references to SO2, NOX, and VOCs 
as they pertain to secondary PM2.5 formation are codified at 
40 CFR 51.166(b)(49)(i)(b) and 40 CFR 52.21(b)(50)(i)(b). As part of 
identifying pollutants that are precursors to PM2.5, the 
2008 NSR Rule also required states to revise the definition of 
``significant'' as it relates to a net emissions increase or the 
potential of a source to emit pollutants. Specifically, 40 CFR 
51.166(b)(23)(i) and 40 CFR 52.21(b)(23)(i) define ``significant'' for 
PM2.5 to mean the following emissions rates: 10 tons per 
year (tpy) of direct PM2.5; 40 tpy of SO2; and 40 
tpy of NOX (unless the state demonstrates to the 
Administrator's satisfaction or EPA demonstrates that NOX 
emissions in an area are not a significant contributor to that area's 
ambient PM2.5 concentrations). The deadline for states to 
submit SIP revisions to their PSD programs incorporating these changes 
was May 16, 2011 (see 73 FR 28321 at 28341, May 16, 2008).\8\
---------------------------------------------------------------------------

    \8\ EPA notes that on January 4, 2013, the U.S. Court of Appeals 
for the D.C. Circuit, in Natural Resources Defense Council v. EPA, 
706 F.3d 428 (D.C. Cir.), held that EPA should have issued the 2008 
NSR Rule in accordance with the CAA's requirements for 
PM10 nonattainment areas (Title I, Part D, subpart 4), 
and not the general requirements for nonattainment areas under 
subpart 1 (Natural Resources Defense Council v. EPA, No. 08-1250). 
As the subpart 4 provisions apply only to nonattainment areas, EPA 
does not consider the portions of the 2008 rule that address 
requirements for PM2.5 attainment and unclassifiable 
areas to be affected by the court's opinion. Moreover, EPA does not 
anticipate the need to revise any PSD requirements promulgated by 
the 2008 NSR rule in order to comply with the court's decision. 
Accordingly, EPA's approval of Indiana's infrastructure SIP as to 
elements (C), (D)(i)(II), or (J) with respect to the PSD 
requirements promulgated by the 2008 implementation rule does not 
conflict with the court's opinion.
    The Court's decision with respect to the nonattainment NSR 
requirements promulgated by the 2008 implementation rule also does 
not affect EPA's action on the present infrastructure action. EPA 
interprets the CAA to exclude nonattainment area requirements, 
including requirements associated with a nonattainment NSR program, 
from infrastructure SIP submissions due three years after adoption 
or revision of a NAAQS. Instead, these elements are typically 
referred to as nonattainment SIP or attainment plan elements, which 
would be due by the dates statutorily prescribed under subpart 2 
through 5 under part D, extending as far as 10 years following 
designations for some elements.
---------------------------------------------------------------------------

    The 2008 NSR Rule did not require states to immediately account for 
gases that could condense to form particulate matter, known as 
condensibles, in PM2.5 and PM10 emission limits 
in NSR permits. Instead, EPA determined that states had to account for 
PM2.5 and PM10 condensibles for applicability 
determinations and in establishing emissions limitations for 
PM2.5 and PM10 in PSD permits beginning on or 
after January 1, 2011. This requirement is codified in 40 CFR 
751.166(b)(49)(i)(a) and 40 CFR 52.21(b)(50)(i)(a). Revisions to 
states' PSD programs incorporating the inclusion of condensibles were 
due to EPA by May 16, 2011 (see 73 FR 28321 at 28341, May 16, 2008).
    EPA approved revisions to Indiana's PSD SIP reflecting these 
requirements on July 2, 2014 (79 FR 37646), and therefore proposes that 
Indiana has met this set of infrastructure SIP requirements of section 
110(a)(2)(C) with respect to the 2015 ozone NAAQS.
c. PM2.5 Increments in the PSD Program
    On October 20, 2010, EPA issued the final rule on the ``Prevention 
of Significant Deterioration (PSD) for Particulate Matter Less Than 2.5 
Micrometers (PM2.5)--Increments, Significant Impact Levels 
(SILs) and Significant Monitoring Concentration (SMC)'' (2010 NSR 
Rule). This rule established several components for making PSD 
permitting determinations for PM2.5, including a system of 
``increments'' which is the mechanism used to estimate significant 
deterioration of ambient air quality for a pollutant. These increments 
are codified in 40 CFR 51.166(c) and 40 CFR 52.21(c), and are included 
in Table 1 below.

Table 1--PM2.5 Increments Established by the 2010 NSR Rule in Micrograms
                             per Cubic Meter
------------------------------------------------------------------------
                                                    Annual
                                                  arithmetic    24-hour
                                                     mean         max
------------------------------------------------------------------------
Class I.........................................           1           2
Class II........................................           4           9
Class III.......................................           8          18
------------------------------------------------------------------------

    The 2010 NSR Rule also established a new ``major source baseline 
date'' for PM2.5 as October 20, 2010, and a new trigger date 
for PM2.5 as October 20, 2011. These revisions are codified 
in 40 CFR 51.166(b)(14)(i)(c) and (b)(14)(ii)(c), and 40 CFR 
52.21(b)(14)(i)(c) and (b)(14)(ii)(c). Lastly, the 2010 NSR Rule 
revised the definition of ``baseline area'' to include a level of 
significance of 0.3 micrograms per cubic meter, annual average, for 
PM2.5. This change is codified in 40 CFR 51.166(b)(15)(i) 
and 40 CFR 52.21(b)(15)(i).
    On July 12, 2012, and supplemented on December 12, 2012, IDEM 
submitted

[[Page 38697]]

revisions intended to address the increments established by the 2010 
NSR Rule for incorporation into the SIP, as well as the revised major 
source baseline date, trigger date, and baseline area level of 
significance for PM2.5. IDEM also requested that these 
revisions satisfy any applicable infrastructure SIP requirements 
related to PSD. Specifically, revisions to 326 IAC 2-2-6(b) contain the 
Federal increments for PM2.5, 326 IAC 2-2-1(ee)(3) contains 
the new major source baseline date for PM2.5 of October 20, 
2010, 326 IAC 2-2-1(gg)(1)(C) contains the new trigger date for 
PM2.5 of October 20, 2011, and 326 IAC 2-2-1(f)(1) contains 
the new baseline area level of significance for PM2.5. It 
should be noted that Indiana's submitted revisions explicitly include 
only the PM2.5 increments as they apply to Class II areas, 
and not the PM2.5 increments as they apply to Class I or 
Class III areas.
    On August 11, 2014 (79 FR 46709), EPA finalized approval of the 
applicable infrastructure SIP PSD revisions in the Indiana SIP; 
therefore, EPA is proposing that Indiana has met this set of 
infrastructure SIP requirements of section 110(a)(2)(C) with respect to 
the 2015 ozone NAAQS.
d. GHG Permitting and the ``Tailoring Rule'' in the PSD Program
    With respect to the requirements of section 110(a)(2)(C) as well as 
section 110(a)(2)(J), EPA interprets the CAA to require each state to 
make an infrastructure SIP submission for a new or revised NAAQS that 
demonstrates that the air agency has a complete PSD permitting program 
meeting the current requirements for all regulated NSR pollutants. The 
requirements of section 110(a)(2)(D)(i)(II) may also be satisfied by 
demonstrating the air agency has a complete PSD permitting program 
correctly addressing all regulated NSR pollutants. Indiana has shown 
that it currently has a PSD program in place that covers all regulated 
NSR pollutants, including GHGs. EPA finalized approval of a revision to 
Indiana's SIP on September 15, 2011 (76 FR 59899), which included 
revisions to 326 IAC 2-2-1 and 326 IAC 2-2-4 of Indiana's PSD 
regulations. These revisions established appropriate emissions 
thresholds for determining PSD applicability with respect to new or 
modified GHG-emitting stationary sources in accordance with EPA's GHG 
Tailoring Rule.
    On June 23, 2014, the United States Supreme Court issued a decision 
addressing the application of PSD permitting requirements to GHG 
emissions. Utility Air Regulatory Group v. Environmental Protection 
Agency, 134 S.Ct. 2427 (the UARG case). The Supreme Court said that EPA 
may not treat GHGs as an air pollutant for purposes of determining 
whether a source is a major source required to obtain a PSD permit. The 
Court also said that EPA could continue to require that PSD permits, 
otherwise required based on emissions of pollutants other than GHGs, 
contain limitations on GHG emissions based on the application of Best 
Available Control Technology (BACT).
    In accordance with the Supreme Court decision, on April 10, 2015, 
the U.S. Court of Appeals for the District of Columbia Circuit (the 
D.C. Circuit) issued an amended judgment vacating the regulations that 
implemented Step 2 of the EPA's PSD and Title V Greenhouse Gas 
Tailoring Rule, but not the regulations that implement Step 1 of that 
rule. See Coalition for Responsible Regulation, Inc. v. EPA, No. 09-
1322. Step 1 of the Tailoring Rule covers sources that are required to 
obtain a PSD permit based on emissions of pollutants other than GHGs. 
Step 2 applied to sources that emitted only GHGs above the thresholds 
triggering the requirement to obtain a PSD permit. The amended judgment 
preserves, without the need for additional rulemaking by the EPA, the 
application of the BACT requirement to GHG emissions from Step 1 or 
``anyway'' sources. With respect to Step 2 sources, the D.C. Circuit's 
amended judgment vacated the regulations at issue in the litigation, 
including 40 CFR 51.166(b)(48)(v), ``to the extent they require a 
stationary source to obtain a PSD permit if greenhouse gases are the 
only pollutant (i) that the source emits or has the potential to emit 
above the applicable major source thresholds, or (ii) for which there 
is a significant emission increase from a modification.''
    EPA is planning to take additional steps to revise federal PSD 
rules in light of the Supreme Court opinion and subsequent D.C. Circuit 
judgment. Some states have begun to revise their existing SIP-approved 
PSD programs to address these court decisions, and some states may 
prefer not to initiate this process until they have more information 
about the planned revisions to EPA's PSD regulations. EPA is not 
expecting states to have revised their PSD programs in anticipation of 
EPA's planned actions to revise its PSD program rules in response to 
the court decisions or purposes of infrastructure SIP submissions. For 
purposes of infrastructure SIP submissions, EPA is only evaluating such 
submissions to assure that the state's program addresses GHGs 
consistent with both court decisions.
    Under IC 13-14-9-8(h) Indiana's rules that implement Step 2 of the 
Tailoring Rule were automatically invalidated in the UARG case 
discussed above. Therefore, Indiana only implements Step 1 for 
``anyway'' sources. The Indiana Environmental Rules Board adopted the 
GHG regulations required by EPA at 326 IAC 2-2-1(zz), pursuant to IC 
13-14-9-8(h) (a section 8 rulemaking). While the Step 2 provisions 
still appear at 326 IAC 2-2-1(zz)(5), as a result of IC 13-14-9-8(h), a 
rule, or part of a rule, adopted under section 8 is automatically 
invalidated when the corresponding federal rule, or part of the rule, 
is invalidated. Due to the ruling in UARG v.  EPA, the Step 2 portion 
of the Indiana's rule was automatically invalidated, and IDEM cannot 
consider GHG emissions to determine operating permit applicability or 
PSD applicability to a source or modification. Therefore, EPA is 
proposing that Indiana's SIP is sufficient to satisfy Elements (C), 
(D)(i)(II), and (J) with respect to GHGs because the PSD permitting 
program previously approved by the EPA into the Indiana SIP continues 
to require that PSD permits issued to ``anyway sources'' contain 
limitations on GHG emissions based on the application of BACT.
    EPA proposes that Indiana has met the infrastructure SIP 
requirements of section 110(a)(2)(C) with respect to the 2015 ozone 
NAAQS.
3. Minor NSR
    An infrastructure SIP submission should identify the existing EPA-
approved SIP provisions that govern the minor source pre-construction 
program that regulates emissions of the relevant NAAQS pollutant.
    EPA approved Indiana's minor construction permit rule (326 IAC 2-1) 
on October 7, 1994 (59 FR 51108). On March 16, 2015, EPA approved 
revisions to 326 IAC 2-1 (see 80 FR 13493). Since October 7, 1994 and 
March 16, 2015, respectively, IDEM and EPA have relied on the existing 
minor NSR program to ensure that new and modified sources not captured 
by the major NSR permitting programs do not interfere with attainment 
and maintenance of the NAAQS. As stated in EPA's 2013 Guidance, the CAA 
allows EPA to approve infrastructure SIP submissions that do not 
implement the 2002 NSR Reform Rules. Therefore, EPA is not proposing 
action on existing NSR Reform regulations for Indiana. EPA proposes 
that Indiana has met the minor NSR requirements of section

[[Page 38698]]

110(a)(2)(C) with respect to the 2015 ozone NAAQS.

D. Section 110(a)(2)(D)--Interstate Transport

    Section 110(a)(2)(D) has two components: 110(a)(2)(D)(i) and 
110(a)(2)(D)(ii). Section 110(a)(2)(D)(i) includes four distinct 
components, commonly referred to as ``prongs,'' that must be addressed 
in infrastructure SIP submissions. The first two prongs, which are 
codified in section 110(a)(2)(D)(i)(I), prohibit any source or other 
type of emissions activity in one state from contributing significantly 
to nonattainment of the NAAQS in another state (prong 1) and from 
interfering with maintenance of the NAAQS in another state (prong 2). 
The third and fourth prongs, which are codified in section 
110(a)(2)(D)(i)(II), prohibit emissions activity in one state from 
interfering with measures required to prevent significant deterioration 
of air quality in another state (prong 3) or from interfering with 
measures to protect visibility in another state (prong 4).
    Section 110(a)(2)(D)(i)(I) requires SIPs to include provisions 
prohibiting any source or other type of emission activity in one state 
from contributing significantly to nonattainment, or interfering with 
maintenance, of the NAAQS in another state. Section 110(a)(2)(D)(i)(II) 
requires SIPs to include provisions prohibiting any source of other 
type of emission activity in one state from interfering with measures 
required of any other state to prevent significant deterioration of air 
quality, or from interfering with measures required of any other state 
to protect visibility. Section 110(a)(2)(D)(ii) requires each SIP to 
contain adequate provisions requiring compliance with the applicable 
requirements of section 126 and section 115 (relating to interstate and 
international pollution abatement, respectively).
1. Significant Contribution to Nonattainment
    In this rulemaking, EPA is not evaluating section 
110(a)(2)(D)(i)(I) requirements relating to significant contribution to 
nonattainment for the 2015 ozone NAAQS. Instead, EPA has evaluated 
these requirements in a separate rulemaking. See 87 FR 9838, February 
22, 2022.
2. Interference With Maintenance
    In this rulemaking, EPA is not evaluating section 
110(a)(2)(D)(i)(I) requirements relating to interference with 
maintenance for the 2015 ozone NAAQS. Instead, EPA has evaluated these 
requirements in a separate rulemaking. See 87 FR 9838, February 22, 
2022.
3. Interference With PSD
    EPA notes that Indiana's satisfaction of the applicable 
infrastructure SIP PSD requirements for the 2015 ozone NAAQS has been 
detailed in the section addressing section 110(a)(2)(C). EPA further 
notes that the proposed actions in that section related to PSD are 
consistent with the proposed actions related to PSD for section 
110(a)(2)(D)(i)(II), and they are reiterated below.
    EPA has previously approved revisions to Indiana's SIP that meet 
certain requirements obligated by the Phase 2 Rule and the 2008 NSR 
Rule. These revisions included provisions that explicitly identify 
NOX as a precursor to ozone, explicitly identify 
SO2 and NOX as precursors to PM2.5 and 
regulate condensable PM2.5 and PM10 in 
applicability determinations for purposes of establishing emission 
limits. EPA has also previously approved revisions to Indiana's SIP 
that incorporate the PM2.5 increments and the associated 
implementation regulations including the major source baseline date, 
trigger date, and level of significance for PM2.5 per the 
2010 NSR Rule. EPA is proposing that Indiana's SIP contains provisions 
that adequately address the 2015 ozone NAAQS.
    States also have an obligation to ensure that sources located in 
nonattainment areas do not interfere with a neighboring state's PSD 
program. One way that this requirement can be satisfied is through an 
NNSR program consistent with the CAA that addresses any pollutants for 
which there is a designated nonattainment area within the state.
    Indiana's EPA-approved NNSR regulations are contained in 326 IAC 2-
3, approved on July 8, 2011 (76 FR 40242), and are consistent with 40 
CFR 51.165 and 40 CFR part 51, appendix S. Therefore, EPA proposes that 
Indiana has met all of the applicable section 110(a)(2)(D)(i)(II) 
requirements relating to interference with PSD for the 2015 ozone 
NAAQS.
4. Interference With Visibility Protection
    In this rulemaking, EPA is not approving or disapproving Indiana's 
satisfaction of the visibility protection requirements of section 
110(a)(2)(D)(i)(II), transport prong 4, for the 2015 ozone NAAQS. 
Instead, EPA will evaluate Indiana's compliance with these requirements 
in a separate rulemaking.
5. Interstate and International Pollution Abatement
    Section 110(a)(2)(D)(ii) requires each SIP to contain adequate 
provisions requiring compliance with the applicable requirements of 
section 126 and section 115 (relating to interstate and international 
pollution abatement, respectively). section 126(a) requires new or 
modified sources to notify neighboring states of potential impacts from 
the source. The statute does not specify the method by which the source 
should provide the notification. States with SIP-approved PSD programs 
must have a provision requiring such notification by new or modified 
sources. A lack of such a requirement in state rules would be grounds 
for disapproval of this element.
    Indiana's EPA-approved PSD portion of its program in 326 IAC 2-2-15 
(b)(3) contains provisions requiring new or modified sources to notify 
neighboring states of potential negative air quality impacts. EPA is 
proposing that Indiana has met the infrastructure SIP requirements of 
section 126(a) with respect to the 2015 ozone NAAQS. Indiana does not 
have any obligations under any other subsection of section 126, nor 
does it have any pending obligations under section 115. Therefore, EPA 
proposes that Indiana has met all of the applicable section 
110(a)(2)(D)(ii) requirements for the 2015 ozone NAAQS.

E. Section 110(a)(2)(E)--Adequate Resources; State Board Requirements

    This section requires each state to provide for adequate personnel, 
funding, and legal authority under state law to carry out its SIP, and 
related issues. Section 110(a)(2)(E)(ii) also requires each state to 
comply with the requirements respecting state boards under section 128.
1. Adequate Resources
    To satisfy the adequate resources requirements of section 
110(a)(2)(E), the state should provide assurances that its air agency 
has adequate resources, personnel, and legal authority to implement the 
relevant NAAQS.
    Indiana's biennial budget and its environmental performance 
partnership agreement with EPA document funding and personnel levels 
for IDEM every two years. As discussed in earlier sections, IC 13-14-1-
12 provides the Commissioner of IDEM with the authority to enforce air 
pollution control laws. Furthermore, IC 13-14-8, IC 13-17-3-11, and IC 
13-17-3-14 contain the authority for IDEM to adopt air emissions 
standards and compliance

[[Page 38699]]

schedules. EPA proposes that Indiana has met the infrastructure SIP 
requirements of this portion of section 110(a)(2)(E) with respect to 
the 2015 ozone NAAQS.
2. State Board Requirements
    Section 110(a)(2)(E) also requires each SIP to set forth provisions 
that comply with the state board requirements of section 128 of the 
CAA. Specifically, this section contains two explicit requirements: (i) 
That any board or body which approves permits or enforcement orders 
under this chapter shall have at least a majority of members who 
represent the public interest and do not derive any significant portion 
of their income from persons subject to permits and enforcement orders 
under this chapter, and (ii) that any potential conflicts of interest 
by members of such board or body or the head of an executive agency 
with similar powers be adequately disclosed.
    On November 29, 2012, IDEM submitted rules regarding its 
Environmental Rules Board at IC 13-13-8 for incorporation into the SIP, 
pursuant to section 128 of the CAA. On December 12, 2012, IDEM provided 
a supplemental submission clarifying that the Environmental Rules Board 
established by IC 13-13-8, which has the authority to adopt 
environmental regulations under IC 4-22-2 and IC 13-14-9, does not have 
the authority to approve enforcement orders or permitting actions as 
outlined in section 128(a)(1) of the CAA. Therefore, section 128(a)(1) 
of the CAA is not applicable in Indiana.
    Under section 128(a)(2), the head of the executive agency with the 
power to approve enforcement orders or permits must adequately disclose 
any potential conflicts of interest. IC 13-13-8-11 ``Disclosure of 
conflicts of interest'' contains provisions that adequately satisfy the 
requirements of section 128(a)(2). This section requires that each 
member of the board shall fully disclose any potential conflicts of 
interest relating to permits or enforcement orders. IC 13-13-8-4 
defines the membership of the board, and the commissioner (of IDEM) or 
his/her designee is explicitly included as a member of the board. 
Therefore, when evaluated together in the context of section 128(a)(2), 
the commissioner (of IDEM) or his/her designee must fully disclose any 
potential conflicts of interest relating to permits or enforcement 
orders under the CAA. EPA concludes that IDEM's submission as it 
relates to the state board requirements under section 128 is consistent 
with applicable CAA requirements. EPA approved these rules on December 
24, 2013 (78 FR 77599). Therefore, EPA is proposing that IDEM has 
satisfied the applicable infrastructure SIP requirements of section 
110(a)(2)(E) for the 2015 ozone NAAQS.

F. Section 110(a)(2)(F)--Stationary Source Monitoring System

    Section 110(a)(2)(F) contains several requirements, each of which 
are described below.
1. Installation, Maintenance, Replacement of Equipment, and Other 
Necessary Steps by Owners or Operators of Stationary Sources To Monitor 
Emissions From Such Sources
    EPA's rules regarding how SIPs need to address requirements for 
source monitoring are contained in 40 CFR 51.212 (``Testing, 
inspection, enforcement, and compliance''). This regulation requires 
SIPs to provide for a program of periodic testing and inspection of 
stationary sources, to provide for the identification of allowable test 
methods, and to exclude any provision that would prevent the use of any 
credible evidence of noncompliance. IDEM's rules for monitoring 
requirements are contained in 326 IAC 3, which includes provisions 
specific to the continuous monitoring of emissions at 326 IAC 3-5-1, 
approved on June 25, 2021 (86 FR 33525), and minimum performance and 
operating specifications at 326 IAC 3-5-2, quality assurance 
requirements at 326 IAC 3-5-5, recordkeeping requirements at 326 IAC 3-
5-6, source sampling procedures at 326 IAC 3-6-1, and fuel sampling and 
analysis procedures at 326 IAC 7, approved on October 23, 2013 (78 FR 
63093). Therefore, EPA proposes that Indiana has met the infrastructure 
SIP requirements of section 110(a)(2)(F)(i) with respect to the 2015 
ozone standard.
2. Periodic Reports on the Nature and Amounts of Emissions and 
Emissions-Related Data From Stationary Sources
    To address periodic reporting requirements, the infrastructure SIP 
submission should include air agency requirements providing for 
periodic reporting of emissions and emissions-related data by sources 
to the air agency, as required by the following emissions reporting 
requirements: 40 CFR 51.211 (``Emissions reports and recordkeeping''); 
40 CFR 51.321 through 51.323 (``Source Emissions and State Action 
Reporting''); and the EPA's Air Emissions Reporting Rule, 40 CFR part 
51, subpart A (``Air Emissions Reporting Requirements'').\9\ The 
section 51.321 requirement that emission reports from states be made 
through the appropriate EPA Regional Office has been superseded in 
practice, as these data are now to be reported electronically through a 
centralized data portal pursuant to 40 CFR 51.45(b), which refers to 
the website http://www.epa.gov/ttn/chief, which was moved to https://www.epa.gov/. All states have existing periodic source reporting of 
emissions and emission inventory reporting practices. Thus, for any new 
or revised NAAQS, the infrastructure SIP may be able to certify 
existing authority and commitments and provide any additional assurance 
needed to meet changes in reporting and inventory requirements 
associated with the new or revised NAAQS.
---------------------------------------------------------------------------

    \9\ 40 CFR 51.321 through 51.323 nominally address emission 
reporting but merely cross-reference to 40 CFR part 51, subpart A.
---------------------------------------------------------------------------

    Indiana sets forth reporting requirements in 326 IAC 2-6-4, 
approved on March 29, 2007 (72 FR 14678), that are consistent with 40 
CFR 51.211, 40 CFR 51.321 to 323, and 40 CFR part 51, subpart A. 
Therefore, EPA proposes that Indiana has met the infrastructure SIP 
requirements of section 110(a)(2)(F)(ii) with respect to the 2015 ozone 
standard.
3. Correlation of Emissions Reports by the State Agency With Any 
Applicable Emission Limitations or Standards, Reports Shall Be 
Available at Reasonable Times for Public Inspection
    For this sub-element, the infrastructure SIP submission should 
reference and describe existing air agency requirements that have been 
approved into the SIP by the EPA, or include air agency requirements 
being newly submitted, that provide for the following: (1) correlation 
\10\ by the air agency of emissions reports by sources with applicable 
emission limitations or standards; and (2) the public availability of 
emission reports by sources. Under 40 CFR part 51 Subpart G, 40 CFR 
51.116 (``Data availability''), contains the requirements for 
correlating data. Correlation with applicable emissions limitations or 
standards is relevant only for those reports of source emissions that 
reflect the test method(s) and averaging period(s) specified in 
applicable emission limitations or standards. Thus, source reports of 
annual, ozone season, or summer day

[[Page 38700]]

emissions used by the air agency to create the annual and triennial 
emission inventory submission to the EPA under 40 CFR part 51 subpart A 
in general would not need to be correlated with specific emission 
limitations or standards, as many sources do not have applicable 
emission limitations defined for those averaging periods. However, if 
the sources have applicable emissions limitations that are defined for 
these averaging periods, then they would need to be correlated.
---------------------------------------------------------------------------

    \10\ As defined in 40 CFR 51.116(c), the term ``correlate'' 
means ``present in such a manner as to show the relationship between 
measured or estimated amounts of emissions and the amounts of such 
emissions allowable under the applicable emission limitations or 
other measures.''
---------------------------------------------------------------------------

    Emission reports are available from IDEM upon request by EPA or 
other interested parties. Additionally, IDEM emissions data can be 
downloaded from the IDEM website at https://www.in.gov/idem/airquality/2507.htm. This site provides summaries of emissions of air pollutants 
reported by companies throughout the state of Indiana. The pollutants 
in these summaries include NOX and VOC. Therefore, EPA 
proposes that Indiana has met the infrastructure SIP requirements of 
section 110(a)(2)(F)(iii) with respect to the 2015 ozone standard.

G. Section 110(a)(2)(G)--Emergency Powers

    Section 110(a)(2)(G) requires the SIP to provide for authority 
analogous to that in section 303 of the CAA and adequate contingency 
plans to implement such authority. EPA's 2013 Guidance states that 
infrastructure SIP submissions should specify authority, vested in an 
appropriate official, to restrain any source from causing or 
contributing to emissions which present an imminent and substantial 
endangerment to public health or welfare, or the environment.
    326 IAC 1-5-2, approved on May 31, 1972 (37 FR 10842), establishes 
air pollution episode alert levels based on concentrations of criteria 
pollutants. This rule requires that emergency reduction plans be 
submitted to the Commissioner of IDEM by major air pollution sources, 
and these plans must include actions that will be taken when each 
episode level is declared, to reduce or eliminate emissions of the 
appropriate air pollutants. Similarly, under IC 13-17-4, Indiana also 
retains the ability to declare an air pollution emergency and order all 
persons causing or contributing to the conditions warranting the air 
pollution emergency to immediately reduce or discontinue emission of 
air contaminants. EPA proposes that Indiana has met the applicable 
infrastructure SIP requirements of section 110(a)(2)(G) related to 
authority to implement measures to restrain sources from causing or 
contributing to emissions which present an imminent and substantial 
endangerment to public health, welfare or the environment with respect 
to the 2015 ozone NAAQS.

H. Section 110(a)(2)(H)--Future SIP Revisions

    This section requires states to provide for the authority to revise 
their SIPs in response to changes in the NAAQS, availability of 
improved methods for attaining the NAAQS, or to an EPA finding that the 
SIP is substantially inadequate.
    IDEM continues to update and implement needed revisions to 
Indiana's SIP as necessary to meet ambient air quality standards. As 
discussed in previous sections, authority to adopt emissions standards 
and compliance schedules is found at IC 13-4-8, IC 13-17-3-4, IC 13-17-
3-11, and IC 13-17-3-14. EPA proposes that Indiana has met the 
infrastructure SIP requirements of section 110(a)(2)(H) with respect to 
the 2015 ozone NAAQS.

I. Section 110(a)(2)(I)--Nonattainment Planning Requirements of Part D

    The CAA requires that each plan or plan revision for an area 
designated as a nonattainment area meet the applicable requirements of 
Part D of the CAA. Part D relates to nonattainment areas.
    EPA has determined that section 110(a)(2)(I) is not applicable to 
the infrastructure SIP process. Instead, EPA takes action on Part D 
attainment plans through separate processes.

J. Section 110(a)(2)(J)--Consultation With Government Officials; Public 
Notifications; PSD; Visibility Protection

    The evaluation of the submission from Indiana with respect to the 
requirements of section 110(a)(2)(J) are described below.
1. Consultation With Government Officials
    States must provide a process for consultation with local 
governments and Federal Land Managers (FLMs) carrying out NAAQS 
implementation requirements.
    IDEM actively participates in the regional planning efforts that 
include state rule developers, representatives from the FLMs, and other 
affected stakeholders. Additionally, Indiana is an active member of the 
Lake Michigan Air Director's Consortium (LADCO), which consists of 
collaboration with the States of Illinois, Wisconsin, Michigan, 
Minnesota, and Ohio. EPA proposes that Indiana has met the 
infrastructure SIP requirements of this portion of section 110(a)(2)(J) 
with respect to the 2015 ozone NAAQS.
2. Public Notification
    Section 110(a)(2)(J) also requires states to notify the public if 
NAAQS are exceeded in an area and to enhance public awareness of 
measures that can be taken to prevent exceedances.
    IDEM monitors air quality data daily and reports the air quality 
index to the interested public and media, if necessary. IDEM also 
participates in and submits information to EPA's AIRNOW program, and 
maintains SmogWatch, which is an informational tool created by IDEM to 
share air quality forecasts for each day. SmogWatch provides daily 
information about ground-level ozone, particulate matter concentration 
levels, health information, and monitoring data for seven regions in 
Indiana. In addition, IDEM maintains a publicly available website that 
allows interested members of the community and other stakeholders to 
view current monitoring data summaries, including those for ozone.\11\ 
EPA proposes that Indiana has met the infrastructure SIP requirements 
of this portion of section 110(a)(2)(J) with respect to the 2015 ozone 
NAAQS.
---------------------------------------------------------------------------

    \11\ http://www.in.gov/idem/airquality/2489.htm.
---------------------------------------------------------------------------

3. PSD
    States must meet applicable requirements of section 110(a)(2)(C) 
related to PSD. IDEM's PSD program in the context of infrastructure 
SIPs has already been discussed above in the paragraphs addressing 
sections 110(a)(2)(C) and 110(a)(2)(D)(i)(II), and EPA notes that the 
proposed actions for those sections are consistent with the proposed 
actions for this portion of section 110(a)(2)(J).
    Therefore, EPA proposes that Indiana has met all of the 
infrastructure SIP requirements for PSD associated with section 
110(a)(2)(D)(J) for the 2015 ozone NAAQS.
4. Visibility Protection
    States are subject to visibility and regional haze program 
requirements under part C of the CAA (which includes sections 169A and 
169B). In the event of the establishment of a new NAAQS, however, the 
visibility and regional haze program requirements under part C do not 
change. Thus, EPA finds that there is no new visibility obligation 
``triggered'' under section 110(a)(2)(J) when a new NAAQS becomes 
effective. In other words, the visibility protection requirements of 
section 110(a)(2)(J) are not germane to infrastructure SIPs for the 
2015 ozone NAAQS.

[[Page 38701]]

K. Section 110(a)(2)(K)--Air Quality Modeling/Data

    SIPs must provide for performance of air quality modeling to 
predict the effects on air quality of emissions from any NAAQS 
pollutant and the submission of such data to EPA upon request.
    IDEM maintains the capability of performing computer modeling of 
the air quality impacts of all criteria pollutants, including both 
source-oriented and more regionally directed complex photochemical grid 
models. IDEM collaborates with LADCO, EPA, and other Lake Michigan 
states in performing modeling. These modeling data are available to EPA 
or other interested parties upon request. Indiana's rules regarding air 
quality modeling are contained in 326 IAC 2-2-4, 326 IAC 2-2-5, 326 IAC 
2-2-6, and 326 IAC 2-2-7. EPA proposes that Indiana has met the 
infrastructure SIP requirements of section 110(a)(2)(K) with respect to 
the 2015 ozone NAAQS.

L. Section 110(a)(2)(L)--Permitting Fees

    This section requires SIPs to mandate each major stationary source 
to pay permitting fees to cover the cost of reviewing, approving, 
implementing, and enforcing a permit.
    IDEM's EPA-approved permit fee program, specifically contained in 
326 IAC 2-1.1-7, contains the provisions, requirements, and structures 
associated with the costs for reviewing, approving, implementing, and 
enforcing various types of permits. EPA proposes that Indiana has met 
the infrastructure SIP requirements of section 110(a)(2)(L) with 
respect to the 2015 ozone NAAQS.

M. Section 110(a)(2)(M)--Consultation/Participation by Affected Local 
Entities

    States must consult with and allow participation from local 
political subdivisions affected by the SIP. Any IDEM rulemaking 
procedure contained in IC 13-14-9 requires public participation in the 
SIP development process. In addition, IDEM ensures that the public 
hearing requirements of 40 CFR 51.102 are satisfied during the SIP 
development process. EPA proposes that Indiana has met the 
infrastructure SIP requirements of section 110(a)(2)(M) with respect to 
the 2015 ozone NAAQS.

III. What is EPA's analysis of the June 24, 2020, SIP submission?

    On June 24, 2020, IDEM submitted a separate SIP revision request 
that EPA approve into the Indiana SIP updated rules at 326 IAC 1-1-3 
(References to the Code of Federal Regulations) with an effective date 
April 4, 2020.
    IDEM periodically revises its rules to reference updated versions 
of the CFR. Most recently, on June 25, 2017, EPA approved into the 
Indiana SIP revised rules at 326 IAC 1-1-3, which removed a reference 
to the July 1, 2013, edition of the CFR and added a reference to the 
July 1, 2015, edition of the CFR (82 FR 28775).
    IDEM's June 24, 2020, submittal includes a further revised version 
of 326 IAC 1-1-3, which removes the reference to the to the July 1, 
2015, edition of the CFR and adds a reference to the July 1, 2018, 
edition of the CFR. Following approval of these revisions into the 
Indiana SIP, unless otherwise indicated, any reference within 326 IAC 
to a provision of the CFR shall mean the July 1, 2018, edition. By 
updating the reference date to July 1, 2018, the Indiana SIP will be 
consistent with those regulations that the Federal government 
promulgated between July 1, 2015, and June 30, 2018. EPA is therefore 
proposing to approve the revisions at 326 IAC 1-1-3 into the Indiana 
SIP.
    Indiana's June 24, 2020, submission also includes a summary of 
several changes to the CFR, which upon EPA's approval will be 
incorporated into the Indiana SIP. These include revisions applicable 
to appendix W to 40 CFR part 51, which contains updates to the 
Guideline on Air Quality Models finalized by EPA on January 17, 2017 
(82 FR 5182). In the context of infrastructure SIP requirements for the 
2015 ozone NAAQS, EPA must demonstrate that a state provides for the 
performance of air quality modeling as prescribed by the Administrator, 
which means the 2017 revision to appendix W. If a state's SIP includes 
incorporation by reference to an outdated version of appendix W and the 
state lacks other authority to conduct modeling according to the 2017 
revision to appendix W, EPA cannot approve the state's infrastructure 
SIP elements at section 110(a)(2)(C), ``prong 3'' of section 
110(a)(2)(D)(i)(II), section 110(a)(2)(J), and section 110(a)(2)(K). 
Upon approval into the Indiana SIP of the revisions at 326 IAC 1-1-3, 
the Indiana SIP will include incorporation by reference of the current 
2017 version of appendix W. In EPA's analysis, above, of Indiana's 
November 2, 2018, submittal regarding the infrastructure SIP 
requirements for the 2015 ozone NAAQS, EPA has evaluated the Indiana 
SIP together with the revisions at 326 IAC 1-1-3, which EPA is 
proposing to approve in this rulemaking, and which provide IDEM with 
the authority to conduct modeling according to the 2017 revision to 
appendix W.

IV. What action is EPA taking?

    EPA is proposing to approve most elements of the November 2, 2018, 
submission from Indiana certifying that its current SIP is sufficient 
to meet the required infrastructure elements under sections 110(a)(1) 
and (2) for the 2015 ozone NAAQS. EPA has proposed action in a separate 
rulemaking on the portion of the submission pertaining to the 
interstate transport requirements of section 110(a)(2)(D)(i)(I) with 
respect to the 2015 ozone NAAQS. See 87 FR 9838. EPA is not taking 
action on the visibility protection requirements of section 
110(a)(2)(D)(i)(II), transport prong 4, and will address this 
requirement in a future rulemaking.
    EPA's proposed actions for the State's satisfaction of 
infrastructure SIP requirements pursuant to section 110(a)(2) and the 
NAAQS are contained in the table below.

------------------------------------------------------------------------
                 Element                             2015 ozone
------------------------------------------------------------------------
(A)--Emission limits and other control     A
 measures.
(B)--Ambient air quality monitoring/data   A
 system.
(C)1--Program for enforcement of control   A
 measures.
(C)2--PSD................................  A
(D)1--I Prong 1: Interstate transport--    NA
 significant contribution.
(D)2--I Prong 2: Interstate transport--    NA
 interfere with maintenance.
(D)3--II Prong 3: Interstate transport--   A
 prevention of significant deterioration.
(D)4--II Prong 4: Interstate transport--   NA
 protect visibility.
(D)5--Interstate and international         A
 pollution abatement.
(E)1--Adequate resources.................  A
(E)2--State board requirements...........  A
(F)--Stationary source monitoring system.  A
(G)--Emergency power.....................  A

[[Page 38702]]

 
(H)--Future SIP revisions................  A
(I)--Nonattainment planning requirements   *
 of part D.
(J)1--Consultation with government         A
 officials.
(J)2--Public notification................  A
(J)3--PSD................................  A
(J)4--Visibility protection..............   *
(K)--Air quality modeling/data...........  A
(L)--Permitting fees.....................  A
(M)--Consultation and participation by     A
 affected local entities.
------------------------------------------------------------------------

    In the above table, the key is as follows:

------------------------------------------------------------------------
 
------------------------------------------------------------------------
A..............................  Approve.
NA.............................  No Action/Separate Rulemaking.
*..............................  Not germane to infrastructure SIPs.
------------------------------------------------------------------------

    EPA is also proposing to approve the June 24, 2020, submission from 
Indiana, which revises the Indiana SIP by incorporating by reference 
the more recent July 1, 2018, edition of the CFR.

V. Incorporation by Reference

    In this rule, EPA is proposing to include in a final EPA rule 
regulatory text that includes incorporation by reference. In accordance 
with requirements of 40 CFR 51.5, EPA is proposing to incorporate by 
reference Indiana rule 326 IAC 1-1-3, effective April 4, 2020, as 
discussed in Section III of this preamble. EPA has made, and will 
continue to make, these documents generally available through 
www.regulations.gov and at the EPA Region 5 Office (please contact the 
person identified in the FOR FURTHER INFORMATION CONTACT section of 
this preamble for more information).

VI. 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);
     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).

List of Subjects in 40 CFR Part 52

    Environmental protection, Air pollution control, Incorporation by 
reference, Intergovernmental relations, nitrogen oxides, ozone, 
Reporting and recordkeeping requirements, volatile organic compounds.

    Dated: June 21, 2022.
Debra Shore,
Regional Administrator, Region 5.
[FR Doc. 2022-13716 Filed 6-28-22; 8:45 am]
BILLING CODE 6560-50-P