Document ID: EPA-R10-OAR-2022-0731-0058
Agency: epa
Document Type: Rule
Title: Air Quality State Implementation Plans; Approvals and Promulgations: Washington; Smoke Management Plan Update
Posted Date: 2023-08-10T04:00Z

[Federal Register Volume 88, Number 153 (Thursday, August 10, 2023)]
[Rules and Regulations]
[Pages 54240-54244]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2023-16409]

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ENVIRONMENTAL PROTECTION AGENCY

40 CFR Part 52

[EPA-R10-OAR-2022-0731, FRL-10545-02-R10]

Air Plan Approval; WA; Smoke Management Plan Update

AGENCY: Environmental Protection Agency (EPA).

ACTION: Final rule.

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SUMMARY: The Environmental Protection Agency (EPA) is approving 
Washington State Implementation Plan (SIP) revisions submitted on 
August 10, 2022. The submitted revisions incorporate the most recent 
updates to Washington's Smoke Management Plan and reflect state 
legislative and regulatory changes. The EPA is approving the revisions 
based on our determination that the revisions are consistent with Clean 
Air Act requirements.

DATES: This final rule is effective September 11, 2023.

ADDRESSES: The EPA has established a docket for this action under 
Docket ID No. EPA-R10-OAR-2022-0731. All documents in the docket are 
listed on the https://www.regulations.gov website. Although listed in 
the index, some information is not publicly available, e.g., 
Confidential Business Information or other information the disclosure 
of which 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 at https://www.regulations.gov, or please 
contact the person listed in the FOR FURTHER INFORMATION CONTACT 
section for additional availability information.

FOR FURTHER INFORMATION CONTACT: Randall Ruddick, EPA Region 10, 1200 
Sixth Avenue (Suite 155), Seattle, WA 98101, (206) 553-1999, 
[email protected].

SUPPLEMENTARY INFORMATION: Throughout this document wherever ``we'' or 
``our'' is used, it means the EPA.

Table of Contents

I. Background
II. Final Action
III. Incorporation by Reference
IV. Statutory and Executive Order Reviews

I. Background

    On March 23, 2023, the EPA proposed to approve Washington's August 
10, 2022, SIP submission revising the Washington Smoke Management Plan 
(88 FR 17481). The reasons for our proposed approval are included in 
the proposal and will not be restated here. The public comment period 
closed on April 24, 2023. We received one anonymous comment in support 
of our proposed action; therefore, we are finalizing our action as 
proposed.

II. Final Action

    The EPA is approving and incorporating by reference, where 
appropriate, Washington's 2022 submitted revisions into the Washington 
SIP 40 CFR part 52, subpart WW as discussed in our March 23, 2023, 
proposed approval (88 FR 17481). Once this approval becomes effective, 
the Washington SIP will include the following statutes and regulations:
     RCW 52.12.103, Burning Permits--Issuance--Contents (state 
effective March 27, 1984);
     RCW 52.12.104, Burning Permits--Duties of permittee (state 
effective March 27, 1984);
     RCW 76.04.005, Definitions. (1) ``Additional fire hazard'' 
(5) ``Department protected lands'' (9) ``Forest debris'' (11) 
``Forestland'' (12) ``Forestland owner,'' ``owner of forestland,'' 
``landowner,'' or ``owner'' (13) ``Forest material'' (15) ``Landowner 
operation'' (18) ``Participating landowner'' (20) ``Slash'' (21) 
``Slash burning'' (23) ``Unimproved lands'' (state effective July 24, 
2015);

[[Page 54241]]

     RCW 76.04.205, Burning Permits--Civil Penalty (state 
effective July 25, 2021);
     RCW 70A.15.1030, Definitions. (21) ``Silvicultural 
burning'' (state effective June 11, 2020);
     RCW 70A.15.5000, Definition of ``outdoor burning'' (state 
effective July 26, 2020);
     RCW 70A.15.5010, (2) Outdoor burning--Fires prohibited--
Exceptions (state effective June 11, 2020);
     RCW 70A.15.5020, Outdoor burning--Areas where prohibited--
Exceptions--Use for management of storm or flood-related debris--
Silvicultural burning, except (3) (state effective June 11, 2020);
     RCW 70A.15.5120, Burning permits for abating or prevention 
of forest fire hazards, management of ecosystems, instruction on 
silvicultural operations--Issuance--Fees (state effective June 11, 
2020);
     RCW 70A.15.5130, Silvicultural forest burning--Reduce 
statewide emissions--Exemption--Monitoring program (state effective 
July 28, 2019);
     RCW 70A.15.5140, Burning permits for abating or prevention 
of forest fire hazards, management of ecosystems, instruction on 
silvicultural operations--Conditions for issuance and use of permits--
Air quality standards to be met--Alternate methods to lessen forest 
debris (state effective June 11, 2020);
     RCW 70A.15.5150, Cooperation between department of natural 
resources and state, local, or regional air pollution authorities--
Withholding of permits (state effective June 11, 2020);
     RCW 70A.15.5190, Outdoor burning allowed for managing 
storm or flood related debris (state effective June 11, 2020);
     WAC 332-24-201, Burning Permit Program--Requirements and 
Exceptions (state effective June 30, 1992);
     WAC 332-24-205, General rules--minimum requirements for 
all burning, except (13) (state effective November 22, 2019);
     WAC 332-24-211, Specific rules for small fires not 
requiring a written burning permit (solely for the purpose of 
establishing the size threshold for burns covered by the Smoke 
Management Plan) (state effective June 30, 1992);
     WAC 332-24-217, Burning permit--penalty (state effective 
June 30, 1992);
     WAC 332-24-221, Specific rules for burning that requires a 
written burning permit (state effective February 1, 2012).
    In addition, the EPA is proposing to approve, but not incorporate 
by reference, into the Washington SIP at 40 CFR part 52, subpart WW the 
Department of Natural Resources Smoke Management Plan, state effective 
May 10, 2022 (including all Appendices to such plan), as such plan 
applies to silvicultural burning regulated by DNR.
    We note that, as provided in 40 CFR 52.2476 of the Washington SIP, 
any variance or exception to the 2022 SMP granted by DNR or Ecology 
must be submitted by Washington for approval to EPA in accordance with 
the requirements for revising SIPs in 40 CFR 51.104 and any such 
variance or exception does not modify the requirements of the federally 
approved Washington SIP until approved by EPA as a SIP revision.

III. Incorporation by Reference

    In this document, the EPA is finalizing regulatory text that 
includes incorporation by reference. In accordance with requirements of 
1 CFR 51.5, EPA is finalizing the incorporation by reference of 
regulatory provisions described in section II of this preamble and set 
forth in the amendments to 40 CFR part 52 in this document. The EPA has 
made, and will continue to make, these materials reasonably available 
through https://www.regulations.gov and at the EPA Region 10 Office 
(please contact the person identified in the FOR FURTHER INFORMATION 
CONTACT section of this preamble for more information). Therefore, 
these materials have been approved by the EPA for inclusion in the SIP, 
have been incorporated by reference by the EPA into that plan, are 
fully federally enforceable under sections 110 and 113 of the Clean Air 
Act as of the effective date of the final rule of the EPA's approval, 
and will be incorporated by reference in the next update to the SIP 
compilation.\1\
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    \1\ 62 FR 27968 (May 22, 1997).
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IV. Statutory and Executive Order Reviews

    Under the Clean Air Act, the Administrator is required to approve a 
SIP submission that complies with the provisions of the Clean Air Act 
and applicable Federal regulations. 42 U.S.C. 7410(k); 40 CFR 52.02(a). 
Thus, in reviewing SIP submissions, the EPA's role is to approve state 
choices, provided that they meet the criteria of the Clean Air Act. 
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); and
     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 Clean Air Act.
    Executive Order 12898 (Federal Actions to Address Environmental 
Justice in Minority Populations and Low-Income Populations, 59 FR 7629, 
February 16, 1994) directs Federal agencies to identify and address 
``disproportionately high and adverse human health or environmental 
effects'' of their actions on minority populations and low-income 
populations to the greatest extent practicable and permitted by law. 
The EPA defines environmental justice (EJ) as ``the fair treatment and 
meaningful involvement of all people regardless of race, color, 
national origin, or income with respect to the development, 
implementation, and enforcement of environmental laws, regulations, and 
policies.'' The EPA further defines the term fair treatment to mean 
that ``no group of people should bear a disproportionate burden of 
environmental harms and risks, including those resulting from the 
negative environmental consequences of industrial, governmental, and 
commercial operations or programs and policies.''
    The air agency did not evaluate environmental justice 
considerations as part of its SIP submittal; the Clean Air Act and 
applicable implementing regulations neither prohibit nor require such 
an evaluation. The EPA did not perform an EJ analysis and did not 
consider EJ in this action. Due to the

[[Page 54242]]

nature of this action, it is expected to have a neutral to positive 
impact on the air quality of the affected area. Consideration of EJ is 
not required as part of this action, and there is no information in the 
record inconsistent with the stated goal of Executive Order 12898 of 
achieving environmental justice for people of color, low-income 
populations, and Indigenous peoples.
    In addition, the SIP is not approved to apply on any Indian 
reservation land in Washington except as specifically noted below and 
is also not approved to apply in any other area where the 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 as 
specified by Executive Order 13175 (65 FR 67249, November 9, 2000), nor 
will it impose substantial direct costs on tribal governments or 
preempt tribal law. Washington's SIP is approved to apply on non-trust 
land within the exterior boundaries of the Puyallup Indian Reservation, 
also known as the 1873 Survey Area. Under the Puyallup Tribe of Indians 
Settlement Act of 1989, 25 U.S.C. 1773, Congress explicitly provided 
state and local agencies in Washington authority over activities on 
non-trust lands within the 1873 Survey Area. Consistent with EPA 
policy, the EPA provided a consultation opportunity to potentially 
affected tribes in a letter dated May 24, 2022.
    This action is subject to the Congressional Review Act, and the EPA 
will submit a rule report to each House of the Congress and to the 
Comptroller General of the United States. This action is not a ``major 
rule'' as defined by 5 U.S.C. 804(2).
    Under section 307(b)(1) of the Clean Air Act, petitions for 
judicial review of this action must be filed in the United States Court 
of Appeals for the appropriate circuit by October 10, 2023. Filing a 
petition for reconsideration by the Administrator of this final rule 
does not affect the finality of this action for the purposes of 
judicial review nor does it extend the time within which a petition for 
judicial review may be filed and shall not postpone the effectiveness 
of such rule or action. This action may not be challenged later in 
proceedings to enforce its requirements. See section 307(b)(2).

List of Subjects in 40 CFR Part 52

    Environmental protection, Air pollution control, Incorporation by 
reference, Intergovernmental relations, Lead, Nitrogen dioxide, Ozone, 
Particulate matter, Reporting and recordkeeping requirements, Sulfur 
oxides, Volatile organic compounds.

    Dated: July 12, 2023.
Casey Sixkiller,
Regional Administrator, Region 10.

    For the reasons set forth in the preamble, 40 CFR part 52 is 
amended as follows:

PART 52--APPROVAL AND PROMULGATION OF IMPLEMENTATION PLANS

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

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

Subpart WW--Washington

0
2. Amend Sec.  52.2470 as follows:
0
a. In paragraph (c), table 1, by adding:
0
i. The heading ``Washington Administrative Code, Chapter 332-24--Forest 
Protection'' and the entries ``332-24-201'', ``332-24-205'', ``332-24-
211'', ``332-24-217'', and ``332-24-221'' immediately after the entry 
``173-492-100'';
0
ii. The heading ``Revised Code of Washington, Chapter 52.12--Fire 
Protection Districts, Powers--Burning Permits'' and the entries 
``52.12.103'' and ``52.12.104'' immediately after newly added entry 
``332-24-221'';
0
iii. The heading ``Revised Code of Washington, Chapter 70A.15--
Washington Clean Air Act'' and the entries ``70A.15.1030(21)'', 
``70A.15.5000'', ``70A.15.5010(2)'', ``70A.15.5020'', ``70A.15.5120'', 
``70A.15.5130'', ``70A.15.5140'', ``70A.15.5150'', ``70A.15.5190'' 
immediately after newly added entry ``52.12.104''; and
0
iv. The heading ``Revised Code of Washington, Chapter 76.04--Washington 
Clean Air Act'' and the entries ``76.04.005'' and ``76.04.205'' 
immediately after newly added entry ``70A.15.5190''; and
0
b. In paragraph (e), table 2, by adding the heading ``Smoke Management 
Planning'' and the entry ``Department of Natural Resources 2022 Smoke 
Management Plan'' immediately after the entry for ``Regional Haze 
Progress Report''.
    The additions read as follows:

Sec.  52.2470  Identification of plan.

* * * * *
    (c) * * *

                                     Table 1--Regulations Approved Statewide
 [Not applicable in Indian reservations (excluding non-trust land within the exterior boundaries of the Puyallup
    Indian Reservation) and any other area where the EPA or an Indian tribe has demonstrated that a tribe has
                                                 jurisdiction.]
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                                                        State
       State citation             Title/subject       effective      EPA approval date         Explanations
                                                         date
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                                                  * * * * * * *
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                        Washington Administrative Code, Chapter 332-24--Forest Protection
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332-24-201.................  Burning Permit              6/30/92  8/10/2023, [INSERT      ......................
                              Program--Requirements                Federal Register
                              and Exceptions.                      CITATION].
332-24-205.................  General rules--Minimum     11/22/19  8/10/2023, [INSERT      Except section (13).
                              Requirements for All                 Federal Register
                              Burning.                             CITATION].
332-24-211.................  Specific rules for          7/31/92  8/10/2023, [INSERT      Included for the
                              small fires not                      Federal Register        purpose of setting
                              requiring a written                  CITATION].              the size limit for
                              burning permit.                                              burns covered by the
                                                                                           Department of Natural
                                                                                           Resources 2022 Smoke
                                                                                           Management Plan in
                                                                                           paragraph (e), Table
                                                                                           2.
332-24-217.................  Burning permit              7/31/92  8/10/2023, [INSERT      ......................
                              requirements--Penalty.               Federal Register
                                                                   CITATION].

[[Page 54243]]

 
332-24-221.................  Specific Rules for           2/1/12  8/10/2023, [INSERT      ......................
                              Burning That Requires                Federal Register
                              a Written Burning                    CITATION].
                              Permit.
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          Revised Code of Washington, Chapter 52.12--Fire Protection Districts, Powers--Burning Permits
----------------------------------------------------------------------------------------------------------------
52.12.103..................  Burning permits--           3/27/84  8/10/2023, [INSERT      ......................
                              Issuance--Contents..                 Federal Register
                                                                   CITATION].
52.12.104..................  Burning permits--           3/27/84  8/10/2023, [INSERT      ......................
                              Duties of permittee.                 Federal Register
                                                                   CITATION].
----------------------------------------------------------------------------------------------------------------
                      Revised Code of Washington, Chapter 70A.15--Washington Clean Air Act
----------------------------------------------------------------------------------------------------------------
70A.15.1030(21)............  Definitions.                6/11/20  8/10/2023, [INSERT      ......................
                              ``Silvicultural                      Federal Register
                              burning''.                           CITATION].
70A.15.5000................  Definition of               7/26/20  8/10/2023, [INSERT      ......................
                              ``outdoor burning''.                 Federal Register
                                                                   CITATION].
70A.15.5010 (2)............  Outdoor burning--Fires      6/11/20  8/10/2023, [INSERT      Except (1).
                              prohibited--Exception                Federal Register
                              s.                                   CITATION].
70A.15.5020................  Outdoor burning--Areas      6/11/20  8/10/2023, [INSERT      Except (3).
                              where prohibited--                   Federal Register
                              Exceptions--Use for                  CITATION].
                              management of storm
                              or flood-related
                              debris--Silvicultural
                              burning.
70A.15.5120................  Burning permits for         6/11/20  8/10/2023, [INSERT      ......................
                              abating or prevention                Federal Register
                              of forest fire                       CITATION].
                              hazards, management
                              of ecosystems,
                              instruction or
                              silvicultural
                              operations--issuance-
                              -Fees.
70A.15.5130................  Silvicultural forest        7/28/19  8/10/2023, [INSERT      ......................
                              burning--Reduce                      Federal Register
                              statewide emissions                  CITATION].
                              Exemption--Monitoring
                              program.
70A.15.5140................  Burning permits for         6/11/20  8/10/2023, [INSERT      ......................
                              abating or prevention                Federal Register
                              of forest fire                       CITATION].
                              hazards, management
                              of ecosystems,
                              instruction or
                              silvicultural
                              operations--Condition
                              s for issuance and
                              use of permits--Air
                              quality standards to
                              be met--Alternate
                              methods to lessen
                              forest debris.
70A.15.5150................  Cooperation between         6/11/20  8/10/2023, [INSERT      ......................
                              department of natural                Federal Register
                              resources and state,                 CITATION].
                              local, or regional
                              air pollution
                              authorities--Withhold
                              ing of permits.
70A.15.5190................  Outdoor burning             6/11/20  8/10/2023, [INSERT      ......................
                              allowed for managing                 Federal Register
                              storm or flood-                      CITATION].
                              related debris.
----------------------------------------------------------------------------------------------------------------
                       Revised Code of Washington, Chapter 76.04--Washington Clean Air Act
----------------------------------------------------------------------------------------------------------------
76.04.005..................  Definitions...........      7/24/15  8/10/2023, [INSERT      Except (2), (3), (4),
                                                                   Federal Register        (6), (7), (8), (10),
                                                                   CITATION].              (14), (16), (17),
                                                                                           (19), (22)
76.04.205..................  Burning Permits--Civil      7/25/21  8/10/2023, [INSERT      ......................
                              Penalty.                             Federal Register
                                                                   CITATION].
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* * * * *
    (e) * * *

[[Page 54244]]

                                Table 2--Attainment, Maintenance, and Other Plans
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                                                                  State
       Name of SIP provision         Applicable geographic or   submittal     EPA approval date    Explanations
                                        nonattainment area         date
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                                                  * * * * * * *
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                                            Smoke Management Planning
----------------------------------------------------------------------------------------------------------------
Department of Natural Resources     Statewide................      8/10/22  8/10/2023, [INSERT    ..............
 2022 Smoke Management Plan.                                                 Federal Register
                                                                             CITATION]..
 
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[FR Doc. 2023-16409 Filed 8-9-23; 8:45 am]
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