Document ID: EPA-R04-OAR-2012-0285-0001
Agency: epa
Document Type: Proposed Rule
Title: Approvals and Promulgations of Implementation Plans: Tennessee; 110(a)(1) and (2) Infrastructure Requirements for 1997 Annual and 2006 24-Hour Fine Particulate National Ambient Air Quality Standards
Posted Date: 2012-06-11T04:00Z

[Federal Register Volume 77, Number 112 (Monday, June 11, 2012)]
[Proposed Rules]
[Pages 34306-34315]
From the Federal Register Online via the Government Printing Office [www.gpo.gov]
[FR Doc No: 2012-14096]

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ENVIRONMENTAL PROTECTION AGENCY

40 CFR Part 52

[EPA-R04-OAR-2012-0285; FRL-9684-3]

Approval and Promulgation of Implementation Plans; Tennessee; 
110(a)(1) and (2) Infrastructure Requirements for the 1997 Annual and 
2006 24-Hour Fine Particulate National Ambient Air Quality Standards

AGENCY: Environmental Protection Agency (EPA).

ACTION: Proposed rule.

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SUMMARY: EPA is proposing to approve in part, and conditionally approve 
in part, the State Implementation Plans (SIPs), submitted by the State 
of Tennessee, through the Tennessee

[[Page 34307]]

Department of Environment and Conservation (TDEC) as demonstrating that 
the State meets the requirements of sections 110(a)(1) and (2) of the 
Clean Air Act (CAA or the Act) for the 1997 annual and 2006 24-hour 
fine particulate (PM2.5) national ambient air quality 
standards (NAAQS). Section 110(a) of the CAA requires that each state 
adopt and submit a SIP for the implementation, maintenance, and 
enforcement of each NAAQS promulgated by the EPA, which is commonly 
referred to as an ``infrastructure'' SIP. Tennessee certified that the 
Tennessee SIP contains provisions that ensure the 1997 annual and 2006 
24-hour PM2.5 NAAQS are implemented, enforced, and 
maintained in Tennessee (hereafter referred to as ``infrastructure 
submission''). EPA is proposing to conditionally approve a portion of 
sub-element 110(a)(2)(E)(ii) of Tennessee's December 14, 2007, and 
October 19, 2009, submissions because the current Tennessee SIP does 
not currently include provisions to comply with all the requirements of 
this sub-element, however, the State has committed to adding such 
provisions to the SIP within one year of EPA's final action on the 
infrastructure submission. With the exception of a portion of sub-
element 110(a)(2)(E)(ii), EPA is proposing to determine that 
Tennessee's infrastructure submission, provided to EPA on December 14, 
2007, addressed all the required infrastructure elements for the 1997 
annual PM2.5 NAAQS and that its October 19, 2009, submission 
addressed all the required infrastructure elements for the 2006 24-hour 
PM2.5 NAAQS.

DATES: Written comments must be received on or before July 11, 2012.

ADDRESSES: Submit your comments, identified by Docket ID No. EPA-R04-
OAR-2012-0285, by one of the following methods:
    1. www.regulations.gov: Follow the on-line instructions for 
submitting comments.
    2. Email: R4-RDS@epa.gov.
    3. Fax: (404) 562-9019.
    4. Mail: ``EPA-R04-OAR-2012-0285,'' Regulatory Development Section, 
Air Planning Branch, Air, Pesticides and Toxics Management Division, 
U.S. Environmental Protection Agency, Region 4, 61 Forsyth Street SW., 
Atlanta, Georgia 30303-8960.
    5. Hand Delivery or Courier: Lynorae Benjamin, Regulatory 
Development Section, Air Planning Branch, Air, Pesticides and Toxics 
Management Division, U.S. Environmental Protection Agency, Region 4, 61 
Forsyth Street SW., Atlanta, Georgia 30303-8960. Such deliveries are 
only accepted during the Regional Office's normal hours of operation. 
The Regional Office's official hours of business are Monday through 
Friday, 8:30 to 4:30, excluding Federal holidays.
    Instructions: Direct your comments to Docket ID No. EPA-R04-OAR-
2012-0285. EPA's policy is that all comments received will be included 
in the public docket without change and may be made available online at 
www.regulations.gov, including any personal information provided, 
unless the comment includes information claimed to be Confidential 
Business Information (CBI) or other information whose disclosure is 
restricted by statute. Do not submit through www.regulations.gov or 
email, information that you consider to be CBI or otherwise protected. 
The www.regulations.gov Web site is an ``anonymous access'' system, 
which means EPA will not know your identity or contact information 
unless you provide it in the body of your comment. If you send an email 
comment directly to EPA without going through www.regulations.gov, your 
email address will be automatically captured and included as part of 
the comment that is placed in the public docket and made available on 
the Internet. If you submit an electronic comment, EPA recommends that 
you include your name and other contact information in the body of your 
comment and with any disk or CD-ROM you submit. If EPA cannot read your 
comment due to technical difficulties and cannot contact you for 
clarification, EPA may not be able to consider your comment. Electronic 
files should avoid the use of special characters, any form of 
encryption, and be free of any defects or viruses. For additional 
information about EPA's public docket visit the EPA Docket Center 
homepage at http://www.epa.gov/epahome/dockets.htm.
    Docket: All documents in the electronic docket are listed in the 
www.regulations.gov index. Although listed in the index, some 
information is not publicly available, i.e., 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 in www.regulations.gov or 
in hard copy at the Regulatory Development Section, Air Planning 
Branch, Air, Pesticides and Toxics Management Division, U.S. 
Environmental Protection Agency, Region 4, 61 Forsyth Street SW., 
Atlanta, Georgia 30303-8960. EPA requests that if at all possible, you 
contact the person listed in the FOR FURTHER INFORMATION CONTACT 
section to schedule your inspection. The Regional Office's official 
hours of business are Monday through Friday, 8:30 to 4:30, excluding 
Federal holidays.

FOR FURTHER INFORMATION CONTACT: Sean Lakeman, Regulatory Development 
Section, Air Planning Branch, Air, Pesticides and Toxics Management 
Division, U.S. Environmental Protection Agency, Region 4, 61 Forsyth 
Street SW., Atlanta, Georgia 30303-8960. The telephone number is (404) 
562-9043. Mr. Lakeman can be reached via electronic mail at 
lakeman.sean@epa.gov.

SUPPLEMENTARY INFORMATION: 

Table of Contents

I. Background
II. What elements are required under sections 110(a)(1) and (2)?
III. Scope of Infrastructure SIPs
IV. What is EPA's analysis of how Tennessee addressed the elements 
of sections 110(a)(1) and (2) ``infrastructure'' provisions?
V. Proposed Action
VI. Statutory and Executive Order Reviews

I. Background

    On July 18, 1997 (62 FR 36852), EPA established an annual 
PM2.5 NAAQS at 15.0 micrograms per cubic meter ([mu]g/m\3\) 
based on a 3-year average of annual mean PM2.5 
concentrations. At that time, EPA also established a 24-hour NAAQS of 
65 [mu]g/m\3\. See 40 CFR 50.7. On October 17, 2006 (71 FR 61144), EPA 
retained the 1997 annual PM2.5 NAAQS at 15.0 [mu]g/m\3\ 
based on a 3-year average of annual mean PM2.5 
concentrations, and promulgated a new 24-hour NAAQS of 35 [mu]g/m\3\ 
based on a 3-year average of the 98th percentile of 24-hour 
concentrations. By statute, SIPs meeting the requirements of sections 
110(a)(1) and (2) are to be submitted by states within 3 years after 
promulgation of a new or revised NAAQS. Sections 110(a)(1) and (2) 
require states to address basic SIP requirements, including emissions 
inventories, monitoring, and modeling to assure attainment and 
maintenance of the NAAQS. States were required to submit such SIPs to 
EPA no later than July 2000 for the 1997 annual PM2.5 NAAQS, 
no later than October 2009 for the 2006 24-hour PM2.5 NAAQS.
    On March 4, 2004, Earthjustice submitted a notice of intent to sue 
related to EPA's failure to issue findings of failure to submit related 
to the ``infrastructure'' requirements for the 1997 annual 
PM2.5 NAAQS. On March

[[Page 34308]]

10, 2005, EPA entered into a consent decree with Earthjustice which 
required EPA, among other things, to complete a Federal Register notice 
announcing EPA's determinations pursuant to section 110(k)(1)(B) as to 
whether each state had made complete submissions to meet the 
requirements of section 110(a)(2) for the 1997 PM2.5 NAAQS 
by October 5, 2008. In accordance with the consent decree, EPA made 
completeness findings for each state based upon what the Agency 
received from each state for the 1997 PM2.5 NAAQS as of 
October 3, 2008.
    On October 22, 2008, EPA published a final rulemaking entitled, 
``Completeness Findings for Section 110(a) State Implementation Plans 
Pertaining to the Fine Particulate Matter (PM2.5) NAAQS'' 
making a finding that each state had submitted or failed to submit a 
complete SIP that provided the basic program elements of section 
110(a)(2) necessary to implement the 1997 PM2.5 NAAQS (See 
73 FR 62902). For those states that did receive findings, the findings 
of failure to submit for all or a portion of a state's implementation 
plan established a 24-month deadline for EPA to promulgate a Federal 
Implementation Plan (FIP) to address the outstanding SIP elements 
unless, prior to that time, the affected states submitted, and EPA 
approved, the required SIPs.
    The findings that all or portions of a state's submission are 
complete established a 12-month deadline for EPA to take action upon 
the complete SIP elements in accordance with section 110(k). 
Tennessee's infrastructure submissions were received by EPA on December 
14, 2007, for the 1997 annual PM2.5 NAAQS and on October 19, 
2009 for the 2006 24-hour PM2.5 NAAQS. The submissions were 
determined to be complete on June 14, 2008, and April 19, 2010, 
respectively. Tennessee was among other states that did not receive 
findings of failure to submit for the 1997 annual PM2.5 
NAAQS infrastructure requirements because it had provided a complete 
submission to EPA to address the infrastructure elements for the 1997 
PM2.5 NAAQS by October 3, 2008.
    On July 6, 2011, WildEarth Guardians and Sierra Club filed an 
amended complaint related to EPA's failure to take action on the SIP 
submittal related to the ``infrastructure'' requirements for the 2006 
24-hour PM2.5 NAAQS. On October 20, 2011, EPA entered into a 
consent decree with WildEarth Guardians and Sierra Club which required 
EPA, among other things, to complete a Federal Register notice of the 
Agency's final action either approving, disapproving, or approving in 
part and disapproving in part the Tennessee 2006 24-hour 
PM2.5 NAAQS Infrastructure SIP submittal addressing the 
applicable requirements of sections 110(a)(2)(A)-(H), (J)-(M), except 
for section 110(a)(2)(C) the nonattainment area requirements and 
section 110(a)(2)(D)(i) interstate transport requirements, by September 
30, 2012.
    Today's action is proposing to approve in part, and conditionally 
approve in part, Tennessee's infrastructure submission for the 1997 
annual and 2006 24-hour PM2.5 NAAQS for sections 
110(a)(2)(A)-(H), (J)-(M), except for section 110(a)(2)(C) 
nonattainment area requirements and section 110(a)(2)(D)(i) interstate 
transport requirements. This action is not approving any specific rule, 
but rather proposing that Tennessee's already approved SIP, with the 
exception of the portion of section 110(a)(2)(E)(ii) for which EPA is 
today proposing conditional approval, meets certain CAA requirements.

II. What elements are required under sections 110(a)(1) and (2)?

    Section 110(a) of the CAA requires states to submit SIPs to provide 
for the implementation, maintenance, and enforcement of a new or 
revised NAAQS within 3 years following the promulgation of such NAAQS, 
or within such shorter period as EPA may prescribe. Section 110(a) 
imposes the obligation upon states to make a SIP submission to EPA for 
a new or revised NAAQS, but the contents of that submission may vary 
depending upon the facts and circumstances. In particular, the data and 
analytical tools available at the time the state develops and submits 
the SIP for a new or revised NAAQS affects the content of the 
submission. The contents of such SIP submissions may also vary 
depending upon what provisions the state's existing SIP already 
contains. In the case of the 1997 annual and 2006 24-hour 
PM2.5 NAAQS, some states may need to adopt language specific 
to the PM2.5 NAAQS to ensure that they have adequate SIP 
provisions to implement the PM2.5 NAAQS.
    More specifically, section 110(a)(1) provides the procedural and 
timing requirements for SIPs. Section 110(a)(2) lists specific elements 
that states must meet for ``infrastructure'' SIP requirements related 
to a newly established or revised NAAQS. As mentioned above, these 
requirements include SIP infrastructure elements such as modeling, 
monitoring, and emissions inventories that are designed to assure 
attainment and maintenance of the NAAQS. The requirements that are the 
subject of this proposed rulemaking are listed below \1\ and in EPA's 
October 2, 2007, memorandum entitled ``Guidance on SIP Elements 
Required Under Section 110(a)(1) and (2) for the 1997 8-Hour Ozone and 
PM2.5 National Ambient Air Quality Standards'' and September 
25, 2009, memorandum entitled ``Guidance on SIP Elements Required Under 
Section 110(a)(1) and (2) for the 2006 24-Hour Fine Particle 
(PM2.5) National Ambient Air Quality Standards.''
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    \1\ Two elements identified in section 110(a)(2) are not 
governed by the three year submission deadline of section 110(a)(1) 
because SIPs incorporating necessary local nonattainment area 
controls are not due within three years after promulgation of a new 
or revised NAAQS, but rather due at the time the nonattainment area 
plan requirements are due pursuant to section 172. These 
requirements are: (1) Submissions required by section 110(a)(2)(C) 
to the extent that subsection refers to a permit program as required 
in part D Title I of the CAA, and (2) submissions required by 
section 110(a)(2)(I) which pertain to the nonattainment planning 
requirements of part D, Title I of the CAA. Today's proposed 
rulemaking does not address infrastructure elements related to 
section 110(a)(2)(I) but does provide detail on how Tennessee's SIP 
addresses 110(a)(2)(C).
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     110(a)(2)(A): Emission limits and other control measures.
     110(a)(2)(B): Ambient air quality monitoring/data system.
     110(a)(2)(C): Program for enforcement of control 
measures.\2\
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    \2\ This rulemaking only addresses requirements for this element 
as they relate to attainment areas.
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     110(a)(2)(D): Interstate transport.\3\
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    \3\ Today's proposed rule does not address element 
110(a)(2)(D)(i) (Interstate Transport) for the 1997 and 2006 
PM2.5 NAAQS. Interstate transport requirements were 
formerly addressed by Tennessee consistent with the Clean Air 
Interstate Rule (CAIR). On December 23, 2008, CAIR was remanded by 
the DC Circuit Court of Appeals, without vacatur, back to EPA. See 
North Carolina v. EPA, 531 F.3d 896 (DC Cir. 2008). Prior to this 
remand, EPA took final action to approve Tennessee SIP revision, 
which was submitted to comply with CAIR. See 72 FR 46388 (August 20, 
2007). In so doing, Tennessee CAIR SIP revision addressed the 
interstate transport provisions in section 110(a)(2)(D)(i) for the 
1997 and 2006 PM2.5 NAAQS. In response to the remand of 
CAIR, EPA has recently finalized a new rule to address the 
interstate transport of nitrogen oxides and sulfur oxides in the 
eastern United States. See 76 FR 48208 (August 8, 2011) (``the 
Transport Rule''). That rule was recently stayed by the DC Circuit 
Court of Appeals. EPA's action on element 110(a)(2)(D)(i) will be 
addressed in a separate action.
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     110(a)(2)(E): Adequate resources.
     110(a)(2)(F): Stationary source monitoring system.
     110(a)(2)(G): Emergency power.
     110(a)(2)(H): Future SIP revisions.
     110(a)(2)(I): Areas designated nonattainment and meet the 
applicable requirements of part D.\4\
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    \4\ This requirement was inadvertently omitted from EPA's 
October 2, 2007, memorandum entitled ``Guidance on SIP Elements 
Required Under Section 110(a)(1) and (2) for the 1997 8-Hour Ozone 
and PM2.5 National Ambient Air Quality Standards,'' and 
the September 25, 2009, memorandum entitled ``Guidance on SIP 
Elements Required Under Section 110(a)(1) and (2) for the 2006 Fine 
Particle (PM2.5) National Ambient Air Quality 
Standards,'' but as mentioned above is not relevant to today's 
proposed rulemaking.

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[[Page 34309]]

     110(a)(2)(J): Consultation with government officials; 
public notification; and PSD and visibility protection.
     110(a)(2)(K): Air quality modeling/data.
     110(a)(2)(L): Permitting fees.
     110(a)(2)(M): Consultation/participation by affected local 
entities.

III. Scope of Infrastructure SIPs

    EPA is currently acting upon SIPs that address the infrastructure 
requirements of CAA section 110(a)(1) and (2) for ozone and 
PM2.5 NAAQS for various states across the country. 
Commenters on EPA's recent proposals for some states raised concerns 
about EPA statements that it was not addressing certain substantive 
issues in the context of acting on those infrastructure SIP 
submissions.\5\ Those Commenters specifically raised concerns involving 
provisions in existing SIPs and with EPA's statements in other 
proposals that it would address two issues separately and not as part 
of actions on the infrastructure SIP submissions: (i) Existing 
provisions related to excess emissions during periods of start-up, 
shutdown, or malfunction at sources (SSM), that may be contrary to the 
CAA and EPA's policies addressing such excess emissions; and (ii) 
existing provisions related to ``director's variance'' or ``director's 
discretion'' that purport to permit revisions to SIP approved emissions 
limits with limited public process or without requiring further 
approval by EPA, that may be contrary to the CAA (``director's 
discretion''). EPA notes that there are two other substantive issues 
for which EPA likewise stated in other proposals that it would address 
the issues separately: (i) Existing provisions for minor source new 
source review (NSR) programs that may be inconsistent with the 
requirements of the CAA and EPA's regulations that pertain to such 
programs (``minor source NSR''); and (ii) existing provisions for 
Prevention of Significant Deterioration (PSD) programs that may be 
inconsistent with current requirements of EPA's ``Final NSR Improvement 
Rule,'' 67 FR 80186 (December 31, 2002), as amended by 72 FR 32526 
(June 13, 2007) (``NSR Reform''). In light of the comments, EPA 
believes that its statements in various proposed actions on 
infrastructure SIPs with respect to these four individual issues should 
be explained in greater depth. It is important to emphasize that EPA is 
taking the same position with respect to these four substantive issues 
in this action on the infrastructure SIPs for the 1997 and 2006 
PM2.5 NAAQS from Tennessee.
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    \5\ See Comments of Midwest Environmental Defense Center, dated 
May 31, 2011. Docket EPA-R05-OAR-2007-1179 (adverse 
comments on proposals for three states in Region 5). EPA notes that 
these public comments on another proposal are not relevant to this 
rulemaking and do not have to be directly addressed in this 
rulemaking. EPA will respond to these comments in the appropriate 
rulemaking action to which they apply.
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    EPA intended the statements in the other proposals concerning these 
four issues merely to be informational and to provide general notice of 
the potential existence of provisions within the existing SIPs of some 
states that might require future corrective action. EPA did not want 
states, regulated entities, or members of the public to be under the 
misconception that the Agency's approval of the infrastructure SIP 
submission of a given state should be interpreted as a re-approval of 
certain types of provisions that might exist buried in the larger 
existing SIP for such state. Thus, for example, EPA explicitly noted 
that the Agency believes that some states may have existing SIP 
approved SSM provisions that are contrary to the CAA and EPA policy, 
but that ``in this rulemaking, EPA is not proposing to approve or 
disapprove any existing state provisions with regard to excess 
emissions during SSM of operations at facilities.'' EPA further 
explained, for informational purposes, that ``EPA plans to address such 
State regulations in the future.'' EPA made similar statements, for 
similar reasons, with respect to the director's discretion, minor 
source NSR, and NSR Reform issues. EPA's objective was to make clear 
that approval of an infrastructure SIP for these ozone and 
PM2.5 NAAQS should not be construed as explicit or implicit 
re-approval of any existing provisions that relate to these four 
substantive issues. EPA is reiterating that position in this action on 
the infrastructure SIP for Tennessee.
    Unfortunately, the Commenters and others evidently interpreted 
these statements to mean that EPA considered action upon the SSM 
provisions and the other three substantive issues to be integral parts 
of acting on an infrastructure SIP submission, and therefore that EPA 
was merely postponing taking final action on the issues in the context 
of the infrastructure SIPs. This was not EPA's intention. To the 
contrary, EPA only meant to convey its awareness of the potential for 
certain types of deficiencies in existing SIPs and to prevent any 
misunderstanding that it was reapproving any such existing provisions. 
EPA's intention was to convey its position that the statute does not 
require that infrastructure SIPs address these specific substantive 
issues in existing SIPs and that these issues may be dealt with 
separately, outside the context of acting on the infrastructure SIP 
submission of a state. To be clear, EPA did not mean to imply that it 
was not taking a full final agency action on the infrastructure SIP 
submission with respect to any substantive issue that EPA considers to 
be a required part of acting on such submissions under section 110(k) 
or under section 110(c). Given the confusion evidently resulting from 
EPA's statements in those other proposals, however, we want to explain 
more fully the Agency's reasons for concluding that these four 
potential substantive issues in existing SIPs may be addressed 
separately from actions on infrastructure SIP submissions.
    The requirement for the SIP submissions at issue arises out of CAA 
section 110(a)(1). That provision requires that states must make a SIP 
submission ``within 3 years (or such shorter period as the 
Administrator may prescribe) after the promulgation of a national 
primary ambient air quality standard (or any revision thereof)'' and 
that these SIPs are to provide for the ``implementation, maintenance, 
and enforcement'' of such NAAQS. Section 110(a)(2) includes a list of 
specific elements that ``[e]ach such plan'' submission must meet. EPA 
has historically referred to these particular submissions that states 
must make after the promulgation of a new or revised NAAQS as 
``infrastructure SIPs.'' This specific term does not appear in the 
statute, but EPA uses the term to distinguish this particular type of 
SIP submission designed to address basic structural requirements of a 
SIP from other types of SIP submissions designed to address other 
different requirements, such as ``nonattainment SIP'' submissions 
required to address the nonattainment planning requirements of part D, 
``regional haze SIP'' submissions required to address the visibility 
protection requirements of CAA section 169A, NSR permitting program 
submissions required to address the requirements of part D, and a host 
of other specific types of SIP submissions that address other specific 
matters.
    Although section 110(a)(1) addresses the timing and general 
requirements for these infrastructure SIPs, and section 110(a)(2) 
provides more details concerning the required contents of these 
infrastructure SIPs, EPA believes that many of the specific statutory

[[Page 34310]]

provisions are facially ambiguous. In particular, the list of required 
elements provided in section 110(a)(2) contains a wide variety of 
disparate provisions, some of which pertain to required legal 
authority, some of which pertain to required substantive provisions, 
and some of which pertain to requirements for both authority and 
substantive provisions.\6\ Some of the elements of section 110(a)(2) 
are relatively straightforward, but others clearly require 
interpretation by EPA through rulemaking, or recommendations through 
guidance, in order to give specific meaning for a particular NAAQS.\7\
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    \6\ For example, section 110(a)(2)(E) provides that states must 
provide assurances that they have adequate legal authority under 
state and local law to carry out the SIP; section 110(a)(2)(C) 
provides that states must have a substantive program to address 
certain sources as required by part C of the CAA; section 
110(a)(2)(G) provides that states must have both legal authority to 
address emergencies and substantive contingency plans in the event 
of such an emergency.
    \7\ For example, section 110(a)(2)(D)(i) requires EPA to be sure 
that each state's SIP contains adequate provisions to prevent 
significant contribution to nonattainment of the NAAQS in other 
states. This provision contains numerous terms that require 
substantial rulemaking by EPA in order to determine such basic 
points as what constitutes significant contribution. See ``Rule To 
Reduce Interstate Transport of Fine Particulate Matter and Ozone 
(Clean Air Interstate Rule); Revisions to Acid Rain Program; 
Revisions to the NOX SIP Call; Final Rule,'' 70 FR 25162 
(May 12, 2005) (defining, among other things, the phrase 
``contribute significantly to nonattainment'').
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    Notwithstanding that section 110(a)(2) provides that ``each'' SIP 
submission must meet the list of requirements therein, EPA has long 
noted that this literal reading of the statute is internally 
inconsistent, insofar as section 110(a)(2)(I) pertains to nonattainment 
SIP requirements that could not be met on the schedule provided for 
these SIP submissions in section 110(a)(1).\8\ This illustrates that 
EPA must determine which provisions of section 110(a)(2) may be 
applicable for a given infrastructure SIP submission. Similarly, EPA 
has previously decided that it could take action on different parts of 
the larger, general ``infrastructure SIP'' for a given NAAQS without 
concurrent action on all subsections, such as section 110(a)(2)(D)(i), 
because the Agency bifurcated the action on these latter ``interstate 
transport'' provisions within section 110(a)(2) and worked with states 
to address each of the four prongs of section 110(a)(2)(D)(i) with 
substantive administrative actions proceeding on different tracks with 
different schedules.\9\ This illustrates that EPA may conclude that 
subdividing the applicable requirements of section 110(a)(2) into 
separate SIP actions may sometimes be appropriate for a given NAAQS 
where a specific substantive action is necessitated, beyond a mere 
submission addressing basic structural aspects of the state's 
implementation plans. Finally, EPA notes that not every element of 
section 110(a)(2) would be relevant, or as relevant, or relevant in the 
same way, for each new or revised NAAQS and the attendant 
infrastructure SIP submission for that NAAQS. For example, the 
monitoring requirements that might be necessary for purposes of section 
110(a)(2)(B) for one NAAQS could be very different than what might be 
necessary for a different pollutant. Thus, the content of an 
infrastructure SIP submission to meet this element from a state might 
be very different for an entirely new NAAQS, versus a minor revision to 
an existing NAAQS.\10\
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    \8\ See Id., 70 FR 25162, at 63-65 (May 12, 2005) (explaining 
relationship between timing requirement of section 110(a)(2)(D) 
versus section 110(a)(2)(I)).
    \9\ EPA issued separate guidance to states with respect to SIP 
submissions to meet section 110(a)(2)(D)(i) for the 1997 ozone and 
1997 PM2.5 NAAQS. See ``Guidance for State Implementation 
Plan (SIP) Submissions to Meet Current Outstanding Obligations Under 
Section 110(a)(2)(D)(i) for the 8-Hour Ozone and PM2.5 
National Ambient Air Quality Standards,'' from William T. Harnett, 
Director Air Quality Policy Division OAQPS, to Regional Air Division 
Director, Regions I-X, dated August 15, 2006.
    \10\ For example, implementation of the 1997 PM2.5 
NAAQS required the deployment of a system of new monitors to measure 
ambient levels of that new indicator species for the new NAAQS.
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    Similarly, EPA notes that other types of SIP submissions required 
under the statute also must meet the requirements of section 110(a)(2), 
and this also demonstrates the need to identify the applicable elements 
for other SIP submissions. For example, nonattainment SIPs required by 
part D likewise have to meet the relevant subsections of section 
110(a)(2) such as section 110(a)(2)(A) or (E). By contrast, it is clear 
that nonattainment SIPs would not need to meet the portion of section 
110(a)(2)(C) that pertains to part C, i.e., the PSD requirements 
applicable in attainment areas. Nonattainment SIPs required by part D 
also would not need to address the requirements of section 110(a)(2)(G) 
with respect to emergency episodes, as such requirements would not be 
limited to nonattainment areas. As this example illustrates, each type 
of SIP submission may implicate some subsections of section 110(a)(2) 
and not others.
    Given the potential for ambiguity of the statutory language of 
section 110(a)(1) and (2), EPA believes that it is appropriate for EPA 
to interpret that language in the context of acting on the 
infrastructure SIPs for a given NAAQS. Because of the inherent 
ambiguity of the list of requirements in section 110(a)(2), EPA has 
adopted an approach in which it reviews infrastructure SIPs against 
this list of elements ``as applicable.'' In other words, EPA assumes 
that Congress could not have intended that each and every SIP 
submission, regardless of the purpose of the submission or the NAAQS in 
question, would meet each of the requirements, or meet each of them in 
the same way. EPA elected to use guidance to make recommendations for 
infrastructure SIPs for these ozone and PM2.5 NAAQS.
    On October 2, 2007, EPA issued guidance making recommendations for 
the infrastructure SIP submissions for both the 1997 8-hour ozone NAAQS 
and the 1997 PM2.5 NAAQS.\11\ Within this guidance document, 
EPA described the duty of states to make these submissions to meet what 
the Agency characterized as the ``infrastructure'' elements for SIPs, 
which it further described as the ``basic SIP requirements, including 
emissions inventories, monitoring, and modeling to assure attainment 
and maintenance of the standards.'' \12\ As further identification of 
these basic structural SIP requirements, ``attachment A'' to the 
guidance document included a short description of the various elements 
of section 110(a)(2) and additional information about the types of 
issues that EPA considered germane in the context of such 
infrastructure SIPs. EPA emphasized that the description of the basic 
requirements listed on attachment A was not intended ``to constitute an 
interpretation of'' the requirements, and was merely a ``brief 
description of the required elements.'' \13\ EPA also stated its belief 
that with one exception, these requirements were ``relatively self 
explanatory, and past experience with SIPs for other NAAQS should 
enable States to meet these requirements with assistance from EPA 
Regions.'' \14\ However, for the one exception to that general 
assumption (i.e., how states

[[Page 34311]]

should proceed with respect to the requirements of section 110(a)(2)(G) 
for the 1997 PM2.5 NAAQS), EPA gave much more specific 
recommendations. But for other infrastructure SIP submittals, and for 
certain elements of the submittals for the 1997 PM2.5 NAAQS, 
EPA assumed that each state would work with its corresponding EPA 
regional office to refine the scope of a state's submittal based on an 
assessment of how the requirements of section 110(a)(2) should 
reasonably apply to the basic structure of the state's implementation 
plans for the NAAQS in question.
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    \11\ See ``Guidance on SIP Elements Required Under Section 
110(a)(1) and (2) for the 1997 8-hour Ozone and PM2.5 
National Ambient Air Quality Standards,'' from William T. Harnett, 
Director Air Quality Policy Division, to Air Division Directors, 
Regions I-X, dated October 2, 2007 (the ``2007 Guidance'').
    \12\ Id., at page 2.
    \13\ Id., at attachment A, page 1.
    \14\ Id., at page 4. In retrospect, the concerns raised by 
commenters with respect to EPA's approach to some substantive issues 
indicates that the statute is not so ``self explanatory,'' and 
indeed is sufficiently ambiguous that EPA needs to interpret it in 
order to explain why these substantive issues do not need to be 
addressed in the context of infrastructure SIPs and may be addressed 
at other times and by other means.
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    On September 25, 2009, EPA issued guidance to make recommendations 
to states with respect to the infrastructure SIPs for the 2006 
PM2.5 NAAQS.\15\ In the 2009 Guidance, EPA addressed a 
number of additional issues that were not germane to the infrastructure 
SIPs for the 1997 8-hour ozone and 1997 PM2.5 NAAQS, but 
were germane to these SIP submissions for the 2006 PM2.5 
NAAQS (e.g., the requirements of section 110(a)(2)(D)(i) that EPA had 
bifurcated from the other infrastructure elements for those specific 
1997 ozone and PM2.5 NAAQS). Significantly, neither the 2007 
Guidance nor the 2009 Guidance explicitly referred to the SSM, 
director's discretion, minor source NSR, or NSR Reform issues as among 
specific substantive issues EPA expected states to address in the 
context of the infrastructure SIPs, nor did EPA give any more specific 
recommendations with respect to how states might address such issues 
even if they elected to do so. The SSM and director's discretion issues 
implicate section 110(a)(2)(A), and the minor source NSR and NSR Reform 
issues implicate section 110(a)(2)(C). In the 2007 Guidance and the 
2009 Guidance, however, EPA did not indicate to states that it intended 
to interpret these provisions as requiring a substantive submission to 
address these specific issues in existing SIP provisions in the context 
of the infrastructure SIPs for these NAAQS. Instead, EPA's 2007 
Guidance merely indicated its belief that the states should make 
submissions in which they established that they have the basic SIP 
structure necessary to implement, maintain, and enforce the NAAQS. EPA 
believes that states can establish that they have the basic SIP 
structure, notwithstanding that there may be potential deficiencies 
within the existing SIP. Thus, EPA's proposals for other states 
mentioned these issues not because the Agency considers them issues 
that must be addressed in the context of an infrastructure SIP as 
required by section 110(a)(1) and (2), but rather because EPA wanted to 
be clear that it considers these potential existing SIP problems as 
separate from the pending infrastructure SIP actions. The same holds 
true for this action on the infrastructure SIPs for Tennessee.
---------------------------------------------------------------------------

    \15\ See ``Guidance on SIP Elements Required Under Sections 
110(a)(1) and (2) for the 2006 24-Hour Fine Particle 
(PM2.5) National Ambient Air Quality Standards (NAAQS),'' 
from William T, Harnett, Director Air Quality Policy Division, to 
Regional Air Division Directors, Regions I-X, dated September 25, 
2009 (the ``2009 Guidance'').
---------------------------------------------------------------------------

    EPA believes that this approach to the infrastructure SIP 
requirement is reasonable because it would not be feasible to read 
section 110(a)(1) and (2) to require a top to bottom, stem to stern, 
review of each and every provision of an existing SIP merely for 
purposes of assuring that the state in question has the basic 
structural elements for a functioning SIP for a new or revised NAAQS. 
Because SIPs have grown by accretion over the decades as statutory and 
regulatory requirements under the CAA have evolved, they may include 
some outmoded provisions and historical artifacts that, while not fully 
up to date, nevertheless may not pose a significant problem for the 
purposes of ``implementation, maintenance, and enforcement'' of a new 
or revised NAAQS when EPA considers the overall effectiveness of the 
SIP. To the contrary, EPA believes that a better approach is for EPA to 
determine which specific SIP elements from section 110(a)(2) are 
applicable to an infrastructure SIP for a given NAAQS, and to focus 
attention on those elements that are most likely to need a specific SIP 
revision in light of the new or revised NAAQS. Thus, for example, EPA's 
2007 Guidance specifically directed states to focus on the requirements 
of section 110(a)(2)(G) for the 1997 PM2.5 NAAQS because of 
the absence of underlying EPA regulations for emergency episodes for 
this NAAQS and an anticipated absence of relevant provisions in 
existing SIPs.
    Finally, EPA believes that its approach is a reasonable reading of 
section 110(a)(1) and (2) because the statute provides other avenues 
and mechanisms to address specific substantive deficiencies in existing 
SIPs. These other statutory tools allow the Agency to take appropriate 
tailored action, depending upon the nature and severity of the alleged 
SIP deficiency. Section 110(k)(5) authorizes EPA to issue a ``SIP 
call'' whenever the Agency determines that a state's SIP is 
substantially inadequate to attain or maintain the NAAQS, to mitigate 
interstate transport, or otherwise to comply with the CAA.\16\ Section 
110(k)(6) authorizes EPA to correct errors in past actions, such as 
past approvals of SIP submissions.\17\ Significantly, EPA's 
determination that an action on the infrastructure SIP is not the 
appropriate time and place to address all potential existing SIP 
problems does not preclude the Agency's subsequent reliance on 
provisions in section 110(a)(2) as part of the basis for action at a 
later time. For example, although it may not be appropriate to require 
a state to eliminate all existing inappropriate director's discretion 
provisions in the course of acting on the infrastructure SIP, EPA 
believes that section 110(a)(2)(A) may be among the statutory bases 
that the Agency cites in the course of addressing the issue in a 
subsequent action.\18\
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    \16\ EPA has recently issued a SIP call to rectify a specific 
SIP deficiency related to the SSM issue. See, ``Finding of 
Substantial Inadequacy of Implementation Plan; Call for Utah State 
Implementation Plan Revision,'' 74 FR 21639 (April 18, 2011).
    \17\ EPA has recently utilized this authority to correct errors 
in past actions on SIP submissions related to PSD programs. See 
``Limitation of Approval of Prevention of Significant Deterioration 
Provisions Concerning Greenhouse Gas Emitting-Sources in State 
Implementation Plans; Final Rule,'' 75 FR 82536 (December 30, 2010). 
EPA has previously used its authority under CAA 110(k)(6) to remove 
numerous other SIP provisions that the Agency determined it had 
approved in error. See 61 FR 38664 (July 25, 1996) and 62 FR 34641 
(June 27, 1997) (corrections to American Samoa, Arizona, California, 
Hawaii, and Nevada SIPs); 69 FR 67062 (November 16, 2004) 
(corrections to California SIP); and 74 FR 57051 (November 3, 2009) 
(corrections to Arizona and Nevada SIPs).
    \18\ EPA has recently disapproved a SIP submission from Colorado 
on the grounds that it would have included a director's discretion 
provision inconsistent with CAA requirements, including section 
110(a)(2)(A). See 75 FR 42342, 42344 (July 21, 2010) (proposed 
disapproval of director's discretion provisions); 76 FR 4540 
(January 26, 2011) (final disapproval of such provisions).
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IV. What is EPA's analysis of how Tennessee addressed the elements of 
sections 110(a)(1) and (2) ``infrastructure'' provisions?

    Tennessee's infrastructure submission addresses the provisions of 
sections 110(a)(1) and (2) as described below.
    1. 110(a)(2)(A): Emission limits and other control measures: 
Tennessee's infrastructure submissions provide an overview of the 
provisions of the Tennessee's Air Pollution Control Requirements 
relevant to air quality control regulations. The regulations described 
below have been federally approved in the Tennessee SIP and include 
enforceable emission limitations and other control measures:
    Chapter 1200-3-4, Open Burning.
    Chapter 1200-3-5, Visible Emission Regulations.

[[Page 34312]]

    Chapter 1200-3-6, Non-process Emission Standards.
    Chapter 1200-3-7, Process Emissions Standards.
    Chapter 1200-3-9, Construction and Operating Permits.
    Chapter 1200-3-21, General Alternate Emission Standard.
    EPA has made the preliminary determination that the provisions 
contained in these chapters and Tennessee's practices are adequate to 
protect the PM2.5 annual and 24-hour NAAQS in the State.
    In this action, EPA is not proposing to approve or disapprove any 
existing state provisions with regard to excess emissions during SSM of 
operations at a facility. EPA believes that a number of states have SSM 
provisions which are contrary to the CAA and existing EPA guidance, 
``State Implementation Plans: Policy Regarding Excess Emissions During 
Malfunctions, Startup, and Shutdown'' (September 20, 1999), and the 
Agency plans to address such state regulations in the future. In the 
meantime, EPA encourages any state having deficient SSM provisions to 
take steps to correct it as soon as possible.
    Additionally, in this action, EPA is not proposing to approve or 
disapprove any existing state rules with regard to director's 
discretion or variance provisions. EPA believes that a number of states 
have such provisions which are contrary to the CAA and existing EPA 
guidance (52 FR 45109 (November 24, 1987)), and the Agency plans to 
take action in the future to address such state regulations. In the 
meantime, EPA encourages any state having a director's discretion or 
variance provision which is contrary to the CAA and EPA guidance to 
take steps to correct the deficiency as soon as possible.
    2. 110(a)(2)(B) Ambient air quality monitoring/data system: 
Tennessee's Air Pollution Control Requirements, Chapter 1200-3-12-.02, 
Procedures for Ambient Sampling and Analysis, along with the Tennessee 
Network Description and Ambient Air Monitoring Network Plan provides 
for an ambient air quality monitoring system in the State. Annually, 
EPA approves the ambient air monitoring network plan for the state 
agencies. On July 1, 2011, Tennessee submitted its plan to EPA. On 
October 24, 2011, EPA approved Tennessee's monitoring network plan. 
Tennessee's approved monitoring network plan can be accessed at 
www.regulations.gov using Docket ID No. EPA-R04-OAR-2012-0285. EPA has 
made the preliminary determination that Tennessee's SIP and practices 
are adequate for the ambient air quality monitoring and data systems 
related to the 1997 annual and 2006 24-hour PM2.5 NAAQS.
    3. 110(a)(2)(C) Program for enforcement of control measures 
including review of proposed new sources: Chapter 1200-3-9, 
Construction and Operating Permits, of Tennessee's SIP pertain to the 
construction or modification of any major stationary source in areas 
designated as attainment, nonattainment or unclassifiable. On July 29, 
2011, TDEC submitted revisions to its PSD/NSR regulations for EPA 
approval. Tennessee's SIP revision makes changes to Chapter 1200-03-
09-.01, Construction Permits, to adopt PSD and Nonattainment New Source 
Review requirements related to the implementation of the NSR 
PM2.5 Rule. The rule amendment adopts required Federal PSD 
and NNSR permitting provisions governing the implementation of the NSR 
program for PM2.5 as promulgated in the NSR PM2.5 
Rule that address the infrastructure requirements (C) and (J). See 73 
FR 28321 (May 16, 2008). EPA will propose approval of Tennessee's July 
29, 2011, submission in a rulemaking separate from today's action. 
However, the July 29, 2011, proposed SIP revision addresses requisite 
requirements of infrastructure element 110(a)(2)(C), therefore, today's 
action to propose approval of infrastructure SIP element 110(a)(2)(C) 
is contingent upon EPA taking final action to approve the July 29, 
2011, revision into the Tennessee SIP. Final action regarding today's 
proposed approval of infrastructure SIP element 110(a)(2)(C) will not 
occur prior to final approval of the July 29, 2011, SIP revision.
    In this action, EPA is proposing to approve Tennessee's 
infrastructure SIP for the 1997 annual and 2006 24-hour 
PM2.5 NAAQS with respect to the general requirement in 
section 110(a)(2)(C) to include a program in the SIP that regulates the 
modification and construction of any stationary source as necessary to 
assure that the NAAQS are achieved. EPA is not proposing to approve or 
disapprove the State's existing minor NSR program itself to the extent 
that it is inconsistent with EPA's regulations governing this program. 
EPA believes that a number of states may have minor NSR provisions that 
are contrary to the existing EPA regulations for this program. EPA 
intends to work with states to reconcile state minor NSR programs with 
EPA's regulatory provisions for the program. The statutory requirements 
of section 110(a)(2)(C) provide for considerable flexibility in 
designing minor NSR programs, and EPA believes it may be time to 
revisit the regulatory requirements for this program to give the states 
an appropriate level of flexibility to design a program that meets 
their particular air quality concerns, while assuring reasonable 
consistency across the country in protecting the NAAQS with respect to 
new and modified minor sources.
    EPA has made the preliminary determination that, following final 
approval of the Tennessee July 29, 2011, submitted revision discussed 
above, Tennessee's SIP and the State's practices are adequate for 
program enforcement of control measures including review of proposed 
new sources related to the 1997 annual and 2006 24-hour 
PM2.5 NAAQS.
    4. 110(a)(2)(D)(ii) Interstate and International transport 
provisions: Chapter 1200-9-.01(5), Growth Policy, outlines how the 
State will notify neighboring states of potential impacts from new or 
modified sources. Tennessee does not have any pending obligation under 
sections 115 and 126 of the CAA. EPA has made the preliminary 
determination that Tennessee's SIP and practices are adequate for 
insuring compliance with the applicable requirements relating to 
interstate and international pollution abatement for the 1997 annual 
and 2006 24-hour PM2.5 NAAQS.
    5. 110(a)(2)(E) Adequate resources: Section 110(a)(2)(E) requires 
that each implementation plan provide (i) necessary assurances that the 
State will have adequate personnel, funding, and authority under state 
law to carry out its implementation plan, (ii) that the State comply 
with the requirements respecting State Boards pursuant to section 128 
of the Act, and (iii) necessary assurances that, where the State has 
relied on a local or regional government, agency, or instrumentality 
for the implementation of any plan provision, the State has 
responsibility for ensuring adequate implementation of such plan 
provisions. As with the remainder of the infrastructure elements 
addressed by this notice, EPA is proposing to approve Tennessee's SIP 
as meeting the requirements of sub-elements 110(a)(2)(E)(i) and (iii). 
With respect to sub-element 110(a)(2)(E)(ii) (regarding state boards), 
EPA is proposing to approve in part, and conditionally approve in part, 
this sub-element. EPA's rationale for today's proposals respecting each 
sub-element is described in turn below.
    In support of EPA's proposal to approve sub-elements 
110(a)(2)(E)(i) and (iii), TDEC, through the Tennessee Air Pollution 
Control Board, is responsible for promulgating rules and regulations

[[Page 34313]]

for the NAAQS, emissions standards general policies, a system of 
permits, fee schedules for the review of plans, and other planning 
needs. As evidence of the adequacy of TDEC's resources with respect to 
sub-elements (i) and (iii), EPA submitted a letter to Tennessee on 
March 11, 2011, outlining 105 grant commitments and current status of 
these commitments for fiscal year 2010. The letter EPA submitted to 
Tennessee can be accessed at www.regulations.gov using Docket ID No. 
EPA-R04-OAR-2012-0285. Annually, states update these grant commitments 
based on current SIP requirements, air quality planning, and applicable 
requirements related to the NAAQS. There were no outstanding issues in 
relation to the SIP for fiscal year 2010, therefore, Tennessee's grants 
were finalized and closed out. EPA has made the preliminary 
determination that Tennessee has adequate resources for implementation 
of the 1997 annual and 2006 24-hour PM2.5 NAAQS.
    With respect to sub-element 110(a)(2)(E)(ii), EPA is proposing to 
approve in part, and to conditionally approve in part, Tennessee's 
infrastructure SIP as to this requirement. Section 110(a)(2)(E)(ii) 
provides that infrastructure SIPs must require compliance with section 
128 of CAA requirements respecting State boards. Section 128, in turn, 
provides at subsection (a)(1) that each SIP shall require that any 
board or body which approves permits or enforcement orders shall be 
subject to the described public interest and income restrictions 
therein. Subsection 128(a)(2) requires that any board or body, or the 
head of an executive agency with similar power to approve permits or 
enforcement orders under the CAA, shall also be subject to conflict of 
interest disclosure requirements. In this action, EPA is proposing to 
conditionally approve Tennessee's infrastructure SIP for element 
110(a)(2)(E)(ii) with respect to the applicable section 128(a)(1) 
requirements, and to approve Tennessee's infrastructure SIP for element 
110(a)(2)(E)(ii) with respect the applicable section 128(a)(2) 
requirements.
    EPA's proposed conditional approval of sub-element 110(a)(2)(E)(ii) 
respecting the 128(a)(1) requirements is based upon a TDEC letter to 
EPA, dated March 28, 2012, which outlined TDEC's commitment to adopt 
specific enforceable measures into its SIP within one year to address 
the applicable portions of section 128(a)(1). The March 28, 2012, 
letter from TDEC to EPA can be accessed at www.regulations.gov using 
docket ID No. EPA-R04-OAR-2012-0285.
    In Tennessee's March 28, 2012, commitment letter, TDEC committed to 
bring its SIP into conformity with section 128(a)(1) of the CAA by 
submitting SIP revisions that designate at least a majority of the 
positions on the State's Air Pollution Control Board \19\ as being 
subject to the ``public interest'' requirement. In addition, TDEC has 
committed to submitting SIP revisions establishing requirements to 
ensure that at least a majority of the members on the State's Air 
Pollution Control Board do not derive any significant portion of their 
income from persons subject to permits or enforcement orders. In the 
March 28, 2012, commitment letter, TDEC describes that its planned 
restrictions related to the ``significant portion of income'' 
requirements of section 128 will include an exclusion for the official 
salaries of mayors of counties and municipalities, and for faculty 
members at institutions of higher learning.
---------------------------------------------------------------------------

    \19\ The composition of Tennessee's Air Pollution Control Board 
is statutorily prescribed at Tennessee Code Annotated 68-201-104.
---------------------------------------------------------------------------

    In accordance with section 110(k)(4) of the CAA, the commitment 
from Tennessee must provide that the State will adopt the specified 
enforceable provisions and submit a revision to EPA for approval within 
one year from EPA's final conditional approval action. In its March 28, 
2012, letter, TDEC committed to adopt the above-specified enforceable 
provisions and submit them to EPA for incorporation into the SIP by no 
later than one year from the effective date of EPA's final conditional 
approval action for that requirement. Failure by the State to adopt 
these provisions and submit them to EPA for incorporation into the SIP 
within one year from the effective date of EPA's final conditional 
approval action would result in this proposed conditional approval 
being treated as a disapproval. Should that occur, EPA would provide 
the public with notice of such a disapproval in the Federal 
Register.\20\
---------------------------------------------------------------------------

    \20\ EPA notes that pursuant to section 110(k)(4), a conditional 
approval is treated as a disapproval in the event that a State fails 
to comply with its commitment. Notification of this disapproval 
action in the Federal Register is not subject to public notice and 
comment.
---------------------------------------------------------------------------

    As a result of Tennessee's formal commitment to correct 
deficiencies contained in the Tennessee SIP pertaining to section 128, 
EPA intends to move forward with finalizing the conditional approval of 
110(a)(2)(E)(ii) with respect to the section 128(a)(1) requirements 
consistent with section 110(k)(4) of the Act. With respect to the 
remaining sub-elements of 110(a)(2)(E), EPA is proposing to approve 
these portions of Tennessee's infrastructure SIP. As such, EPA has made 
the preliminary determination that Tennessee has adequate resources for 
implementation of the 1997 annual and 2006 24-hour PM2.5 
NAAQS.
    6. 110(a)(2)(F) Stationary source monitoring system: Tennessee's 
infrastructure submission describes how to establish requirements for 
compliance testing by emissions sampling and analysis, and for 
emissions and operation monitoring to ensure the quality of data in the 
State. TDEC uses these data to track progress towards maintaining the 
NAAQS, develop control and maintenance strategies, identify sources and 
general emission levels, and determine compliance with emission 
regulations and additional EPA requirements. These requirements are 
provided in Chapter 1200-3-10, Required Sampling, Recording and 
Reporting, of the Tennessee Air Pollution Control Requirements.
    Additionally, Tennessee is required to submit emissions data to EPA 
for purposes of the National Emissions Inventory (NEI). The NEI is 
EPA's central repository for air emissions data. EPA published the Air 
Emissions Reporting Rule (AERR) on December 5, 2008, which modified the 
requirements for collecting and reporting air emissions data (73 FR 
76539). The AERR shortened the time states had to report emissions data 
from 17 to 12 months, giving states one calendar year to submit 
emissions data. All states are required to submit a comprehensive 
emissions inventory every 3 years and report emissions for certain 
larger sources annually through EPA's online Emissions Inventory System 
(EIS). States report emissions data for the six criteria pollutants and 
the precursors that form them--nitrogen oxides, sulfur dioxide, 
ammonia, lead, carbon monoxide, particulate matter, and volatile 
organic compounds. Many states also voluntarily report emissions of 
hazardous air pollutants. Tennessee made its latest update to the NEI 
on December 31, 2011. EPA compiles the emissions data, supplementing it 
where necessary, and releases it to the general public through the Web 
site http://www.epa.gov/ttn/chief/eiinformation.html. EPA has made the 
preliminary determination that Tennessee's SIP and practices are 
adequate for the stationary source monitoring systems related to the 
1997 annual and 2006 24-hour PM2.5 NAAQS.
    7. 110(a)(2)(G) Emergency power: Chapter 1200-3-15, Emergency 
Episode

[[Page 34314]]

Requirements, of the Tennessee SIP identifies air pollution emergency 
episodes and preplanned abatement strategies. These criteria have 
previously been approved by EPA. EPA has made the preliminary 
determination that Tennessee's SIP and practices are adequate for 
emergency powers related to the 1997 annual and 2006 24-hour 
PM2.5 NAAQS.
    8. 110(a)(2)(H) Future SIP revisions: As previously discussed, TDEC 
is responsible for adopting air quality rules and revising SIPs as 
needed to attain or maintain the NAAQS. Tennessee has the ability and 
authority to respond to calls for SIP revisions, and has provided a 
number of SIP revisions during the course of its NAAQS implementation. 
Specific to the 1997 annual and 2006 24-hour PM2.5 NAAQS, 
Tennessee has provided the following submissions, including:
     April 4, 2008, Knoxville PM2.5 Attainment 
Demonstration;
     October 15, 2009, TN Portion of Chattanooga 1997 
PM2.5 Attainment Demonstration; and,
     July 29, 2011, PM2.5 NSR/PSD.
    EPA has made the preliminary determination that Tennessee's SIP and 
practices adequately demonstrate a commitment to provide future SIP 
revisions related to the 1997 annual and 2006 24-hour PM2.5 
NAAQS when necessary.
    9. 110(a)(2)(J) (121 consultation) Consultation with government 
officials: Chapter 1200-3-9 Construction and Operating Permits, as well 
as the Regional Haze Implementation Plan (which allows for consultation 
between appropriate state, local, and tribal air pollution control 
agencies as well as the corresponding Federal Land Managers), provide 
for consultation with government officials whose jurisdictions might be 
affected by SIP development activities. More specifically, Tennessee 
adopted state-wide consultation procedures for the implementation of 
transportation conformity, which includes the consideration of the 
development of mobile inventories for SIP development. Required 
partners covered by Tennessee's consultation procedures include 
Federal, state, and local transportation and air quality agency 
officials. EPA approved Tennessee's consultation procedures on May 16, 
2003 (68 FR 26492). EPA has made the preliminary determination that 
Tennessee's SIP and practices adequately demonstrate consultation with 
government officials related to the 1997 annual and 2006 24-hour 
PM2.5 NAAQS when necessary.
    10. 110(a)(2)(J) (127 public notification) Public notification: 
TDEC has public notice mechanisms in place to notify the public of PM 
and other pollutant forecasting, including an air quality monitoring 
Web site with detailed maps of the PM forecast areas and specific 
information about each monitor, http://tn.gov/environment/apc/ As 
discussed above, Chapter 1200-3-15, Emergency Episode Requirements, 
requires that TDEC notify the public of any air pollution episode or 
NAAQS violation. EPA has made the preliminary determination that 
Tennessee's SIP and practices adequately demonstrate the State's 
ability to provide public notification related to the 1997 annual and 
2006 24-hour PM2.5 NAAQS when necessary.
    11. 110(a)(2)(J) (PSD) PSD and visibility protection: Tennessee 
demonstrates its authority to regulate new and modified sources of PM 
to assist in the protection of air quality in Chapter 1200-3-9, 
Construction and Operating Permits. As with infrastructure element 
110(a)(2)(C), infrastructure element 110(a)(2)(J) also requires 
compliance with applicable provisions of the PSD program described in 
part C of the Act. Accordingly, the pending EPA action on the July 29, 
2011, SIP revision, is a prerequisite to today's proposed action to 
approve the State's infrastructure element 110(a)(2)(J). See the 
discussion for element 110(a)(2)(C) above for a description of the 
pending revision to the Tennessee SIP. The July 29, 2011, SIP revision, 
addresses requisite requirements of infrastructure element 110(a)(2)(J) 
(PSD and visibility protection), therefore, today's action to propose 
approval of infrastructure SIP element 110(a)(2)(J) (PSD and visibility 
protection) is contingent upon EPA first taking final action to approve 
the July 29, 2011, SIP revision, into the Tennessee SIP. Final action 
regarding today's proposed approval of infrastructure SIP element 
110(a)(2)(J) (PSD and visibility protection) will not occur prior to 
final approval of the July 29, 2011, SIP revision.
    With regard to the applicable requirements for visibility 
protection, EPA recognizes that states are subject to visibility and 
regional haze program requirements under part C of the Act (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. This would be the case even in the 
event a secondary PM2.5 NAAQS for visibility is established, 
because this NAAQS would not affect visibility requirements under part 
C. Tennessee has submitted SIP revisions for approval to satisfy the 
requirements of the CAA Section 169A and the regional haze and best 
available retrofit technology rules contained in 40 CFR 51.308. The 
majority of Tennessee's regional haze program was approved on April 24, 
2012 (77 FR 24392); the remaining portions are currently undergoing 
review. EPA has made the preliminary determination that Tennessee's SIP 
and practices adequately demonstrate the State's ability to implement 
PSD programs and to provide for visibility protection related to the 
1997 annual and 2006 24-hour PM2.5 NAAQS when necessary.
    12. 110(a)(2)(K) Air quality and modeling/data: Chapter 1200-3-
9-.01(4)(k), Air Quality Models, specify that required air modeling be 
conducted in accordance with 40 CFR part 51 Appendix W ``Guideline on 
Air Quality Models,'' as incorporated into the Tennessee SIP. 
Tennessee's air quality regulations demonstrate that TDEC has the 
authority to provide relevant data for the purpose of predicting the 
effect on ambient air quality of the 1997 annual and 2006 24-hour 
PM2.5 NAAQS. EPA has made the preliminary determination that 
Tennessee's SIP and practices adequately demonstrate the State's 
ability to provide for air quality and modeling, along with analysis of 
the associated data, related to the 1997 annual and 2006 24-hour 
PM2.5 NAAQS when necessary.
    13. 110(a)(2)(L) Permitting fees: As discussed above, Tennessee's 
SIP provides for the review of construction permits. Permitting fees in 
Tennessee are collected through the State's federally-approved title V 
fees program, which has been federally approved and according to State 
regulation Chapter 1200-03-26-.02, Permit-Related Fees. EPA has made 
the preliminary determination that Tennessee's SIP and practices 
adequately provide for permitting fees related to the 1997 annual and 
2006 24-hour PM2.5 NAAQS when necessary.
    14. 110(a)(2)(M) Consultation/participation by affected local 
entities: Chapter 1200-3-9-.01(4)(k), Public Participation, of the 
Tennessee SIP requires that TDEC notify the public of an application, 
preliminary determination, the activity or activities involved in the 
permit action, any emissions change associated with any permit 
modification, and the opportunity for comment prior to making a final 
permitting decision. TDEC has worked closely with local political 
subdivisions during the

[[Page 34315]]

development of its Transportation Conformity SIP and Regional Haze 
Implementation Plan. EPA has made the preliminary determination that 
Tennessee's SIP and practices adequately demonstrate consultation with, 
and participation by, affected local entities related to the 1997 
annual and 2006 24-hour PM2.5 NAAQS when necessary.

V. Proposed Action

    As described above, with the exception of sub-element 
110(a)(2)(E)(ii) respecting CAA section 128(a)(1) requirements, EPA is 
proposing to determine that Tennessee's infrastructure submissions, 
provided to EPA on December 14, 2007 and October 19, 2009, addressed 
the required infrastructure elements for the 1997 annual and 2006 24-
hour PM2.5 NAAQS. EPA is proposing to approve in part and 
conditionally approve in part, Tennessee's SIP submission consistent 
with section 110(k)(3) of the CAA.
    As described above, with the exception of sub-element 
110(a)(2)(E)(ii) respecting CAA section 128(a)(1) requirements, and 
contingent upon final action by EPA to approve TDEC's July 29, 2011, 
SIP submission regarding the State's PSD/NSR regulations, TDEC will 
have addressed the requisite elements of the CAA 110(a)(1) and (2) SIP 
requirements pursuant to EPA's October 2, 2007 and September 25, 2009, 
guidance to ensure that the 1997 annual and 2006 24-hour 
PM2.5 NAAQS are implemented, enforced, and maintained in 
Tennessee. With respect to 110(a)(2)(E)(ii) (referencing section 128 of 
the CAA), EPA is proposing to conditionally approve Tennessee's 
infrastructure SIP.
    Based on a March 28, 2012, commitment that TDEC will adopt specific 
enforceable measures into its SIP and submit these revisions to EPA 
within one year of EPA's final rulemaking to address the applicable 
portions of section 128, EPA is today proposing to conditionally 
approve Tennessee's infrastructure submission for the 1997 annual and 
2006 24-hour PM2.5 NAAQS for sub-element 110(a)(2)(E)(ii) 
respecting the requirements of CAA section 128(a)(1). EPA is also 
proposing to approve Tennessee's infrastructure submissions for the 
1997 annual and 2006 24-hour PM2.5 NAAQS because its 
December 14, 2007, and October 19, 2009, submissions are consistent 
with section 110 of the CAA. This proposed approval with respect to 
element 110(a)(2)(C) is contingent upon EPA first taking final action 
to approve TDEC's July 29, 2011, SIP submission regarding the State's 
PSD/NSR regulations,

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 Act and applicable 
Federal regulations. See 42 U.S.C. 7410(k); 40 CFR 52.02(a). Thus, in 
reviewing SIP submissions, EPA's role is to approve state choices, 
provided that they meet the criteria of the CAA. Accordingly, this 
proposed action merely approves state law as meeting Federal 
requirements and does not impose additional requirements beyond those 
imposed by state law. For that reason, this proposed action:
     Is not a ``significant regulatory action'' subject to 
review by the Office of Management and Budget under Executive Order 
12866 (58 FR 51735, October 4, 1993);
     Does not impose an information collection burden under the 
provisions of the Paperwork Reduction Act (44 U.S.C. 3501 et seq.);
     Is certified as not having a significant economic impact 
on a substantial number of small entities under the Regulatory 
Flexibility Act (5 U.S.C. 601 et seq.);
     Does not contain any unfunded mandate or significantly or 
uniquely affect small governments, as described in the Unfunded 
Mandates Reform Act of 1995 (Pub. L. 104-4);
     Does not have Federalism implications as specified in 
Executive Order 13132 (64 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, this proposed rule does not have tribal implications 
as specified by Executive Order 13175 (65 FR 67249, November 9, 2000), 
because the SIP is not approved to apply in Indian country located in 
the state, and EPA notes that it will not impose substantial direct 
costs on tribal governments or preempt tribal law.

List of Subjects in 40 CFR Part 52

    Air pollution control, Environmental protection, Intergovernmental 
relations, Nitrogen dioxide, Particulate matter, Reporting and 
recordkeeping requirements, Volatile organic compounds.

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

    Dated: May 31, 2012.
A. Stanley Meiburg,
Acting Regional Administrator, Region 4.
[FR Doc. 2012-14096 Filed 6-8-12; 8:45 am]
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