Source: https://regulations.justia.com/regulations/fedreg/2014/11/20/2014-27504.html
Timestamp: 2020-03-31 20:06:59
Document Index: 119057171

Matched Legal Cases: ['art 52', 'arts 50', 'art 58', 'art 51', 'art 52', 'art 52', 'arts 50', 'art 51']

Approval and Promulgation of Implementation Plans; North Carolina Infrastructure Requirements for the 2008 Lead National Ambient Air Quality Standards, 69082-69090 [2014-27504] :: Environmental Protection Agency :: Regulation Tracker :: Justia
Justia Regulation Tracker Environmental Protection Agency Approval and Promulgation of Implementation Plans; North Carolina Infrastructure Requirements for the 2008 Lead National Ambient Air Quality Standards, 69082-69090 [2014-27504]
Approval and Promulgation of Implementation Plans; North Carolina Infrastructure Requirements for the 2008 Lead National Ambient Air Quality Standards, 69082-69090 [2014-27504]
Download as PDF 69082 Federal Register / Vol. 79, No. 224 / Thursday, November 20, 2014 / Proposed Rules forth in 33 U.S.C. 1232 and 50 U.S.C. 192. (c) Effective and enforcement period. This security zone is in effect permanently but will only be enforced when deemed necessary by the COTP. Anyone, including members of federal or state law enforcement agencies, may request that this security zone be enforced. (d) Notification. The COTP will notify the public of the enforcement of this security zone by publishing a Notice of Enforcement (NOE) in the Federal Register and via the other means listed in 33 CFR 165.7. Such notifications will include the date and times of enforcement, along with any predetermined conditions of entry. (e) COTP representative. The COTP’s representative may be any Coast Guard commissioned, warrant, or petty officer or any Federal, state, or local law enforcement officer who has been designated by the COTP to act on the COTP’s behalf. The COTP’s representative may be on a Coast Guard vessel, a Coast Guard Auxiliary vessel, a state or local law enforcement vessel, or a location on shore. Dated: November 5, 2014. J.C. O’Connor III, Captain, U.S. Coast Guard, Captain of the Port Boston. [FR Doc. 2014–27160 Filed 11–19–14; 8:45 am] BILLING CODE 9110–04–P ENVIRONMENTAL PROTECTION AGENCY 40 CFR Part 52 [EPA–R04–OAR–2014–0444; FRL–9919–49– Region 4] Approval and Promulgation of Implementation Plans; North Carolina Infrastructure Requirements for the 2008 Lead National Ambient Air Quality Standards Environmental Protection Agency. ACTION: Proposed rule. AGENCY: The Environmental Protection Agency (EPA) is proposing to approve the July 20, 2012, State Implementation Plan (SIP) submission, provided by the North Carolina Department of Environment and Natural Resources (NC DENR), Division of Air Quality (NCDAQ) for inclusion into the North Carolina SIP. This proposal pertains to the Clean Air Act (CAA or the Act) infrastructure requirements for the 2008 Lead national ambient air quality standards (NAAQS). The CAA requires rmajette on DSK2VPTVN1PROD with PROPOSALS SUMMARY: VerDate Sep<11>2014 13:19 Nov 19, 2014 Jkt 235001 that each state adopt and submit a SIP for the implementation, maintenance, and enforcement of each NAAQS promulgated by EPA, which is commonly referred to as an ‘‘infrastructure’’ SIP. NCDAQ certified that the North Carolina SIP contains provisions that ensure the 2008 Lead NAAQS is implemented, enforced, and maintained in North Carolina (hereafter referred to as an ‘‘infrastructure SIP submission’’). With the exception of provisions pertaining to prevention of significant deterioration (PSD) permitting and state boards requirements, EPA is proposing to determine that North Carolina’s infrastructure SIP submission, provided to EPA on July 20, 2012, addresses the required infrastructure elements for the 2008 Lead NAAQS. DATES: Written comments must be received on or before December 22, 2014. Submit your comments, identified by Docket ID No. EPA–R04– OAR–2014–0444, 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–2014– 0444,’’ 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, Chief, 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 a.m. to 4:30 p.m., excluding Federal holidays. Instructions: Direct your comments to Docket ID No. EPA–R04–OAR–2014– 0444. 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, ADDRESSES: PO 00000 Frm 00018 Fmt 4702 Sfmt 4702 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 a.m. to 4:30 p.m., excluding Federal holidays. FOR FURTHER INFORMATION CONTACT: Zuri Farngalo, 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) 562–9152. Mr. Farngalo can be reached via electronic mail at farngalo.zuri@ epa.gov. E:\FR\FM\20NOP1.SGM 20NOP1 Federal Register / Vol. 79, No. 224 / Thursday, November 20, 2014 / Proposed Rules SUPPLEMENTARY INFORMATION: Table of Contents I. Background II. What elements are required under Sections 110(a)(1) and (2)? III. What is EPA’s approach to the review of infrastructure SIP submissions? IV. What is EPA’s analysis of how North Carolina addressed the elements of Sections 110(a)(1) and (2) ‘‘Infrastructure’’ provisions? V. Proposed Action VI. Statutory and Executive Order Reviews rmajette on DSK2VPTVN1PROD with PROPOSALS I. Background On October 5, 1978, EPA promulgated primary and secondary NAAQS for Lead under section 109 of the Act. See 43 FR 46246. Both primary and secondary standards were set at a level of 1.5 micrograms per cubic meter (mg/m3), measured as lead in total suspended particulate matter (Pb-TSP), not to be exceeded by the maximum arithmetic mean concentration averaged over a calendar quarter. This standard was based on the August 7, 1977 Air Quality Criteria for Lead. On November 12, 2008 (75 FR 81126), EPA issued a final rule to revise the primary and secondary Lead NAAQS. The revised primary and secondary Lead NAAQS were revised to 0.15 mg/m3. By statute, SIPs meeting the requirements of sections 110(a)(1) and (2) are to be submitted by states within three 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 October 15, 2011, for the 2008 Lead NAAQS.1 Today’s action is proposing to approve North Carolina’s infrastructure submission for the applicable requirements of the Lead NAAQS, with the exception of preconstruction PSD permitting requirements for major sources of sections 110(a)(2)(C), prong 3 of D(i), and (J) and the state board 1 In these infrastructure SIP submissions states generally certify evidence of compliance with sections 110(a)(1) and (2) of the CAA through a combination of state regulations and statutes, some of which have been incorporated into the federallyapproved SIP. In addition, certain federallyapproved, non-SIP regulations may also be appropriate for demonstrating compliance with sections 110(a)(1) and (2). Unless otherwise indicated, the Title 15A regulations of the North Carolina Administrative Code (‘‘15A NCAC’’) cited throughout this rulemaking have either been approved, or submitted for approval into North Carolina’s federally-approved SIP. The North Carolina General Statutes (‘‘NCGS’’) cited throughout this rulemaking, however, are not approved into the North Carolina SIP unless otherwise indicated. VerDate Sep<11>2014 13:19 Nov 19, 2014 Jkt 235001 requirements of 110(E)(ii). With respect to North Carolina’s infrastructure SIP submission related to the provisions pertaining to the PSD permitting requirements for major sources of section 110(a)(2)(C), prong 3 of D(i), and (J), and the state board requirements complying with section 128 of the CAA for 110(a)(2)(E)(ii), EPA is not proposing any action today regarding these requirements. EPA will act on these portions of North Carolina’s submission in a separate action. This action is not approving any specific rule, but rather proposing that North Carolina’s already approved SIP 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 three 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 2008 Lead NAAQS, states typically have met the basic program elements required in section 110(a)(2) through earlier SIP submissions in connection with the 1978 Lead 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 2 and in EPA’s October 2 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) PO 00000 Frm 00019 Fmt 4702 Sfmt 4702 69083 14, 2011, memorandum entitled ‘‘Guidance on Infrastructure State Implementation Plan (SIP) Elements Required Under Sections 110(a)(1) and 110(a)(2) for the 2008 Lead (Pb) National Ambient Air Quality Standards (NAAQS)’’ (2011 Lead Infrastructure SIP Guidance). • 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, prevention of significant deterioration (PSD) and new source review (NSR).3 • 110(a)(2)(D): Interstate and international transport provisions. • 110(a)(2)(E): Adequate personnel, funding, and authority. • 110(a)(2)(F): Stationary source monitoring and reporting. • 110(a)(2)(G): Emergency episodes. • 110(a)(2)(H): Future SIP revisions. • 110(a)(2)(I): Nonattainment area plan or plan revision under part D.4 • 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. What is EPA’s approach to the review of infrastructure SIP submissions? EPA is acting upon the SIP submission from North Carolina that addresses the infrastructure requirements of CAA sections 110(a)(1) and 110(a)(2) for the 2008 Lead NAAQS. Pursuant to section 110(a)(1), states must make SIP submissions ‘‘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 these SIP submissions are to provide for the ‘‘implementation, maintenance, and enforcement’’ of such NAAQS. The statute directly imposes on states the duty to make these SIP submissions, 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) or the nonattainment planning requirements of 110(a)(2)(C). 3 This rulemaking only addresses requirements for this element as they relate to attainment areas. 4 As mentioned above, this element is not relevant to today’s proposed rulemaking. E:\FR\FM\20NOP1.SGM 20NOP1 69084 Federal Register / Vol. 79, No. 224 / Thursday, November 20, 2014 / Proposed Rules rmajette on DSK2VPTVN1PROD with PROPOSALS and the requirement to make the submissions is not conditioned upon EPA’s taking any action other than promulgating a new or revised NAAQS. Section 110(a)(2) includes a list of specific elements that ‘‘each such plan’’ submission must address. EPA has historically referred to these SIP submissions made for the purpose of satisfying the requirements of CAA sections 110(a)(1) and 110(a)(2) as ‘‘infrastructure SIP’’ submissions. Although the term ‘‘infrastructure SIP’’ does not appear in the CAA, EPA uses the term to distinguish this particular type of SIP submission from submissions that are intended to satisfy other SIP requirements under the CAA, such as ‘‘nonattainment SIP’’ or ‘‘attainment plan SIP’’ submissions to address the nonattainment planning requirements of part D of title I of the CAA, ‘‘regional haze SIP’’ submissions required by EPA rule to address the visibility protection requirements of CAA section 169A, and nonattainment new source review permit program submissions to address the permit requirements of CAA, title I, part D. Section 110(a)(1) addresses the timing and general requirements for infrastructure SIP submissions, and section 110(a)(2) provides more details concerning the required contents of these submissions. 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 program provisions, and some of which pertain to requirements for both authority and substantive program provisions.5 EPA therefore believes that while the timing requirement in section 110(a)(1) is unambiguous, some of the other statutory provisions are ambiguous. In particular, EPA believes that the list of required elements for infrastructure SIP submissions provided in section 110(a)(2) contains ambiguities concerning what is required for inclusion in an infrastructure SIP submission. The following examples of ambiguities illustrate the need for EPA to interpret some section 110(a)(1) and section 110(a)(2) requirements with respect to infrastructure SIP submissions for a given new or revised 5 For example: Section 110(a)(2)(E)(i) 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 SIP-approved program to address certain sources as required by part C of title I of the CAA; and section 110(a)(2)(G) provides that states must have legal authority to address emergencies as well as contingency plans that are triggered in the event of such emergencies. VerDate Sep<11>2014 13:19 Nov 19, 2014 Jkt 235001 NAAQS. One example of ambiguity is that section 110(a)(2) requires that ‘‘each’’ SIP submission must meet the list of requirements therein, while EPA has long noted that this literal reading of the statute is internally inconsistent and would create a conflict with the nonattainment provisions in part D of title I of the Act, which specifically address nonattainment SIP requirements.6 Section 110(a)(2)(I) pertains to nonattainment SIP requirements and part D addresses when attainment plan SIP submissions to address nonattainment area requirements are due. For example, section 172(b) requires EPA to establish a schedule for submission of such plans for certain pollutants when the Administrator promulgates the designation of an area as nonattainment, and section 107(d)(1)(B) allows up to two years, or in some cases three years, for such designations to be promulgated.7 This ambiguity illustrates that rather than apply all the stated requirements of section 110(a)(2) in a strict literal sense, EPA must determine which provisions of section 110(a)(2) are applicable for a particular infrastructure SIP submission. Another example of ambiguity within sections 110(a)(1) and 110(a)(2) with respect to infrastructure SIPs pertains to whether states must meet all of the infrastructure SIP requirements in a single SIP submission, and whether EPA must act upon such SIP submission in a single action. Although section 110(a)(1) directs states to submit ‘‘a plan’’ to meet these requirements, EPA interprets the CAA to allow states to make multiple SIP submissions separately addressing infrastructure SIP elements for the same NAAQS. If states elect to make such multiple SIP submissions to meet the infrastructure SIP requirements, EPA can elect to act on such submissions either individually or in a larger combined action.8 6 See, e.g., ‘‘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, at 25163–65 (May 12, 2005) (explaining relationship between timing requirement of section 110(a)(2)(D) versus section 110(a)(2)(I)). 7 EPA notes that this ambiguity within section 110(a)(2) is heightened by the fact that various subparts of part D set specific dates for submission of certain types of SIP submissions in designated nonattainment areas for various pollutants. Note, e.g., that section 182(a)(1) provides specific dates for submission of emissions inventories for the ozone NAAQS. Some of these specific dates are necessarily later than three years after promulgation of the new or revised NAAQS. 8 See, e.g., ‘‘Approval and Promulgation of Implementation Plans; New Mexico; Revisions to the New Source Review (NSR) State Implementation Plan (SIP); Prevention of Significant Deterioration (PSD) and Nonattainment PO 00000 Frm 00020 Fmt 4702 Sfmt 4702 Similarly, EPA interprets the CAA to allow it to take action on the individual parts of one larger, comprehensive infrastructure SIP submission for a given NAAQS without concurrent action on the entire submission. For example, EPA has sometimes elected to act at different times on various elements and sub-elements of the same infrastructure SIP submission.9 Ambiguities within sections 110(a)(1) and 110(a)(2) may also arise with respect to infrastructure SIP submission requirements for different NAAQS. Thus, 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. The states’ attendant infrastructure SIP submissions for each NAAQS therefore could be different. For example, the monitoring requirements that a state might need to meet in its infrastructure SIP submission for purposes of section 110(a)(2)(B) could be very different for different pollutants because the content and scope of a state’s infrastructure SIP submission to meet this element might be very different for an entirely new NAAQS than for a minor revision to an existing NAAQS.10 EPA notes that interpretation of section 110(a)(2) is also necessary when EPA reviews other types of SIP submissions required under the CAA. Therefore, as with infrastructure SIP submissions, EPA also has to identify and interpret the relevant elements of section 110(a)(2) that logically apply to these other types of SIP submissions. For example, section 172(c)(7) requires that attainment plan SIP submissions required by part D have to meet the ‘‘applicable requirements’’ of section 110(a)(2). Thus, for example, attainment New Source Review (NNSR) Permitting,’’ 78 FR 4339 (January 22, 2013) (EPA’s final action approving the structural PSD elements of the New Mexico SIP submitted by the State separately to meet the requirements of EPA’s 2008 PM2.5 NSR rule), and ‘‘Approval and Promulgation of Air Quality Implementation Plans; New Mexico; Infrastructure and Interstate Transport Requirements for the 2006 PM2.5 NAAQS,’’ (78 FR 4337) (January 22, 2013) (EPA’s final action on the infrastructure SIP for the 2006 PM2.5 NAAQS). 9 On December 14, 2007, the State of Tennessee, through the Tennessee Department of Environment and Conservation, made a SIP revision to EPA demonstrating that the State meets the requirements of sections 110(a)(1) and (2). EPA proposed action for infrastructure SIP elements (C) and (J) on January 23, 2012 (77 FR 3213) and took final action on March 14, 2012 (77 FR 14976). On April 16, 2012 (77 FR 22533) and July 23, 2012 (77 FR 42997), EPA took separate proposed and final actions on all other section 110(a)(2) infrastructure SIP elements of Tennessee’s December 14, 2007 submittal. 10 For example, implementation of the 1997 PM 2.5 NAAQS required the deployment of a system of new monitors to measure ambient levels of that new indicator species for the new NAAQS. E:\FR\FM\20NOP1.SGM 20NOP1 Federal Register / Vol. 79, No. 224 / Thursday, November 20, 2014 / Proposed Rules rmajette on DSK2VPTVN1PROD with PROPOSALS plan SIP submissions must meet the requirements of section 110(a)(2)(A) regarding enforceable emission limits and control measures and section 110(a)(2)(E)(i) regarding air agency resources and authority. By contrast, it is clear that attainment plan SIP submissions required by part D would not need to meet the portion of section 110(a)(2)(C) that pertains to the PSD program required in part C of title I of the CAA, because PSD does not apply to a pollutant for which an area is designated nonattainment and thus subject to part D planning requirements. As this example illustrates, each type of SIP submission may implicate some elements of section 110(a)(2) but not others. Given the potential for ambiguity in some of the statutory language of section 110(a)(1) and section 110(a)(2), EPA believes that it is appropriate to interpret the ambiguous portions of section 110(a)(1) and section 110(a)(2) in the context of acting on a particular SIP submission. In other words, EPA assumes that Congress could not have intended that each and every SIP submission, regardless of the NAAQS in question or the history of SIP development for the relevant pollutant, would meet each of the requirements, or meet each of them in the same way. Therefore, EPA has adopted an approach under which it reviews infrastructure SIP submissions against the list of elements in section 110(a)(2), but only to the extent each element applies for that particular NAAQS. Historically, EPA has elected to use guidance documents to make recommendations to states for infrastructure SIPs, in some cases conveying needed interpretations on newly arising issues and in some cases conveying interpretations that have already been developed and applied to individual SIP submissions for particular elements.11 EPA issued the Lead Infrastructure SIP Guidance on October 14, 2011.12 EPA developed this document to provide states with up-todate guidance for the 2008 Lead infrastructure SIPs. Within this 11 EPA notes, however, that nothing in the CAA requires EPA to provide guidance or to promulgate regulations for infrastructure SIP submissions. The CAA directly applies to states and requires the submission of infrastructure SIP submissions, regardless of whether or not EPA provides guidance or regulations pertaining to such submissions. EPA elects to issue such guidance in order to assist states, as appropriate. 12 ‘‘Guidance on Infrastructure State Implementation Plan (SIP) Elements Required under Clean Air Act Sections 110(a)(1) and 110(a)(2) for the 2008 Lead (Pb) National Ambient Air Quality Standards (NAAQS),’’ Memorandum from Stephen D. Page, October 14, 2001. VerDate Sep<11>2014 13:19 Nov 19, 2014 Jkt 235001 guidance, EPA describes the duty of states to make infrastructure SIP submissions to meet basic structural SIP requirements within three years of promulgation of a new or revised NAAQS. EPA also made recommendations about many specific subsections of section 110(a)(2) that are relevant in the context of infrastructure SIP submissions. The guidance also discusses the substantively important issues that are germane to certain subsections of section 110(a)(2). Significantly, EPA interprets sections 110(a)(1) and 110(a)(2) such that infrastructure SIP submissions need to address certain issues and need not address others. Accordingly, EPA reviews each infrastructure SIP submission for compliance with the applicable statutory provisions of section 110(a)(2), as appropriate.13 EPA’s approach to review of infrastructure SIP submissions is to identify the CAA requirements that are logically applicable to that submission. EPA believes that this approach to the review of a particular infrastructure SIP submission is appropriate, because it would not be reasonable to read the general requirements of section 110(a)(1) and the list of elements in 110(a)(2) as requiring review of each and every provision of a state’s existing SIP against all requirements in the CAA and EPA regulations 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. These provisions, 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 evaluates adequacy of the infrastructure SIP submission. EPA believes that a better approach is for states and EPA to focus attention on those elements of 13 Although not intended to provide guidance for purposes of infrastructure SIP submissions for the 2008 Lead NAAQS, EPA notes that, following the 2011 Lead Infrastructure SIP Guidance, EPA issued the ‘‘Guidance on Infrastructure State Implementation Plan (SIP) Elements under Clean Air Act Sections 110(a)(1) and 110(a)(2).’’ Memorandum from Stephen D. Page, September 13, 2013. This 2013 guidance provides recommendations for air agencies’ development and the EPA’s review of infrastructure SIPs for the 2008 ozone primary and secondary NAAQS, the 2010 primary nitrogen dioxide (NO2) NAAQS, the 2010 primary sulfur dioxide (SO2) NAAQS, and the 2012 primary fine particulate matter (PM2.5) NAAQS, as well as infrastructure SIPs for new or revised NAAQS promulgated in the future. PO 00000 Frm 00021 Fmt 4702 Sfmt 4702 69085 section 110(a)(2) of the CAA most likely to warrant a specific SIP revision due to the promulgation of a new or revised NAAQS or other factors. Finally, EPA believes that its approach with respect to infrastructure SIP requirements is based on a reasonable reading of sections 110(a)(1) and 110(a)(2) because the CAA provides other avenues and mechanisms to address specific substantive deficiencies in existing SIPs. These other statutory tools allow EPA to take appropriately 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 to otherwise comply with the CAA.14 Section 110(k)(6) authorizes EPA to correct errors in past actions, such as past approvals of SIP submissions.15 Significantly, EPA’s determination that an action on a state’s infrastructure SIP submission is not the appropriate time and place to address all potential existing SIP deficiencies does not preclude EPA’s subsequent reliance on provisions in section 110(a)(2) as part of the basis for action to correct those deficiencies 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 an infrastructure SIP submission, EPA believes that section 110(a)(2)(A) may be among the statutory bases that EPA relies upon in the course of addressing such deficiency in a subsequent action.16 14 For example, EPA issued a SIP call to Utah to address specific existing SIP deficiencies related to the treatment of excess emissions during SSM events. See ‘‘Finding of Substantial Inadequacy of Implementation Plan; Call for Utah State Implementation Plan Revisions,’’ 74 FR 21639 (April 18, 2011). 15 EPA has used 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 section 110(k)(6) to remove numerous other SIP provisions that the Agency determined it had approved in error. See, e.g., 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). 16 See, e.g., EPA’s disapproval of 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, e.g., 75 FR 42342 at 42344 E:\FR\FM\20NOP1.SGM Continued 20NOP1 69086 Federal Register / Vol. 79, No. 224 / Thursday, November 20, 2014 / Proposed Rules rmajette on DSK2VPTVN1PROD with PROPOSALS IV. What is EPA’s analysis of how North Carolina addressed the elements of sections 110(a)(1) and (2) ‘‘infrastructure’’ provisions? The North Carolina 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: There are several provisions within the North Carolina General Statutes (NCGS) and the North Carolina Administrative Code (NCAC) that provide NCDAQ with the necessary authority to adopt and enforce air quality controls, which include enforceable emission limitations and other control measures. Rules 15A NCAC 2D .0600 ‘‘Monitoring: Recordkeeping: Reporting;’’ 15A NCAC 2D .1600 ‘‘General Conformity;’’ 15A NCAC 2D .2200 ‘‘Special Orders;’’ and, 15A NCAC 2D .2600 ‘‘Source Testing,’’ provide enforceable emission limits and other control measures, means, and techniques. In addition, NCGS 143– 215.107(a)(5), ‘‘Air quality standards and classifications,’’ provides North Carolina with the authority to ‘‘develop and adopt emission control standards as in the judgment of the Commission may be necessary to prohibit, abate, or control air pollution commensurate with established air quality standards.’’ EPA has made the preliminary determination that these provisions and North Carolina’s practices are adequate to protect the 2008 Lead 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.17 In the meantime, EPA encourages any state having a deficient SSM provision 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 (July 21, 2010) (proposed disapproval of director’s discretion provisions); 76 FR 4540 (Jan. 26, 2011) (final disapproval of such provisions). 17 On February 22, 2013, EPA published a proposed action in the Federal Register entitled, ‘‘State Implementation Plans: Response to Petition for Rulemaking; Findings of Substantial Inadequacy; and SIP Calls to Amend Provisions Applying to Excess Emissions During Periods of Startup, Shutdown, and Malfunction; Proposed Rule.’’ 78 FR 12459. VerDate Sep<11>2014 13:19 Nov 19, 2014 Jkt 235001 director’s discretion or variance provisions. 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: SIPs are required to provide for the establishment and operation of ambient air quality monitors; the compilation and analysis of ambient air quality data; and the submission of these data to EPA upon request. NCGS 143–215.107(a)(2), ‘‘Air quality standards and classifications,’’ along with the North Carolina Annual Monitoring Network Plan, provide for an ambient air quality monitoring system in the State, which includes the monitoring of lead at appropriate locations throughout the state using the EPA approved Federal Reference Method or equivalent monitors. NCGS 143–215.107(a)(2) also provides North Carolina with the statutory authority to ‘‘determine by means of field sampling and other studies, including the examination of available data collected by any local, State or federal agency or any person, the degree of air contamination and air pollution in the State and the several areas of the State.’’ The monitors are all part of the Air Quality Systems (AQS) and identification numbers. Annually, States develop and submit to EPA for approval statewide ambient monitoring network plans consistent with the requirements of 40 CFR Parts 50, 53, and 58. The annual network plan involves an evaluation of any proposed changes to the monitoring network, includes the annual ambient monitoring network design plan and a certified evaluation of the agency’s ambient monitors and auxiliary support equipment.18 The latest monitoring network plan approved for North Carolina was submitted to EPA on July 2, 2013, and on November 25, 2013, EPA approved this plan. North Carolina’s approved monitoring network plan can be accessed at www.regulations.gov using Docket ID No. EPA–R04–OAR–2014–0444. EPA has made the preliminary determination that North Carolina’s SIP and practices are adequate for the ambient air quality monitoring and data system related to the 2008 Lead NAAQS. 3. 110(a)(2)(C) Program for enforcement, prevention of significant deterioration (PSD) and new source 18 On occasion, proposed changes to the monitoring network are evaluated outside of the network plan approval process in accordance with 40 CFR Part 58. PO 00000 Frm 00022 Fmt 4702 Sfmt 4702 review (NSR): Section 110(a)(2)(C) requires that the SIPs include a program to provide for the enforcement of the measures described in section 110(a)(2)(A), and regulation of the modification and construction of any stationary source within the areas covered by the plan as necessary to assure that national ambient air quality standards are achieved, including a permit program. In this action, EPA is proposing to approve North Carolina’s infrastructure SIP submission for the 2008 Lead NAAQS with respect to the general requirement in section 110(a)(2)(C) to include a program in the SIP that provides for the enforcement of emission limits and control measures, the regulation of minor sources and modifications, and the enforcement of oxides of nitrogen (NOX) and volatile organic compounds (VOCs) emission limits to assist in the protection of air quality in nonattainment, attainment or unclassifiable areas. To meet these obligations, North Carolina cited regulations 15A NCAC 2D. 0500 ‘‘Emissions Control Standards;’’ 2D. 0530 ‘‘Prevention of Significant Deterioration;’’ and, 2D. 0531 ‘‘Sources in Nonattainment Area,’’ each of which pertain to the construction of any new major stationary source or any project at an existing major stationary source in an area designated as attainment or unclassifiable. EPA will be acting on the preconstruction PSD permitting program requirements of section 110(a)(2)(C) in a separate action. Enforcement: NCDAQ’s abovedescribed, SIP-approved regulations provide for enforcement of VOC and NOX emission limits and control measures and construction permitting for new or modified stationary sources. Preconstruction PSD Permitting for Major Sources: With respect to North Carolina’s infrastructure SIP submission related to the preconstruction PSD permitting requirements for major sources of section 110(a)(2)(C), EPA is not proposing any action today regarding these requirements and instead will act on this portion of the submission in a separate action. Regulation of minor sources and modifications: Section 110(a)(2)(C) also requires the SIP to include provisions that govern the minor source preconstruction program that regulates emissions of the 2008 Lead NAAQS. Regulation 15A NCAC 2Q .0300 ‘‘Construction Operation Permits,’’ governs the preconstruction permitting of modifications and construction of minor stationary sources. EPA has made the preliminary determination that North Carolina’s SIP and practices are adequate for E:\FR\FM\20NOP1.SGM 20NOP1 rmajette on DSK2VPTVN1PROD with PROPOSALS Federal Register / Vol. 79, No. 224 / Thursday, November 20, 2014 / Proposed Rules enforcement of control measures and regulation of minor sources and modifications related to the 2008 Lead NAAQS. 4. 110(a)(2)(D)(i) and (ii) Interstate and International transport provisions: Section 110(a)(2)(D)(i) has two components; 110(a)(2)(D)(i)(I) and 110(a)(2)(D)(II). Each of these components have two subparts resulting in four distinct components, commonly referred to as ‘‘prongs,’’ that must be addressed in infrastructure SIP submissions. The first two prongs, which are codified in section 110(a)(2)(D)(i)(I), are provisions that prohibit any source or other type of emissions activity in one state from contributing significantly to nonattainment of the NAAQS in another state (‘‘prong 1’’), and interfering with maintenance of the NAAQS in another state (‘‘prong 2’’). The third and fourth prongs, which are codified in section 110(a)(2)(D)(i)(II), are provisions that prohibit emissions activity in one state interfering with measures required to prevent significant deterioration of air quality in another state (‘‘prong 3’’), or to protect visibility in another state (‘‘prong 4’’). Section 110(a)(2)(D)(ii) requires SIPs to include provisions insuring compliance with sections 115 and 126 of the Act, relating to interstate and international pollution abatement. With respect to North Carolina’s infrastructure SIP submission related to the interstate transport requirements of section 110(a)(2)(D)(i)(II) (prong 3), EPA is not proposing any action today regarding this requirement and instead will act on this portion of the submission in a separate action. 110(a)(2)(D)(i)(I) prongs 1 and 2: Section 110(a)(2)(D)(i) requires infrastructure SIP submissions to include provisions prohibiting any source or other type of emissions activity in one state from contributing significantly to nonattainment in, or interfering with maintenance of the NAAQS in another state. The physical properties of lead prevent lead emissions from experiencing that same travel or formation phenomena as PM2.5 and ozone for interstate transport as outlined in prongs 1 and 2. More specifically, there is a sharp decrease in the lead concentrations, at least in the coarse fraction, as the distance from a lead source increases. EPA believes that the requirements of prongs 1 and 2 can be satisfied through a state’s assessment as to whether a lead source located within its State in close proximity to a state border has emissions that contribute significantly to the nonattainment or interfere with maintenance of the NAAQS in the VerDate Sep<11>2014 13:19 Nov 19, 2014 Jkt 235001 neighboring state. For example, EPA’s experience suggests that sources located more than two miles from the state border or that sources that emit less than 0.5 tpy generally appear unlikely to contribute significantly to the nonattainment in another state. North Carolina has one lead source that has emissions which exceed 0.5 tons per year (tpy), however, the source is located approximately 45 miles from the State border.19 As a result of its distance to the border, EPA believes it is unlikely to contribute significantly to the nonattainment or interfere with maintenance of the NAAQS in another state. Therefore, EPA has made the preliminary determination that North Carolina’s SIP meets the requirements of section 110(a)(2)(D)(i)(I). 110(a)(2)(D)(i)(II) Prong 3: With respect to North Carolina’s infrastructure SIP submission related to the interstate transport requirements of section 110(a)(2)(D)(i)(II) prong 3, EPA is not proposing any action today regarding these requirements and will act on this portion of the submission in a separate action. 110(a)(2)(D)(i)(II) prong 4: With regard to section 110(a)(2)(D)(i)(II), the visibility sub-element, referred to as prong 4, significant visibility impacts from stationary source lead emissions are expected to be limited to short distances from the source. Lead stationary sources in North Carolina are located distances from Class I areas such that visibility impacts are negligible. The 2011 Lead Infrastructure SIP Guidance notes that the lead constituent of PM would likely not travel far enough to affect Class 1 areas and that the visibility provisions of the CAA do not directly regulate lead. EPA therefore does not expect states to address visibility in lead infrastructure submittals. Thus, EPA concludes there are no new applicable visibility protection obligations under section 110(a)(2)(D)(i)(II) as a result of the 2008 Lead NAAQS. Accordingly, EPA has preliminarily determined that the North Carolina SIP meets the relevant visibility requirements of prong 4 of section 110(a)(2)(D)(i). 110(a)(2)(D)(ii)—Interstate and International transport provisions: Regulations 15A NCAC 2D .0530 ‘‘Prevention of Significant Deterioration’’ and 15A NCAC 2D .0531 ‘‘Sources of Nonattainment Areas’’ provide how NCDAQ will notify neighboring states of potential impacts 19 The one facility in North Carolina that has lead emissions greater than 0.5 tpy is the Saint Gobain Containers facility located at 2201 Firestone Pkwy Ne, Wilson, NC 27893. The lead emissions from this facility are .53 tpy. PO 00000 Frm 00023 Fmt 4702 Sfmt 4702 69087 from new or modified sources consistent with the requirements of 40 CFR 51.166. In addition, North Carolina does not have any pending obligation under sections 115 and 126 of the CAA. EPA has made the preliminary determination that North Carolina’s SIP and practices are adequate for insuring compliance with the applicable requirements relating to interstate and international pollution abatement for the 2008 Lead NAAQS. 6. 110(a)(2)(E) Adequate personnel, funding, and authority. 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. EPA is proposing to approve North Carolina’s SIP as meeting the requirements of subelements 110(a)(2)(E)(i) and (iii). EPA will act on sub-element (ii) in separate action. EPA’s rationale for today’s proposal respecting sub-element (i) and (iii) is described in turn below. To satisfy the requirements of sections 110(a)(2)(E)(i) and (iii), North Carolina’s infrastructure SIP submission cites regulation 15A NCAC 2Q. 0200 ‘‘Permit Fees,’’ which provides the mechanism by which stationary sources that emit air pollutants pay a fee based on the quantity of emissions emitted. State statutes NCGS 143–215.3 ‘‘General powers of Commission and Department: auxiliary powers,’’ and NCGS 143– 215.107(a)(1) ‘‘Air quality standards and classifications’’ provide NCDAQ with the statutory authority ‘‘[t]o prepare and develop, after proper study, a comprehensive plan or plans for the prevention, abatement and control of air pollution in the State or in any designated area of the State.’’ As further evidence of the adequacy of NCDAQ’s resources, EPA submitted a letter to North Carolina on February 28, 2014, outlining 105 grant commitments and the current status of these commitments for fiscal year 2013. The letter EPA submitted to North Carolina can be accessed at www.regulations.gov using Docket ID No. EPA–R04–OAR–2014– 0444. Annually, states update these grant commitments based on current SIP requirements, air quality planning, and applicable requirements related to the E:\FR\FM\20NOP1.SGM 20NOP1 rmajette on DSK2VPTVN1PROD with PROPOSALS 69088 Federal Register / Vol. 79, No. 224 / Thursday, November 20, 2014 / Proposed Rules NAAQS. North Carolina satisfactorily met all commitments agreed to in the Air Planning Agreement for fiscal year 2013, therefore North Carolina’s grants were finalized and closed out. With respect to North Carolina’s infrastructure SIP submission related to the state board requirements of section 110(a)(2)(E)(ii), EPA is not proposing any action today regarding this requirement and will act on this portion of the submission in a separate action. EPA has made the preliminary determination that North Carolina has adequate resources for implementation of sections 110(a)(2)(E)(i) and (iii) of the 2008 Lead NAAQS. 7. 110(a)(2)(F) Stationary source monitoring and reporting: North Carolina’s infrastructure SIP submission describes how the State establishes requirements for emissions compliance testing and utilizes emissions sampling and analysis. It further describes how the State ensures the quality of its data through observing emissions and monitoring operations. NCDAQ 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 incorporated into the SIP at 15A NCAC 2D .0604 ‘‘Exceptions to Monitoring and Reporting Requirements;’’ 15A NCAC 2D .0605 ‘‘General Recordkeeping and Reporting Requirements;’’ 15A NCAC 2D .0611 ‘‘Monitoring Emissions from Other Sources;’’ 15A NCAC 2D .0612 ‘‘Alternative Monitoring and Reporting Procedures;’’ 15A NCAC 2D .0613 ‘‘Quality Assurance Program;’’ and, 15A NCAC 2D .0614 ‘‘Compliance Assurance Monitoring.’’ In addition, Rule 15A NCAC 2D .0605(c) ‘‘General Recordkeeping and Reporting Requirements,’’ allows for the use of credible evidence in the event that the NCDAQ Director has evidence that a source is violating an emission standard or permit condition, the Director may require that the owner or operator of any source submit to the Director any information necessary to determine the compliance status of the source. In addition, EPA is unaware of any provision preventing the use of credible evidence in the North Carolina SIP. Stationary sources are required to submit periodic emissions reports to the State by Rule 15A NCAC 2Q .0207 ‘‘Annual Emissions Reporting.’’ In addition, North Carolina is required to submit emissions data to EPA for purposes of the National Emissions Inventory (NEI). The NEI is EPA’s VerDate Sep<11>2014 13:19 Nov 19, 2014 Jkt 235001 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. See 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 three years and report emissions for certain larger sources annually through EPA’s online Emissions Inventory System. States report emissions data for the six criteria pollutants and the precursors that form them—NOX, sulfur dioxide, ammonia, lead, carbon monoxide, particulate matter, and volatile organic compounds. Many states also voluntarily report emissions of hazardous air pollutants. North Carolina made its latest update to the 2011 NEI on June 3, 2014. 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 North Carolina’s SIP and practices are adequate for the stationary source monitoring systems obligations for the 2008 Lead NAAQS. 7. 110(a)(2)(G)—Emergency episodes: This section requires that states demonstrate authority comparable with section 303 of the CAA and adequate contingency plans to implement such authority. North Carolina’s infrastructure SIP submission cites 15A NCAC 2D .0300 ‘‘Air Pollution Emergencies’’ as identifying air pollution emergency episodes and preplanned abatement strategies, and providing the means to implement emergency air pollution episode measures. In addition, NCGS 143– 215.3(a)(12) provides NC DENR with the authority to declare an emergency when it finds that a generalized condition of water or air pollution which is causing imminent danger to the health or safety of the public. This statute also allows, in the absence of a generalized condition of air pollution, should the Secretary find ‘‘that the emissions from one or more air contaminant sources . . . is causing imminent danger to human health and safety or to fish and wildlife, he may with the concurrence of the Governor order the person or persons responsible for the operation or operations in question to immediately reduce or discontinue the emissions of air contaminants . . . or to take such other measures as are, in his judgment, necessary.’’ EPA also notes that NCDAQ PO 00000 Frm 00024 Fmt 4702 Sfmt 4702 maintains a Web site that provides the public with notice of the health hazards associated with Lead NAAQS exceedances, measures the public can take to help prevent such exceedances, and the ways in which the public can participate in the regulatory process. See http://www.ncair.org/news/. EPA has made the preliminary determination that North Carolina’s SIP and practices are adequate to satisfy the emergency powers obligations of the 2008 Lead NAAQS. 8. 110(a)(2)(H) Future SIP revisions: NCDAQ is responsible for adopting air quality rules and revising SIPs as needed to attain or maintain the NAAQS in North Carolina. Statutes NCGS 143–215.107(a)(1) and (a)(10) grant NCDAQ the broad authority to implement the CAA, and as such, provides NCDAQ the authority to prepare and develop, after proper study, a comprehensive plan for the prevention of air pollution. These statutes also provide NCDAQ the ability and authority to respond to calls for SIP revisions, and has provided a number of SIP revisions over the years for implementation of the NAAQS. Accordingly, EPA has made the preliminary determination that North Carolina’s SIP and practices adequately demonstrate a commitment to provide future SIP revisions related to the 2008 Lead NAAQS, when necessary. 9. 110(a)(2)(J): EPA is proposing to approve North Carolina’s infrastructure SIP for the 2008 Lead NAAQS with respect to the general requirement in section 110(a)(2)(J) to include a program in the SIP that provides for meeting the applicable consultation requirements of section 121, the public notification requirements of section 127, and visibility protection. With respect to North Carolina’s infrastructure SIP submission related to the preconstruction PSD permitting requirements, EPA is not proposing any action today regarding these requirements and instead will act on these portions of the submission in a separate action. EPA’s rationale for applicable consultation requirements of section 121, the public notification requirements of section 127, and visibility is described below. 110(a)(2)(J)(121 consultation) Consultation with government officials: 15A NCAC 2D.1600 ‘‘General Conformity;’’ 15A NCAC 2D .2000 ‘‘Transportation Conformity;’’ and15A NCAC 2D .0531 ‘‘Sources in Nonattainment Areas,’’ along with the Regional Haze SIP Plan (which allows for consultation between appropriate state, local, and tribal air pollution control agencies as well as the E:\FR\FM\20NOP1.SGM 20NOP1 rmajette on DSK2VPTVN1PROD with PROPOSALS Federal Register / Vol. 79, No. 224 / Thursday, November 20, 2014 / Proposed Rules corresponding Federal Land Managers), provide for consultation with government officials whose jurisdictions might be affected by SIP development activities. These consultation procedures were developed in coordination with the transportation partners in the State and are consistent with the approaches used for development of mobile inventories for SIPs. Implementation of transportation conformity as outlined in the consultation procedures requires NCDAQ to consult with federal, state and local transportation and air quality agency officials on the development of motor vehicle emissions budgets. EPA has made the preliminary determination that North Carolina’s SIP and practices adequately demonstrate that the State meets applicable requirements related to consultation with government officials for the 2008 Lead NAAQS when necessary. 110(a)(2)(J) (127 public notification) Public notification: 15A NCAC 2D .0300 ‘‘Air Pollution Emergencies’’ provides North Carolina with the authority to declare an emergency and notify the public accordingly when it finds that a generalized condition of water or air pollution which is causing imminent danger to the health or safety of the public. In addition, the North Carolina SIP process affords the public an opportunity to participate in regulatory and other efforts to improve air quality by holding public hearings for interested persons to appear and submit written or oral comments. For example, 15A NCAC 2D .0530 ‘‘Prevention of Significant Deterioration,’’ requires the owners and operators of major stationary sources and major modifications to apply for and receive, as appropriate, a permit as described in 15A NCAC 02Q .0300. 15A NCAC 02Q. 306 provides for public notice for comments with an opportunity to request a public hearing on the draft permits required pursuant to 15A NCAC 2D. 0530. EPA also notes that NCDAQ maintains a Web site that provides the public with notice of the health hazards associated with Lead NAAQS exceedances, measures the public can take to help prevent such exceedances, and the ways in which the public can participate in the regulatory process. See http://www.ncair.org/news/. EPA has made the preliminary determination that North Carolina’s SIP and practices adequately demonstrate the State’s ability to provide public notification related to the 2008 Lead NAAQS when necessary. 110(a)(2)(J) PSD and Visibility Protection: The 2011 Lead Infrastructure SIP Guidance notes that EPA does not VerDate Sep<11>2014 13:19 Nov 19, 2014 Jkt 235001 generally treat the visibility protection aspects of section 110(a)(2)(J) as applicable for purposes of the infrastructure SIP approval process. EPA recognizes that states are subject to visibility protection and regional haze program requirements under Part C of the Act (which includes sections 169A and 169B). However, in the event of the establishment of a new primary NAAQS, the visibility protection and regional haze program requirements under part C do not change. Thus, EPA concludes there are no new applicable visibility protection obligations under section 110(a)(2)(J) as a result of the 2008 Lead NAAQS, and as such, EPA is proposing to approve section 110(a)(2)(J) of NC DENR’s infrastructure SIP submission as it relates to visibility protection. 10. 110(a)(2)(K) Air quality and modeling/data: 15A NCAC 2D .0530 ‘‘Prevention of Significant Deterioration’’ and 15A NCAC 2D .0531 ‘‘Sources in Nonattainment Areas,’’ require that air modeling be conducted in accordance with 40 CFR part 51, Appendix W ‘‘Guideline on Air Quality Models.’’ These regulations demonstrate that North Carolina has the authority to perform air quality modeling and to provide relevant data for the purpose of predicting the effect on ambient air quality of the 2008 Lead NAAQS. Additionally, North Carolina supports a regional effort to coordinate the development of emissions inventories and conduct regional modeling for several NAAQS, including the 2008 Lead NAAQS, for the Southeastern states. Taken as a whole, North Carolina’s air quality regulations demonstrate that NCDAQ has the authority to provide relevant data for the purpose of predicting the effect on ambient air quality of the 2008 Lead NAAQS. EPA has made the preliminary determination that North Carolina’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 2008 Lead NAAQS when necessary. 11. 110(a)(2)(L) Permitting fees: This element necessitates that the SIP require the owner or operator of each major stationary source to pay to the permitting authority, as a condition of any permit required under the CAA, a fee sufficient to cover (i) the reasonable costs of reviewing and acting upon any application for such a permit, and (ii) if the owner or operator receives a permit for such source, the reasonable costs of implementing and enforcing the terms and conditions of any such permit (not including any court costs or other costs PO 00000 Frm 00025 Fmt 4702 Sfmt 4702 69089 associated with any enforcement action), until such fee requirement is superseded with respect to such sources by the Administrator’s approval of a fee program under title V. To satisfy these requirements, North Carolina’s infrastructure SIP submission cites NCGS 143–215.3 ‘‘General powers of Commission and Department; auxiliary Powers,’’ which directs NCDAQ to require a processing fee in an amount sufficient for the reasonable cost of reviewing and acting upon PSD and NNSR permits. Regulation 15A NCAC 2Q .0200 ‘‘Permit Fees,’’ implements this directive and requires the owner or operator of each major stationary source to pay to the permitting authority, as a condition of any permit required under the CAA, a sufficient fee to cover the costs of the permitting program. Additionally, North Carolina has a fully approved title V operating permit program at that covers the cost of implementation and enforcement of PSD and NNSR permits after they have been issued. EPA has made the preliminary determination that North Carolina’s practices adequately provide for permitting fees related to the 2008 Lead NAAQS, when necessary. 12. 110(a)(2)(M) Consultation/ participation by affected local entities: This element requires states to provide for consultation and participation in SIP development by local political subdivisions affected by the SIP. North Carolina 15A NCAC 2D .0530 ‘‘Prevention of Significant Deterioration,’’ and NCGS 150B–21.1 and –21.2 authorize and require NCDAQ to advise, consult, cooperate and enter into agreements with other agencies of the state, the Federal Government, other states, interstate agencies, groups, political subdivisions, and industries affected by the provisions of this act, rules, or policies of the Department. EPA has made the preliminary determination that North Carolina’s SIP and practices adequately demonstrate consultation with affected local entities related to the 2008 Lead NAAQS, when necessary. V. Proposed Action With the exception of the PSD permitting requirements for major sources of sections 110(a)(2)(C), prong 3 of (D)(i), and (J), and the state board requirements of section 110(a)(E)(ii), EPA is proposing to approve that NCDAQ’s infrastructure SIP submission, submitted June 20, 2012, for the 2008 Lead NAAQS meets the above described infrastructure SIP requirements. EPA is proposing to approve these portions of North Carolina’s infrastructure SIP submission for the Lead NAAQS E:\FR\FM\20NOP1.SGM 20NOP1 69090 Federal Register / Vol. 79, No. 224 / Thursday, November 20, 2014 / Proposed Rules rmajette on DSK2VPTVN1PROD with PROPOSALS because these aspects of the submission are consistent with section 110 of the CAA. EPA will address those portions of North Carolina’s infrastructure SIP submission not acted upon through this notice in a separate action. 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, the North Carolina SIP is not approved to apply on any Indian reservation land or in any other area VerDate Sep<11>2014 13:19 Nov 19, 2014 Jkt 235001 where EPA or an Indian tribe has demonstrated that a tribe has jurisdiction. In those areas of Indian country, the rule does not have tribal implications 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. List of Subjects in 40 CFR Part 52 Environmental protection, Air pollution control, Intergovernmental relations, Lead, and Recordkeeping requirements. Authority: 42 U.S.C. 7401 et seq. Dated: November 7, 2014. V. Anne Heard, Acting Regional Administrator, Region 4. [FR Doc. 2014–27504 Filed 11–19–14; 8:45 am] BILLING CODE 6560–50–P ENVIRONMENTAL PROTECTION AGENCY 40 CFR Part 52 [EPA–R04–OAR–2013–0772; FRL–9919–09– Region 4] Approval and Promulgation of Implementation Plans; North Carolina; Inspection and Maintenance Program Updates Environmental Protection Agency. ACTION: Proposed rule. AGENCY: The Environmental Protection Agency (EPA) is proposing to approve State Implementation Plan (SIP) revisions submitted by the State of North Carolina, through the North Carolina Department of Environment and Natural Resources on January 31, 2008, May 24, 2010, October 11, 2013, and February 11, 2014, pertaining to rules for changes for the North Carolina Inspection and Maintenance (I/M) program. Specifically, these SIP revisions update the North Carolina I/M program as well as repeal one rule from the federally-approved SIP. DATES: Written comments must be received on or before December 22, 2014. ADDRESSES: Submit your comments, identified by Docket ID No. EPA–R04– OAR–2013–0772, 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–2013– 0772,’’ Regulatory Development Section, SUMMARY: PO 00000 Frm 00026 Fmt 4702 Sfmt 4702 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, Chief, 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 a.m. to 4:30 p.m., excluding federal holidays. Instructions: Direct your comments to Docket ID No. EPA–R04–OAR–2013– 0772. 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 E:\FR\FM\20NOP1.SGM 20NOP1
[Federal Register Volume 79, Number 224 (Thursday, November 20, 2014)]
[Pages 69082-69090]
[FR Doc No: 2014-27504]
[EPA-R04-OAR-2014-0444; FRL-9919-49-Region 4]
Approval and Promulgation of Implementation Plans; North Carolina
Infrastructure Requirements for the 2008 Lead National Ambient Air
approve the July 20, 2012, State Implementation Plan (SIP) submission,
provided by the North Carolina Department of Environment and Natural
Resources (NC DENR), Division of Air Quality (NCDAQ) for inclusion into
the North Carolina SIP. This proposal pertains to the Clean Air Act
(CAA or the Act) infrastructure requirements for the 2008 Lead national
ambient air quality standards (NAAQS). The CAA requires that each state
adopt and submit a SIP for the implementation, maintenance, and
enforcement of each NAAQS promulgated by EPA, which is commonly
referred to as an ``infrastructure'' SIP. NCDAQ certified that the
North Carolina SIP contains provisions that ensure the 2008 Lead NAAQS
is implemented, enforced, and maintained in North Carolina (hereafter
deterioration (PSD) permitting and state boards requirements, EPA is
proposing to determine that North Carolina's infrastructure SIP
submission, provided to EPA on July 20, 2012, addresses the required
infrastructure elements for the 2008 Lead NAAQS.
DATES: Written comments must be received on or before December 22,
OAR-2014-0444, by one of the following methods:
4. Mail: ``EPA-R04-OAR-2014-0444,'' Regulatory Development Section,
Friday, 8:30 a.m. to 4:30 p.m., excluding Federal holidays.
2014-0444. EPA's policy is that all comments received will be included
restricted by statute. Do not submit through www.regulations.gov or
email, information that you consider to be CBI or otherwise protected.
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
in hard copy at the Regulatory Development Section, Air Planning
hours of business are Monday through Friday, 8:30 a.m. to 4:30 p.m.,
FOR FURTHER INFORMATION CONTACT: Zuri Farngalo, Regulatory Development
Street SW., Atlanta, Georgia 30303-8960. The telephone number is (404)
562-9152. Mr. Farngalo can be reached via electronic mail at
farngalo.zuri@epa.gov.
[[Page 69083]]
IV. What is EPA's analysis of how North Carolina addressed the
On October 5, 1978, EPA promulgated primary and secondary NAAQS for
Lead under section 109 of the Act. See 43 FR 46246. Both primary and
secondary standards were set at a level of 1.5 micrograms per cubic
meter ([mu]g/m\3\), measured as lead in total suspended particulate
matter (Pb-TSP), not to be exceeded by the maximum arithmetic mean
concentration averaged over a calendar quarter. This standard was based
on the August 7, 1977 Air Quality Criteria for Lead. On November 12,
2008 (75 FR 81126), EPA issued a final rule to revise the primary and
secondary Lead NAAQS. The revised primary and secondary Lead NAAQS were
revised to 0.15 [mu]g/m\3\. By statute, SIPs meeting the requirements
of sections 110(a)(1) and (2) are to be submitted by states within
three 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 October 15, 2011, for the 2008 Lead
NAAQS.\1\
110(a)(1) and (2). Unless otherwise indicated, the Title 15A
regulations of the North Carolina Administrative Code (``15A NCAC'')
cited throughout this rulemaking have either been approved, or
submitted for approval into North Carolina's federally-approved SIP.
The North Carolina General Statutes (``NCGS'') cited throughout this
rulemaking, however, are not approved into the North Carolina SIP
Today's action is proposing to approve North Carolina's
infrastructure submission for the applicable requirements of the Lead
NAAQS, with the exception of preconstruction PSD permitting
requirements for major sources of sections 110(a)(2)(C), prong 3 of
D(i), and (J) and the state board requirements of 110(E)(ii). With
respect to North Carolina's infrastructure SIP submission related to
the provisions pertaining to the PSD permitting requirements for major
sources of section 110(a)(2)(C), prong 3 of D(i), and (J), and the
state board requirements complying with section 128 of the CAA for
110(a)(2)(E)(ii), EPA is not proposing any action today regarding these
requirements. EPA will act on these portions of North Carolina's
submission in a separate action. This action is not approving any
specific rule, but rather proposing that North Carolina's already
approved SIP meets certain CAA requirements.
contains. In the case of the 2008 Lead NAAQS, states typically have met
the basic program elements required in section 110(a)(2) through
earlier SIP submissions in connection with the 1978 Lead NAAQS.
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 \2\ and in EPA's
October 14, 2011, memorandum entitled ``Guidance on Infrastructure
State Implementation Plan (SIP) Elements Required Under Sections
110(a)(1) and 110(a)(2) for the 2008 Lead (Pb) National Ambient Air
Quality Standards (NAAQS)'' (2011 Lead Infrastructure SIP Guidance).
in part D Title I of the CAA, and (2) submissions required by
110(a)(2)(C): Program for enforcement, prevention of
significant deterioration (PSD) and new source review (NSR).\3\
110(a)(2)(D): Interstate and international transport
110(a)(2)(E): Adequate personnel, funding, and authority.
110(a)(2)(G): Emergency episodes.
110(a)(2)(I): Nonattainment area plan or plan revision
under part D.\4\
public notification, and PSD and visibility protection.
110(a)(2)(M): Consultation/participation by affected local
EPA is acting upon the SIP submission from North Carolina that
110(a)(2) for the 2008 Lead NAAQS. Pursuant to section 110(a)(1),
states must make SIP submissions ``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 these SIP submissions are to provide for the
``implementation, maintenance, and enforcement'' of such NAAQS. The
statute directly imposes on states the duty to make these SIP
[[Page 69084]]
and the requirement to make the submissions is not conditioned upon
EPA's taking any action other than promulgating a new or revised NAAQS.
Section 110(a)(2) includes a list of specific elements that ``each such
plan'' submission must address.
to Acid Rain Program; Revisions to the NOX SIP Call;
Final Rule,'' 70 FR 25162, at 25163-65 (May 12, 2005) (explaining
relationship between timing requirement of section 110(a)(2)(D)
versus section 110(a)(2)(I)).
requirements, EPA can elect to act on such submissions either
individually or in a larger combined action.\8\ Similarly, EPA
interprets the CAA to allow it to take action on the individual parts
of one larger, comprehensive infrastructure SIP submission for a given
NAAQS without concurrent action on the entire submission. For example,
EPA has sometimes elected to act at different times on various elements
and sub-elements of the same infrastructure SIP submission.\9\
requirements'' of section 110(a)(2). Thus, for example, attainment
[[Page 69085]]
plan SIP submissions must meet the requirements of section 110(a)(2)(A)
issued the Lead Infrastructure SIP Guidance on October 14, 2011.\12\
EPA developed this document to provide states with up-to-date guidance
for the 2008 Lead infrastructure SIPs. Within this guidance, EPA
describes the duty of states to make infrastructure SIP submissions to
meet basic structural SIP requirements within three years of
promulgation of a new or revised NAAQS. EPA also made recommendations
about many specific subsections of section 110(a)(2) that are relevant
in the context of infrastructure SIP submissions. The guidance also
discusses the substantively important issues that are germane to
certain subsections of section 110(a)(2). Significantly, EPA interprets
sections 110(a)(1) and 110(a)(2) such that infrastructure SIP
submissions need to address certain issues and need not address others.
Accordingly, EPA reviews each infrastructure SIP submission for
compliance with the applicable statutory provisions of section
110(a)(2), as appropriate.\13\
(SIP) Elements Required under Clean Air Act Sections 110(a)(1) and
110(a)(2) for the 2008 Lead (Pb) National Ambient Air Quality
Standards (NAAQS),'' Memorandum from Stephen D. Page, October 14,
\13\ Although not intended to provide guidance for purposes of
infrastructure SIP submissions for the 2008 Lead NAAQS, EPA notes
that, following the 2011 Lead Infrastructure SIP Guidance, EPA
issued the ``Guidance on Infrastructure State Implementation Plan
110(a)(2).'' Memorandum from Stephen D. Page, September 13, 2013.
This 2013 guidance provides recommendations for air agencies'
development and the EPA's review of infrastructure SIPs for the 2008
ozone primary and secondary NAAQS, the 2010 primary nitrogen dioxide
(NO2) NAAQS, the 2010 primary sulfur dioxide
(SO2) NAAQS, and the 2012 primary fine particulate matter
(PM2.5) NAAQS, as well as infrastructure SIPs for new or
revised NAAQS promulgated in the future.
call'' whenever the Agency determines that a state's SIP is
substantially inadequate to attain or maintain the NAAQS, to mitigate
interstate transport, or to otherwise comply with the CAA.\14\ Section
110(k)(6) authorizes EPA to correct errors in past actions, such as
past approvals of SIP submissions.\15\ Significantly, EPA's
the course of addressing such deficiency in a subsequent action.\16\
\14\ For example, EPA issued a SIP call to Utah to address
\15\ EPA has used this authority to correct errors in past
\16\ See, e.g., EPA's disapproval of a SIP submission from
[[Page 69086]]
IV. What is EPA's analysis of how North Carolina addressed the elements
The North Carolina infrastructure submission addresses the
1. 110(a)(2)(A) Emission limits and other control measures: There
are several provisions within the North Carolina General Statutes
(NCGS) and the North Carolina Administrative Code (NCAC) that provide
NCDAQ with the necessary authority to adopt and enforce air quality
controls, which include enforceable emission limitations and other
control measures. Rules 15A NCAC 2D .0600 ``Monitoring: Recordkeeping:
Reporting;'' 15A NCAC 2D .1600 ``General Conformity;'' 15A NCAC 2D
.2200 ``Special Orders;'' and, 15A NCAC 2D .2600 ``Source Testing,''
provide enforceable emission limits and other control measures, means,
and techniques. In addition, NCGS 143-215.107(a)(5), ``Air quality
standards and classifications,'' provides North Carolina with the
authority to ``develop and adopt emission control standards as in the
judgment of the Commission may be necessary to prohibit, abate, or
control air pollution commensurate with established air quality
standards.'' EPA has made the preliminary determination that these
provisions and North Carolina's practices are adequate to protect the
2008 Lead NAAQS in the State.
Agency plans to address such state regulations in the future.\17\ In
the meantime, EPA encourages any state having a deficient SSM provision
to take steps to correct it as soon as possible.
\17\ On February 22, 2013, EPA published a proposed action in
Proposed Rule.'' 78 FR 12459.
discretion or variance provisions. 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: SIPs
are required to provide for the establishment and operation of ambient
air quality monitors; the compilation and analysis of ambient air
quality data; and the submission of these data to EPA upon request.
NCGS 143-215.107(a)(2), ``Air quality standards and classifications,''
along with the North Carolina Annual Monitoring Network Plan, provide
for an ambient air quality monitoring system in the State, which
includes the monitoring of lead at appropriate locations throughout the
state using the EPA approved Federal Reference Method or equivalent
monitors. NCGS 143-215.107(a)(2) also provides North Carolina with the
statutory authority to ``determine by means of field sampling and other
studies, including the examination of available data collected by any
local, State or federal agency or any person, the degree of air
contamination and air pollution in the State and the several areas of
the State.'' The monitors are all part of the Air Quality Systems (AQS)
and identification numbers. Annually, States develop and submit to EPA
for approval statewide ambient monitoring network plans consistent with
the requirements of 40 CFR Parts 50, 53, and 58. The annual network
plan involves an evaluation of any proposed changes to the monitoring
support equipment.\18\ The latest monitoring network plan approved for
North Carolina was submitted to EPA on July 2, 2013, and on November
25, 2013, EPA approved this plan. North Carolina's approved monitoring
network plan can be accessed at www.regulations.gov using Docket ID No.
EPA-R04-OAR-2014-0444. EPA has made the preliminary determination that
North Carolina's SIP and practices are adequate for the ambient air
quality monitoring and data system related to the 2008 Lead NAAQS.
\18\ On occasion, proposed changes to the monitoring network are
3. 110(a)(2)(C) Program for enforcement, prevention of significant
deterioration (PSD) and new source review (NSR): Section 110(a)(2)(C)
requires that the SIPs include a program to provide for the enforcement
of the measures described in section 110(a)(2)(A), and regulation of
the modification and construction of any stationary source within the
areas covered by the plan as necessary to assure that national ambient
air quality standards are achieved, including a permit program. In this
action, EPA is proposing to approve North Carolina's infrastructure SIP
submission for the 2008 Lead NAAQS with respect to the general
requirement in section 110(a)(2)(C) to include a program in the SIP
that provides for the enforcement of emission limits and control
measures, the regulation of minor sources and modifications, and the
enforcement of oxides of nitrogen (NOX) and volatile organic
compounds (VOCs) emission limits to assist in the protection of air
quality in nonattainment, attainment or unclassifiable areas. To meet
these obligations, North Carolina cited regulations 15A NCAC 2D. 0500
``Emissions Control Standards;'' 2D. 0530 ``Prevention of Significant
Deterioration;'' and, 2D. 0531 ``Sources in Nonattainment Area,'' each
of which pertain to the construction of any new major stationary source
or any project at an existing major stationary source in an area
designated as attainment or unclassifiable. EPA will be acting on the
preconstruction PSD permitting program requirements of section
110(a)(2)(C) in a separate action.
Enforcement: NCDAQ's above-described, SIP-approved regulations
North Carolina's infrastructure SIP submission related to the
source pre-construction program that regulates emissions of the 2008
Lead NAAQS. Regulation 15A NCAC 2Q .0300 ``Construction Operation
Permits,'' governs the preconstruction permitting of modifications and
EPA has made the preliminary determination that North Carolina's
SIP and practices are adequate for
[[Page 69087]]
enforcement of control measures and regulation of minor sources and
modifications related to the 2008 Lead NAAQS.
4. 110(a)(2)(D)(i) and (ii) Interstate and International transport
provisions: Section 110(a)(2)(D)(i) has two components;
110(a)(2)(D)(i)(I) and 110(a)(2)(D)(II). Each of these components have
two subparts resulting in four distinct components, commonly referred
to as ``prongs,'' that must be addressed in infrastructure SIP
submissions. The first two prongs, which are codified in section
110(a)(2)(D)(i)(I), are provisions that prohibit any source or other
type of emissions activity in one state from contributing significantly
to nonattainment of the NAAQS in another state (``prong 1''), and
protect visibility in another state (``prong 4''). Section
110(a)(2)(D)(ii) requires SIPs to include provisions insuring
compliance with sections 115 and 126 of the Act, relating to interstate
and international pollution abatement.
With respect to North Carolina's infrastructure SIP submission
related to the interstate transport requirements of section
110(a)(2)(D)(i)(II) (prong 3), EPA is not proposing any action today
regarding this requirement and instead will act on this portion of the
110(a)(2)(D)(i)(I) prongs 1 and 2: Section 110(a)(2)(D)(i) requires
infrastructure SIP submissions to include provisions prohibiting any
source or other type of emissions activity in one state from
contributing significantly to nonattainment in, or interfering with
maintenance of the NAAQS in another state. The physical properties of
lead prevent lead emissions from experiencing that same travel or
formation phenomena as PM2.5 and ozone for interstate
transport as outlined in prongs 1 and 2. More specifically, there is a
sharp decrease in the lead concentrations, at least in the coarse
fraction, as the distance from a lead source increases. EPA believes
that the requirements of prongs 1 and 2 can be satisfied through a
state's assessment as to whether a lead source located within its State
in close proximity to a state border has emissions that contribute
significantly to the nonattainment or interfere with maintenance of the
NAAQS in the neighboring state. For example, EPA's experience suggests
that sources located more than two miles from the state border or that
sources that emit less than 0.5 tpy generally appear unlikely to
contribute significantly to the nonattainment in another state. North
Carolina has one lead source that has emissions which exceed 0.5 tons
per year (tpy), however, the source is located approximately 45 miles
from the State border.\19\ As a result of its distance to the border,
EPA believes it is unlikely to contribute significantly to the
nonattainment or interfere with maintenance of the NAAQS in another
state. Therefore, EPA has made the preliminary determination that North
Carolina's SIP meets the requirements of section 110(a)(2)(D)(i)(I).
\19\ The one facility in North Carolina that has lead emissions
greater than 0.5 tpy is the Saint Gobain Containers facility located
at 2201 Firestone Pkwy Ne, Wilson, NC 27893. The lead emissions from
this facility are .53 tpy.
110(a)(2)(D)(i)(II) Prong 3: With respect to North Carolina's
infrastructure SIP submission related to the interstate transport
requirements of section 110(a)(2)(D)(i)(II) prong 3, EPA is not
proposing any action today regarding these requirements and will act on
this portion of the submission in a separate action.
110(a)(2)(D)(i)(II) prong 4: With regard to section
110(a)(2)(D)(i)(II), the visibility sub-element, referred to as prong
4, significant visibility impacts from stationary source lead emissions
are expected to be limited to short distances from the source. Lead
stationary sources in North Carolina are located distances from Class I
areas such that visibility impacts are negligible. The 2011 Lead
Infrastructure SIP Guidance notes that the lead constituent of PM would
likely not travel far enough to affect Class 1 areas and that the
visibility provisions of the CAA do not directly regulate lead. EPA
therefore does not expect states to address visibility in lead
infrastructure submittals. Thus, EPA concludes there are no new
applicable visibility protection obligations under section
110(a)(2)(D)(i)(II) as a result of the 2008 Lead NAAQS. Accordingly,
EPA has preliminarily determined that the North Carolina SIP meets the
relevant visibility requirements of prong 4 of section 110(a)(2)(D)(i).
110(a)(2)(D)(ii)--Interstate and International transport
provisions: Regulations 15A NCAC 2D .0530 ``Prevention of Significant
Deterioration'' and 15A NCAC 2D .0531 ``Sources of Nonattainment
Areas'' provide how NCDAQ will notify neighboring states of potential
impacts from new or modified sources consistent with the requirements
of 40 CFR 51.166. In addition, North Carolina does not have any pending
obligation under sections 115 and 126 of the CAA. EPA has made the
preliminary determination that North Carolina's SIP and practices are
adequate for insuring compliance with the applicable requirements
relating to interstate and international pollution abatement for the
2008 Lead NAAQS.
6. 110(a)(2)(E) Adequate personnel, funding, and authority. Section
North Carolina's SIP as meeting the requirements of sub-elements
110(a)(2)(E)(i) and (iii). EPA will act on sub-element (ii) in separate
action. EPA's rationale for today's proposal respecting sub-element (i)
and (iii) is described in turn below.
To satisfy the requirements of sections 110(a)(2)(E)(i) and (iii),
North Carolina's infrastructure SIP submission cites regulation 15A
NCAC 2Q. 0200 ``Permit Fees,'' which provides the mechanism by which
stationary sources that emit air pollutants pay a fee based on the
quantity of emissions emitted. State statutes NCGS 143-215.3 ``General
powers of Commission and Department: auxiliary powers,'' and NCGS 143-
215.107(a)(1) ``Air quality standards and classifications'' provide
NCDAQ with the statutory authority ``[t]o prepare and develop, after
proper study, a comprehensive plan or plans for the prevention,
abatement and control of air pollution in the State or in any
designated area of the State.'' As further evidence of the adequacy of
NCDAQ's resources, EPA submitted a letter to North Carolina on February
28, 2014, outlining 105 grant commitments and the current status of
these commitments for fiscal year 2013. The letter EPA submitted to
North Carolina can be accessed at www.regulations.gov using Docket ID
No. EPA-R04-OAR-2014-0444. Annually, states update these grant
commitments based on current SIP requirements, air quality planning,
and applicable requirements related to the
[[Page 69088]]
NAAQS. North Carolina satisfactorily met all commitments agreed to in
the Air Planning Agreement for fiscal year 2013, therefore North
Carolina's grants were finalized and closed out.
related to the state board requirements of section 110(a)(2)(E)(ii),
EPA is not proposing any action today regarding this requirement and
will act on this portion of the submission in a separate action.
EPA has made the preliminary determination that North Carolina has
adequate resources for implementation of sections 110(a)(2)(E)(i) and
(iii) of the 2008 Lead NAAQS.
7. 110(a)(2)(F) Stationary source monitoring and reporting: North
Carolina's infrastructure SIP submission describes how the State
establishes requirements for emissions compliance testing and utilizes
emissions sampling and analysis. It further describes how the State
ensures the quality of its data through observing emissions and
monitoring operations. NCDAQ uses these data to track progress towards
with emission regulations and additional EPA requirements. These
requirements are incorporated into the SIP at 15A NCAC 2D .0604
``Exceptions to Monitoring and Reporting Requirements;'' 15A NCAC 2D
.0605 ``General Recordkeeping and Reporting Requirements;'' 15A NCAC 2D
.0611 ``Monitoring Emissions from Other Sources;'' 15A NCAC 2D .0612
``Alternative Monitoring and Reporting Procedures;'' 15A NCAC 2D .0613
``Quality Assurance Program;'' and, 15A NCAC 2D .0614 ``Compliance
Assurance Monitoring.'' In addition, Rule 15A NCAC 2D .0605(c)
``General Recordkeeping and Reporting Requirements,'' allows for the
use of credible evidence in the event that the NCDAQ Director has
evidence that a source is violating an emission standard or permit
condition, the Director may require that the owner or operator of any
source submit to the Director any information necessary to determine
the compliance status of the source. In addition, EPA is unaware of any
provision preventing the use of credible evidence in the North Carolina
Stationary sources are required to submit periodic emissions
reports to the State by Rule 15A NCAC 2Q .0207 ``Annual Emissions
Reporting.'' In addition, North Carolina 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. See 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 three years and report
emissions for certain larger sources annually through EPA's online
Emissions Inventory System. States report emissions data for the six
criteria pollutants and the precursors that form them--NOX,
sulfur dioxide, ammonia, lead, carbon monoxide, particulate matter, and
volatile organic compounds. Many states also voluntarily report
emissions of hazardous air pollutants. North Carolina made its latest
update to the 2011 NEI on June 3, 2014. 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
North Carolina's SIP and practices are adequate for the stationary
source monitoring systems obligations for the 2008 Lead NAAQS.
7. 110(a)(2)(G)--Emergency episodes: This section requires that
states demonstrate authority comparable with section 303 of the CAA and
adequate contingency plans to implement such authority. North
Carolina's infrastructure SIP submission cites 15A NCAC 2D .0300 ``Air
Pollution Emergencies'' as identifying air pollution emergency episodes
and preplanned abatement strategies, and providing the means to
implement emergency air pollution episode measures. In addition, NCGS
143-215.3(a)(12) provides NC DENR with the authority to declare an
emergency when it finds that a generalized condition of water or air
pollution which is causing imminent danger to the health or safety of
the public. This statute also allows, in the absence of a generalized
condition of air pollution, should the Secretary find ``that the
emissions from one or more air contaminant sources . . . is causing
imminent danger to human health and safety or to fish and wildlife, he
may with the concurrence of the Governor order the person or persons
responsible for the operation or operations in question to immediately
reduce or discontinue the emissions of air contaminants . . . or to
take such other measures as are, in his judgment, necessary.'' EPA also
notes that NCDAQ maintains a Web site that provides the public with
notice of the health hazards associated with Lead NAAQS exceedances,
measures the public can take to help prevent such exceedances, and the
ways in which the public can participate in the regulatory process. See
http://www.ncair.org/news/. EPA has made the preliminary determination
that North Carolina's SIP and practices are adequate to satisfy the
emergency powers obligations of the 2008 Lead NAAQS.
8. 110(a)(2)(H) Future SIP revisions: NCDAQ is responsible for
adopting air quality rules and revising SIPs as needed to attain or
maintain the NAAQS in North Carolina. Statutes NCGS 143-215.107(a)(1)
and (a)(10) grant NCDAQ the broad authority to implement the CAA, and
as such, provides NCDAQ the authority to prepare and develop, after
proper study, a comprehensive plan for the prevention of air pollution.
These statutes also provide NCDAQ the ability and authority to respond
to calls for SIP revisions, and has provided a number of SIP revisions
over the years for implementation of the NAAQS. Accordingly, EPA has
made the preliminary determination that North Carolina's SIP and
practices adequately demonstrate a commitment to provide future SIP
revisions related to the 2008 Lead NAAQS, when necessary.
9. 110(a)(2)(J): EPA is proposing to approve North Carolina's
infrastructure SIP for the 2008 Lead NAAQS with respect to the general
requirement in section 110(a)(2)(J) to include a program in the SIP
that provides for meeting the applicable consultation requirements of
section 121, the public notification requirements of section 127, and
visibility protection. With respect to North Carolina's infrastructure
SIP submission related to the preconstruction PSD permitting
requirements, EPA is not proposing any action today regarding these
requirements and instead will act on these portions of the submission
in a separate action. EPA's rationale for applicable consultation
requirements of section 121, the public notification requirements of
section 127, and visibility is described below.
110(a)(2)(J)(121 consultation) Consultation with government
officials: 15A NCAC 2D.1600 ``General Conformity;'' 15A NCAC 2D .2000
``Transportation Conformity;'' and15A NCAC 2D .0531 ``Sources in
Nonattainment Areas,'' along with the Regional Haze SIP Plan (which
allows for consultation between appropriate state, local, and tribal
air pollution control agencies as well as the
[[Page 69089]]
development activities. These consultation procedures were developed in
coordination with the transportation partners in the State and are
consistent with the approaches used for development of mobile
inventories for SIPs. Implementation of transportation conformity as
outlined in the consultation procedures requires NCDAQ to consult with
federal, state and local transportation and air quality agency
officials on the development of motor vehicle emissions budgets. EPA
has made the preliminary determination that North Carolina's SIP and
practices adequately demonstrate that the State meets applicable
requirements related to consultation with government officials for the
2008 Lead NAAQS when necessary.
110(a)(2)(J) (127 public notification) Public notification: 15A
NCAC 2D .0300 ``Air Pollution Emergencies'' provides North Carolina
with the authority to declare an emergency and notify the public
accordingly when it finds that a generalized condition of water or air
the public. In addition, the North Carolina SIP process affords the
public an opportunity to participate in regulatory and other efforts to
improve air quality by holding public hearings for interested persons
to appear and submit written or oral comments. For example, 15A NCAC 2D
.0530 ``Prevention of Significant Deterioration,'' requires the owners
and operators of major stationary sources and major modifications to
apply for and receive, as appropriate, a permit as described in 15A
NCAC 02Q .0300. 15A NCAC 02Q. 306 provides for public notice for
comments with an opportunity to request a public hearing on the draft
permits required pursuant to 15A NCAC 2D. 0530. EPA also notes that
NCDAQ maintains a Web site that provides the public with notice of the
health hazards associated with Lead NAAQS exceedances, measures the
public can take to help prevent such exceedances, and the ways in which
the public can participate in the regulatory process. See http://www.ncair.org/news/.
SIP and practices adequately demonstrate the State's ability to provide
public notification related to the 2008 Lead NAAQS when necessary.
110(a)(2)(J) PSD and Visibility Protection: The 2011 Lead
Infrastructure SIP Guidance notes that EPA does not generally treat the
visibility protection aspects of section 110(a)(2)(J) as applicable for
purposes of the infrastructure SIP approval process. EPA recognizes
that states are subject to visibility protection and regional haze
program requirements under Part C of the Act (which includes sections
169A and 169B). However, in the event of the establishment of a new
primary NAAQS, the visibility protection and regional haze program
requirements under part C do not change. Thus, EPA concludes there are
no new applicable visibility protection obligations under section
110(a)(2)(J) as a result of the 2008 Lead NAAQS, and as such, EPA is
proposing to approve section 110(a)(2)(J) of NC DENR's infrastructure
SIP submission as it relates to visibility protection.
10. 110(a)(2)(K) Air quality and modeling/data: 15A NCAC 2D .0530
``Prevention of Significant Deterioration'' and 15A NCAC 2D .0531
``Sources in Nonattainment Areas,'' require that air modeling be
conducted in accordance with 40 CFR part 51, Appendix W ``Guideline on
Air Quality Models.'' These regulations demonstrate that North Carolina
has the authority to perform air quality modeling and to provide
quality of the 2008 Lead NAAQS. Additionally, North Carolina supports a
regional effort to coordinate the development of emissions inventories
and conduct regional modeling for several NAAQS, including the 2008
Lead NAAQS, for the Southeastern states. Taken as a whole, North
Carolina's air quality regulations demonstrate that NCDAQ has the
authority to provide relevant data for the purpose of predicting the
effect on ambient air quality of the 2008 Lead NAAQS. EPA has made the
preliminary determination that North Carolina'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 2008 Lead NAAQS when necessary.
11. 110(a)(2)(L) Permitting fees: This element necessitates that
the SIP require the owner or operator of each major stationary source
to pay to the permitting authority, as a condition of any permit
required under the CAA, a fee sufficient to cover (i) the reasonable
costs of reviewing and acting upon any application for such a permit,
and (ii) if the owner or operator receives a permit for such source,
the reasonable costs of implementing and enforcing the terms and
conditions of any such permit (not including any court costs or other
costs associated with any enforcement action), until such fee
requirement is superseded with respect to such sources by the
Administrator's approval of a fee program under title V.
To satisfy these requirements, North Carolina's infrastructure SIP
submission cites NCGS 143-215.3 ``General powers of Commission and
Department; auxiliary Powers,'' which directs NCDAQ to require a
processing fee in an amount sufficient for the reasonable cost of
reviewing and acting upon PSD and NNSR permits. Regulation 15A NCAC 2Q
.0200 ``Permit Fees,'' implements this directive and requires the owner
or operator of each major stationary source to pay to the permitting
authority, as a condition of any permit required under the CAA, a
sufficient fee to cover the costs of the permitting program.
Additionally, North Carolina has a fully approved title V operating
permit program at that covers the cost of implementation and
enforcement of PSD and NNSR permits after they have been issued. EPA
has made the preliminary determination that North Carolina's practices
adequately provide for permitting fees related to the 2008 Lead NAAQS,
12. 110(a)(2)(M) Consultation/participation by affected local
entities: This element requires states to provide for consultation and
participation in SIP development by local political subdivisions
affected by the SIP. North Carolina 15A NCAC 2D .0530 ``Prevention of
Significant Deterioration,'' and NCGS 150B-21.1 and -21.2 authorize and
require NCDAQ to advise, consult, cooperate and enter into agreements
with other agencies of the state, the Federal Government, other states,
interstate agencies, groups, political subdivisions, and industries
affected by the provisions of this act, rules, or policies of the
Department. EPA has made the preliminary determination that North
Carolina's SIP and practices adequately demonstrate consultation with
affected local entities related to the 2008 Lead NAAQS, when necessary.
With the exception of the PSD permitting requirements for major
sources of sections 110(a)(2)(C), prong 3 of (D)(i), and (J), and the
state board requirements of section 110(a)(E)(ii), EPA is proposing to
approve that NCDAQ's infrastructure SIP submission, submitted June 20,
2012, for the 2008 Lead NAAQS meets the above described infrastructure
SIP requirements. EPA is proposing to approve these portions of North
Carolina's infrastructure SIP submission for the Lead NAAQS
[[Page 69090]]
because these aspects of the submission are consistent with section 110
of the CAA. EPA will address those portions of North Carolina's
infrastructure SIP submission not acted upon through this notice in a
separate action.
In addition, the North Carolina SIP is not approved to apply on any
Indian reservation land or in any other area where EPA or an Indian
tribe has demonstrated that a tribe has jurisdiction. In those areas of
Indian country, the rule does not have tribal implications 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
relations, Lead, and Recordkeeping requirements.
[FR Doc. 2014-27504 Filed 11-19-14; 8:45 am]