Source: https://regulations.justia.com/regulations/fedreg/2007/10/24/E7-20942.html
Timestamp: 2020-04-05 23:55:59
Document Index: 496412813

Matched Legal Cases: ['arts 52', 'art 2', 'art 1', 'art 2', 'art 1', 'art 2', 'art 1', 'art 2', 'art 1', 'art 50', 'art 50', 'art 81', 'art 50', 'art 50', 'art 58', 'art 58', 'art 58', 'art 1', 'art 1', 'art 2', 'art 1', 'art 2', 'art 2', 'art 1', 'art 1', 'art 2', 'art 2', 'art 2', 'art 2', 'art 93', 'art 58', 'art 51', 'art 58', 'art 93', '§ 51', 'art 93', 'art 52', 'art 81', 'arts 1540', 'art 2', 'art\n1', 'art 2', 'art 1', 'art 2', 'art 1', 'art 50', 'art 81', 'art 50', 'art 58', 'art 58', 'art 1', 'art 1', 'art 2', 'art 1', 'art 1', 'art 2', 'art 2', 'art 2', 'art 2', 'art 93', 'art 51', 'art 58']

Approval and Promulgation of Air Quality Implementation Plans; Pennsylvania; Redesignation of the York (York and Adams Counties) 8-Hour Ozone Nonattainment Area to Attainment and Approval of the Area's Maintenance Plan and 2002 Base Year Inventory, 60296-60307 [E7-20942] :: Environmental Protection Agency :: Regulation Tracker :: Justia
Justia Regulation Tracker Environmental Protection Agency Approval and Promulgation of Air Quality Implementation Plans; Pennsylvania; Redesignation of the York (York and Adams Counties) 8-Hour Ozone Nonattainment Area to Attainment and Approval of the Area's Maintenance Plan and 2002 Base Year Inventory, 60296-60307 [E7-20942]
Approval and Promulgation of Air Quality Implementation Plans; Pennsylvania; Redesignation of the York (York and Adams Counties) 8-Hour Ozone Nonattainment Area to Attainment and Approval of the Area's Maintenance Plan and 2002 Base Year Inventory, 60296-60307 [E7-20942]
Download as PDF 60296 Federal Register / Vol. 72, No. 205 / Wednesday, October 24, 2007 / Proposed Rules Written comments must be received on or before November 23, 2007. DATES: ENVIRONMENTAL PROTECTION AGENCY 40 CFR Parts 52 and 81 [EPA–R03–OAR–2007–0625; FRL–8485–9] Approval and Promulgation of Air Quality Implementation Plans; Pennsylvania; Redesignation of the York (York and Adams Counties) 8Hour Ozone Nonattainment Area to Attainment and Approval of the Area’s Maintenance Plan and 2002 Base Year Inventory Environmental Protection Agency (EPA). AGENCY: yshivers on PROD1PC62 with PROPOSALS ACTION: Proposed rule. SUMMARY: EPA is proposing to approve a redesignation request and State Implementation Plan (SIP) revisions submitted by the Commonwealth of Pennsylvania. The Pennsylvania Department of Environmental Protection (PADEP) is requesting that the York (York and Adams Counties) ozone nonattainment area (York Area) be redesignated as attainment for the 8hour ozone national ambient air quality standard (NAAQS). EPA is proposing to approve the ozone redesignation request for the York Area. In conjunction with its redesignation request, the Commonwealth submitted a SIP revision consisting of a maintenance plan for the York Area that provides for continued attainment of the 8-hour ozone NAAQS for at least 10 years after redesignation. EPA is proposing to make a determination that the York Area has attained the 8-hour ozone NAAQS, based upon three years of complete, quality-assured ambient air quality monitoring data for 2004–2006. EPA’s proposed approval of the 8-hour ozone redesignation request is based on its determination that the York Area has met the criteria for redesignation to attainment specified in the Clean Air Act (CAA). In addition, the Commonwealth has also submitted a 2002 base year inventory for the York Area which EPA is proposing to approve as a SIP revision. EPA is also providing information on the status of its adequacy determination for the motor vehicle emission budgets (MVEBs) that are identified in the maintenance plan for the York Area for purposes of transportation conformity, which EPA is also proposing to approve. EPA is proposing approval of the redesignation request and of the maintenance plan and 2002 base year inventory SIP revisions in accordance with the requirements of the CAA. VerDate Aug<31>2005 15:24 Oct 23, 2007 Submit your comments, identified by Docket ID Number EPA– R03–OAR–2007–0625 by one of the following methods: A. http://www.regulations.gov. Follow the on-line instructions for submitting comments. B. E-mail: powers.marilyn@epa.gov. C. Mail: EPA–R03–OAR–2007–0625, Marilyn Powers, Acting Chief, Air Quality Planning Branch, Mailcode 3AP21, U.S. Environmental Protection Agency, Region III, 1650 Arch Street, Philadelphia, Pennsylvania 19103. D. Hand Delivery: At the previouslylisted EPA Region III address. Such deliveries are only accepted during the Docket’s normal hours of operation, and special arrangements should be made for deliveries of boxed information. Instructions: Direct your comments to Docket ID No. EPA–R03–OAR–2007– 0625. 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 information that you consider to be CBI or otherwise protected through www.regulations.gov or e-mail. 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 e-mail 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. 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 ADDRESSES: Jkt 214001 PO 00000 Frm 00012 Fmt 4702 Sfmt 4702 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 during normal business hours at the Air Protection Division, U.S. Environmental Protection Agency, Region III, 1650 Arch Street, Philadelphia, Pennsylvania 19103. Copies of the State submittal are available at the Pennsylvania Department of Environmental Protection Bureau of Air Quality Control, P.O. Box 8468, 400 Market Street, Harrisburg, Pennsylvania 17105. FOR FURTHER INFORMATION CONTACT: LaKeshia Robertson, (215) 814–2113, or by e-mail at robertson.lakeshia@epa.gov. SUPPLEMENTARY INFORMATION: Throughout this document whenever ‘‘we,’’ ‘‘us,’’ or ‘‘our’’ is used, we mean EPA. Table of Contents I. What Are the Actions EPA Is Proposing To Take? II. What Is the Background for These Proposed Actions? III. What Are the Criteria for Redesignation to Attainment? IV. Why Is EPA Taking These Actions? V. What Would Be the Effect of These Actions? VI. What Is EPA’s Analysis of the Commonwealth’s Request? VII. Are the Motor Vehicle Emissions Budgets Established and Identified in the York Area Maintenance Plan Adequate and Approvable? VIII. Proposed Actions IX. Statutory and Executive Order Reviews I. What Are the Actions EPA Is Proposing To Take? On June 14, 2007, PADEP formally submitted a request to redesignate the York Area from nonattainment to attainment of the 8-hour NAAQS for ozone. Concurrently, Pennsylvania submitted a maintenance plan for the York Area as a SIP revision to ensure continued attainment in the area over the next 11 years. Pennsylvania also submitted a 2002 base year inventory for the York Area as a SIP revision. The York Area is currently designated a basic 8-hour ozone nonattainment area. EPA is proposing to determine that the York Area has attained the 8-hour ozone NAAQS and that it has met the requirements for redesignation pursuant to section 107(d)(3)(E) of the CAA. EPA is, therefore, proposing to approve the redesignation request to change the designation of the York Area from nonattainment to attainment for the 8- E:\FR\FM\24OCP1.SGM 24OCP1 Federal Register / Vol. 72, No. 205 / Wednesday, October 24, 2007 / Proposed Rules hour ozone NAAQS. EPA is also proposing to approve the York Area maintenance plan as a SIP revision (such approval being one of the CAA criteria for redesignation to attainment status). The maintenance plan is designed to ensure continued attainment in the York Area for the next 11 years. EPA is also proposing to approve the 2002 base year inventory for the York Area as a SIP revision. Additionally, EPA is announcing its action on the adequacy process for the MVEBs identified in the York maintenance plan, and proposing to approve the MVEBs identified for volatile organic compounds (VOCs) and nitrogen oxides (NOX) for the York Area for transportation conformity purposes. yshivers on PROD1PC62 with PROPOSALS II. What Is the Background for These Proposed Actions? A. General Ground-level ozone is not emitted directly by sources. Rather, emissions of NOX and VOC react in the presence of sunlight to form ground-level ozone. The air pollutants NOX and VOC are referred to as precursors of ozone. The CAA establishes a process for air quality management through the attainment and maintenance of the NAAQS. On July 18, 1997, EPA promulgated a revised 8-hour ozone standard of 0.08 parts per million (ppm). This new standard is more stringent than the previous 1-hour standard. EPA designated, as nonattainment, any area violating the 8-hour ozone NAAQS based on the air quality data for the three years of 2001–2003. These were the most recent three years of data at the time EPA designated 8-hour areas. The York Area was designated a basic 8-hour ozone nonattainment area in a Federal Register notice signed on April 15, 2004 and published on April 30, 2004 (69 FR 23857), based on its exceedance of the 8-hour health-based standard for ozone during the years 2001–2003. On April 30, 2004, EPA issued a final rule (69 FR 23951, 23996) to revoke the 1-hour ozone NAAQS in the York Area (as well as most other areas of the country) effective June 15, 2005. See, 40 CFR 50.9(b); 69 FR at 23966 (April 30, 2004); and 70 FR 44470 (August 3, 2005). However, on December 22, 2006, the U.S. Court of Appeals for the District of Columbia Circuit vacated EPA’s Phase 1 Implementation Rule for the 8-hour Ozone Standard. (69 FR 23951, April 30, 2004). South Coast Air Quality Management Dist. v. EPA, 472 F.3d 882 (D.C. Cir. 2006) (hereafter ‘‘South Coast’’). On June 8, 2007, in South Coast Air Quality Management Dist. v. EPA, VerDate Aug<31>2005 15:24 Oct 23, 2007 Jkt 214001 Docket No. 04–1201, in response to several petitions for rehearing, the D.C. Circuit clarified that the Phase 1 Rule was vacated only with regard to those parts of the rule that had been successfully challenged. Therefore, the Phase 1 Rule provisions related to classifications for areas currently classified under subpart 2 of Title I, part D of the CAA as 8-hour nonattainment areas, the 8-hour attainment dates and the timing for emissions reductions needed for attainment of the 8-hour ozone NAAQS remain effective. The June 8 decision left intact the Court’s rejection of EPA’s reasons for implementing the 8-hour standard in certain nonattainment areas under Subpart 1 in lieu of subpart 2. By limiting the vacatur, the Court let stand EPA’s revocation of the 1-hour standard and those anti-backsliding provisions of the Phase 1 Rule that had not been successfully challenged. The June 8 decision reaffirmed the December 22, 2006 decision that EPA had improperly failed to retain measures required for 1hour nonattainment areas under the anti-backsliding provisions of the regulations: (1) Nonattainment area New Source Review (NSR) requirements based on an area’s 1-hour nonattainment classification; (2) Section 185 penalty fees for 1-hour severe or extreme nonattainment areas; (3) measures to be implemented pursuant to section 172(c)(9) or 182(c)(9) of the CAA, on the contingency of an area not making reasonable further progress toward attainment of the 1-hour NAAQS, or for failure to attain that NAAQS. In addition, the June 8 decision clarified that the Court’s reference to conformity requirements was limited to requiring the continued use of 1-hour motor vehicle emissions budgets until 8hour budgets were available for 8-hour conformity determinations, which is already required under EPA’s conformity regulation. The Court thus clarified that 1-hour conformity determinations are not required for antibacksliding purposes. The Court upheld EPA’s authority to revoke the 1-hour standard provided there were adequate anti-backsliding provisions. Elsewhere in this document, mainly in section VI. B. ‘‘The York Area Has Met All Applicable Requirements Under Section 110 and Part D of the CAA and Has a Fully Approved SIP Under Section 110(k) of the CAA,’’ EPA discusses its rationale why the decision in South Coast is not an impediment to redesignating the York Area to attainment of the 8-hour ozone NAAQS. The CAA, Title I, Part D, contains two sets of provisions—subpart 1 and subpart 2—that address planning and PO 00000 Frm 00013 Fmt 4702 Sfmt 4702 60297 control requirements for nonattainment areas. Subpart 1 (which EPA refers to as ‘‘basic’’ nonattainment) contains general, less prescriptive requirements for nonattainment areas for any pollutant—including ozone—governed by a NAAQS. Subpart 2 (which EPA refers to as ‘‘classified’’ nonattainment) provides more specific requirements for ozone nonattainment areas. In 2004, the York Area was classified a basic 8-hour ozone nonattainment area based on air quality monitoring data from 2001– 2003. Therefore, the York Area is subject to the requirements of subpart 1 of Part D. Under 40 CFR part 50, the 8-hour ozone standard is attained when the 3year average of the annual fourthhighest daily maximum 8-hour average ambient air quality ozone concentrations is less than or equal to 0.08 ppm (i.e., 0.084 ppm when rounding is considered). See 69 FR 23857 (April 30, 2004) for further information. Ambient air quality monitoring data for the 3-year period must meet data completeness requirements. The data completeness requirements are met when the average percent of days with valid ambient monitoring data is greater than 90 percent, and no single year has less than 75 percent data completeness as determined in Appendix I of 40 CFR part 50. The ozone monitoring data indicates that the York Area has a design value of 0.081 ppm for the 3-year period of 2004–2006, using complete, quality-assured data. Therefore, the ambient ozone data for the York Area indicates no violations of the 8-hour ozone standard. B. The York Area The York Area consists of York and Adams Counties, Pennsylvania. Prior to its designation as an 8-hour ozone nonattainment area, the York Area was a marginal 1-hour ozone nonattainment area, and therefore, was subject to requirements for marginal nonattainment areas pursuant to section 182(a) of the CAA. See 56 FR 56694 (November 6, 1991). EPA determined that the York Area has attained the 1hour ozone NAAQS by the November 15, 1993 attainment date (60 FR 3349, January 17, 1995). On June 14, 2007, PADEP requested that the York Area be redesignated to attainment for the 8-hour ozone standard. The redesignation request included three years of complete, quality-assured data for the period of 2004–2006, indicating that the 8-hour NAAQS for ozone had been achieved in the York Area. The data satisfies the CAA requirements that the 3-year E:\FR\FM\24OCP1.SGM 24OCP1 60298 Federal Register / Vol. 72, No. 205 / Wednesday, October 24, 2007 / Proposed Rules yshivers on PROD1PC62 with PROPOSALS average of the annual fourth-highest daily maximum 8-hour average ozone concentration (commonly referred to as the area’s design value), must be less than or equal to 0.08 ppm (i.e., 0.084 ppm when rounding is considered). Under the CAA, a nonattainment area may be redesignated if sufficient complete, quality-assured data is available to determine that the area has attained the standard and the area meets the other CAA redesignation requirements set forth in section 107(d)(3)(E). III. What Are the Criteria for Redesignation to Attainment? The CAA provides the requirements for redesignating a nonattainment area to attainment. Specifically, section 107(d)(3)(E) of the CAA, allows for redesignation, providing that: (1) EPA determines that the area has attained the applicable NAAQS; (2) EPA has fully approved the applicable implementation plan for the area under section 110(k); (3) EPA determines that the improvement in air quality is due to permanent and enforceable reductions in emissions resulting from implementation of the applicable SIP and applicable Federal air pollutant control regulations and other permanent and enforceable reductions; (4) EPA has fully approved a maintenance plan for the area as meeting the requirements of section 175A; and (5) The State containing such area has met all requirements applicable to the area under section 110 and Part D. EPA provided guidance on redesignations in the General Preamble for the Implementation of Title I of the CAA Amendments of 1990, on April 16, 1992 (57 FR 13498), and supplemented this guidance on April 28, 1992 (57 FR 18070). EPA has provided further guidance on processing redesignation requests in the following documents: • ‘‘Ozone and Carbon Monoxide Design Value Calculations,’’ Memorandum from Bill Laxton, June 18, 1990; • ‘‘Maintenance Plans for Redesignation of Ozone and Carbon Monoxide Nonattainment Areas,’’ Memorandum from G.T. Helms, Chief, Ozone/Carbon Monoxide Programs Branch, April 30, 1992; • ‘‘Contingency Measures for Ozone and Carbon Monoxide (CO) Redesignations,’’ Memorandum from G.T. Helms, Chief, Ozone/Carbon Monoxide Programs Branch, June 1, 1992; • ‘‘Procedures for Processing Requests to Redesignate Areas to VerDate Aug<31>2005 15:24 Oct 23, 2007 Jkt 214001 Attainment,’’ Memorandum from John Calcagni, Director, Air Quality Management Division, September 4, 1992; • ‘‘State Implementation Plan (SIP) Actions Submitted in Response to Clean Air Act (Act) Deadlines,’’ Memorandum from John Calcagni, Director, Air Quality Management Division, October 28, 1992; • ‘‘Technical Support Documents (TSDs) for Redesignation Ozone and Carbon Monoxide (CO) Nonattainment Areas,’’ Memorandum from G.T. Helms, Chief, Ozone/Carbon Monoxide Programs Branch, August 17, 1993; • ‘‘State Implementation Plan (SIP) Requirements for Areas Submitting Requests for Redesignation to Attainment of the Ozone and Carbon Monoxide (CO) National Ambient Air Quality Standards (NAAQS) on or after November 15, 1992,’’ Memorandum from Michael H. Shapiro, Acting Assistant Administrator for Air and Radiation, September 17, 1993; • Memorandum from D. Kent Berry, Acting Director, Air Quality Management Division, to Air Division Directors, Regions 1–10, ‘‘Use of Actual Emissions in Maintenance Demonstrations for Ozone and CO Nonattainment Areas,’’ dated November 30, 1993; • ‘‘Part D New Source Review (part D NSR) Requirements for Areas Requesting Redesignation to Attainment,’’ Memorandum from Mary D. Nichols, Assistant Administrator for Air and Radiation, October 14, 1994; and • ‘‘Reasonable Further Progress, Attainment Demonstration, and Related Requirements for Ozone Nonattainment Areas Meeting the Ozone National Ambient Air Quality Standard,’’ Memorandum from John S. Seitz, Director, Office of Air Quality Planning and Standards, May 10, 1995. IV. Why Is EPA Taking These Actions? On June 14, 2007, PADEP requested redesignation of the York Area to attainment for the 8-hour ozone standard. On June 14, 2007, PADEP submitted a maintenance plan for the York Area as a SIP revision, to ensure continued attainment of the 8-hour ozone NAAQS over the next 11 years, until 2018. PADEP also submitted a 2002 base year inventory concurrently with its maintenance plan as a SIP revision. EPA has determined that the York Area has attained the 8-hour ozone standard and has met the requirements for redesignation set forth in section 107(d)(3)(E). PO 00000 Frm 00014 Fmt 4702 Sfmt 4702 V. What Would Be the Effect of These Actions? Approval of the redesignation request would change the official designation of the York Area from nonattainment to attainment for the 8-hour ozone NAAQS found at 40 CFR part 81. It would also incorporate into the Pennsylvania SIP a 2002 base year inventory and a maintenance plan ensuring continued attainment of the 8-hour ozone NAAQS in the York Area for the next 11 years, until 2018. The maintenance plan includes contingency measures to remedy any future violations of the 8hour NAAQS (should they occur), and identifies the NOX and VOC MVEBs for transportation conformity purposes for the years 2009 and 2018. These MVEBs are displayed in the following table: TABLE 1.—MOTOR VEHICLE EMISSIONS BUDGETS IN TONS PER SUMMER DAY (TPSD) Year 2009 .................................. 2018 .................................. VOC 15.9 9.0 NOX 22.8 10.0 VI. What Is EPA’s Analysis of the Commonwealth’s Request? EPA is proposing to determine that the York Area has attained the 8-hour ozone standard and that all other redesignation criteria have been met. The following is a description of how the PADEP’s June 14, 2007 submittal satisfies the requirements of section 107(d)(3)(E) of the CAA. A. The York Area Has Attained the Ozone NAAQS EPA is proposing to determine that the York Area has attained the 8-hour ozone NAAQS. For ozone, an area may be considered to be attaining the 8-hour ozone NAAQS if there are no violations, as determined in accordance with 40 CFR 50.10 and Appendix I of part 50, based on three complete, consecutive calendar years of quality-assured air quality monitoring data. To attain this standard, the design value, which is the 3-year average of the fourth-highest daily maximum 8-hour average ozone concentrations, measured at each monitor within the area over each year, must not exceed the ozone standard of 0.08 ppm. Based on the rounding convention described in 40 CFR part 50, Appendix I, the standard is attained if the design value is 0.084 ppm or below. The data must be collected and qualityassured in accordance with 40 CFR part 58, and recorded in the Air Quality System (AQS). The monitors generally should have remained at the same E:\FR\FM\24OCP1.SGM 24OCP1 60299 Federal Register / Vol. 72, No. 205 / Wednesday, October 24, 2007 / Proposed Rules location for the duration of the monitoring period required for demonstrating attainment. In the York Area, there are two ozone monitors, located in York County (York) and another in Adams County (Biglerville) that measures air quality with respect to ozone. As part of its redesignation request, Pennsylvania referenced ozone monitoring data for the years 2004–2006 for the York Area. This data has been quality assured and is recorded in the AQS. PADEP uses the AQS as the permanent database to maintain its data and quality assures the data transfers and content for accuracy. The fourth-highest 8-hour daily maximum concentrations, along with the three-year average are summarized in Table 2. TABLE 2.—YORK AREA FOURTH HIGHEST 8-HOUR AVERAGE VALUES Annual 4th highest reading (ppm) Monitor/County/AIRS ID 2004 York County Monitor/AQS ID 42–133–0008 ....................................................................................................... Adams County Monitor/AQS ID 42–001–0002 ................................................................................................... .077 .072 2005 .089 .080 2006 .077 .074 The average for the 3-year period 2004–2006 is 0.081 ppm (based on York Monitor/AQS 42–133–0008). The air quality data for 2004–2006 show that the York Area has attained the standard with a design value of 0.081 ppm. The data collected at the York Area monitor satisfies the CAA requirement that the 3-year average of the annual fourth-highest daily maximum 8-hour average ozone concentration is less than or equal to 0.08 ppm. PADEP’s request for redesignation for the York Area indicates that the data is complete and was quality assured in accordance with 40 CFR part 58. In addition, as discussed below with respect to the maintenance plan, PADEP has committed to continue monitoring in accordance with 40 CFR part 58. In summary, EPA has determined that the data submitted by Pennsylvania and data taken from AQS indicate that the York Area has attained the 8-hour ozone NAAQS. yshivers on PROD1PC62 with PROPOSALS B. The York Area Has Met All Applicable Requirements Under Section 110 and Part D of the CAA and Has a Fully Approved SIP Under Section 110(k) of the CAA EPA has determined that the York Area has met all SIP requirements applicable for purposes of this redesignation under section 110 of the CAA (General SIP Requirements) and that it meets all applicable SIP requirements under Part D of Title I of the CAA, in accordance with section 107(d)(3)(E)(v). In addition, EPA has determined that the SIP is fully approved with respect to all requirements applicable for purposes of redesignation in accordance with section 107(d)(3)(E)(ii) of the CAA. In making these proposed determinations, EPA ascertained which requirements are applicable to the York Area and determined that the applicable portions of the SIP meeting these requirements are fully approved under section 110(k) of the CAA. We note that SIPs must be VerDate Aug<31>2005 15:24 Oct 23, 2007 Jkt 214001 fully approved only with respect to applicable requirements. The September 4, 1992 Calcagni memorandum (‘‘Procedures for Processing Requests to Redesignate Areas to Attainment,’’ Memorandum from John Calcagni, Director, Air Quality Management Division, September 4, 1992) describes EPA’s interpretation of section 107(d)(3)(E) with respect to the timing of applicable requirements. Under this interpretation, to qualify for redesignation, States requesting redesignation to attainment must meet only the relevant CAA requirements that came due prior to the submittal of a complete redesignation request. See also, Michael Shapiro memorandum, September 17, 1993, and 60 FR 12459, 12465–66 (March 7, 1995) (redesignation of Detroit-Ann Arbor). Applicable requirements of the CAA that come due subsequent to the area’s submittal of a complete redesignation request remain applicable until a redesignation is approved, but are not required as a prerequisite to redesignation. Section 175A(c) of the CAA. Sierra Club v. EPA, 375 F.3d 537 (7th Cir. 2004). See also, 68 FR at 25424, 25427 (May 12, 2003) (redesignation of St. Louis). This section sets forth EPA’s views on the potential effect of the Court’s rulings on this proposed redesignation action. For the reasons set forth below, EPA does not believe that the Court’s rulings alter any requirements relevant to this redesignation action so as to preclude redesignation, and do not prevent EPA from proposing or ultimately finalizing this redesignation. EPA believes that the Court’s December 22, 2006 and June 8, 2007 decisions impose no impediment to moving forward with redesignation of this area to attainment, because even in light of the Court’s decisions, redesignation is appropriate under the relevant redesignation provisions of the PO 00000 Frm 00015 Fmt 4702 Sfmt 4702 CAA and longstanding policies regarding redesignation requests. 1. Section 110 General SIP Requirements Section 110(a)(2) of Title I of the CAA delineates the general requirements for a SIP, which include enforceable emissions limitations and other control measures, means, or techniques, provisions for the establishment and operation of appropriate devices necessary to collect data on ambient air quality, and programs to enforce the limitations. The general SIP elements and requirements set forth in section 110(a)(2) include, but are not limited to the following: • Submittal of a SIP that has been adopted by the State after reasonable public notice and hearing; • Provisions for establishment and operation of appropriate procedures needed to monitor ambient air quality; • Implementation of a source permit program; provisions for the implementation of part C requirements (Prevention of Significant Deterioration (PSD)); • Provisions for the implementation of part D requirements for NSR permit programs; • Provisions for air pollution modeling; and • Provisions for public and local agency participation in planning and emission control rule development. Section 110(a)(2)(D) requires that SIPs contain certain measures to prevent sources in a State from significantly contributing to air quality problems in another State. To implement this provision, EPA has required certain states to establish programs to address transport of air pollutants in accordance with the NOX SIP Call, October 27, 1998 (63 FR 57356), amendments to the NOX SIP Call, May 14, 1999 (64 FR 26298) and March 2, 2000 (65 FR 11222), and the Clean Air Interstate Rule (CAIR), May 12, 2005 (70 FR 25162). However, E:\FR\FM\24OCP1.SGM 24OCP1 yshivers on PROD1PC62 with PROPOSALS 60300 Federal Register / Vol. 72, No. 205 / Wednesday, October 24, 2007 / Proposed Rules the section 110(a)(2)(D) requirements for a State are not linked with a particular nonattainment area’s designation and classification in that State. EPA believes that the requirements linked with a particular nonattainment area’s designation and classifications are the relevant measures to evaluate in reviewing a redesignation request. The transport SIP submittal requirements, where applicable, continue to apply to a state regardless of the designation of any one particular area in the State. Thus, we do believe that these requirements are applicable requirements for purposes of redesignation. In addition, EPA believes that the other section 110 elements not connected with nonattainment plan submissions and not linked with an area’s attainment status are not applicable requirements for purposes of redesignation. The York Area will still be subject to these requirements after it is redesignated. The section 110 and Part D requirements, which are linked with a particular area’s designation and classification, are the relevant measures to evaluate in reviewing a redesignation request. This policy is consistent with EPA’s existing policy on applicability of conformity (i.e., for redesignations) and oxygenated fuels requirement. See, Reading, Pennsylvania, proposed and final rulemakings (61 FR 53174, October 10, 1996), (62 FR 24826, May 7, 1997); Cleveland-Akron-Lorain, Ohio final rulemaking (61 FR 20458, May 7, 1996); and Tampa, Florida, final rulemaking (60 FR 62748, December 7, 1995). See also, the discussion on this issue in the Cincinnati redesignation (65 FR at 37890, June 19, 2000), and in the Pittsburgh redesignation (66 FR at 53099, October 19, 2001). Similarly, with respect to the NOX SIP Call rules, EPA noted in its Phase 1 Final Rule to Implement the 8-hour Ozone NAAQS, that the NOX SIP Call rules are not ‘‘an ‘applicable requirement’ for purposes of section 110(1) because the NOX rules apply regardless of an area’s attainment or nonattainment status for the 8-hour (or the 1-hour) NAAQS.’’ 69 FR 23951, 23983 (April 30, 2004). EPA believes that section 110 elements not linked to the area’s nonattainment status are not applicable for purposes of redesignation. As we explain later in this notice, no Part D requirements applicable for purposes of redesignation under the 8-hour standard became due for the York Area prior to the submission of the redesignation request. Because the Pennsylvania SIP satisfies all of the applicable general SIP elements and requirements set forth in VerDate Aug<31>2005 15:24 Oct 23, 2007 Jkt 214001 section 100(a)(2), EPA concludes that Pennsylvania has satisfied the criterion of section 107(d)(3)(e) regarding section 110 of the CAA. 2. Part D Nonattainment Requirements Under the 8-Hour Standard Pursuant to an April 30, 2004, final rule (69 FR 23951), the York Area was designated a basic nonattainment area under subpart 1 for the 8-hour ozone standard. Sections 172–176 of the CAA, found in subpart 1 of Part D, set forth the basic nonattainment requirements applicable to all nonattainment areas. Section 182 of the CAA, found in subpart 2 of Part D, establishes additional specific requirements depending on the area’s nonattainment classification. With respect to the 8-hour standard, the court’s ruling rejected EPA’s reasons for classifying areas under subpart 1 for the 8-hour standard, and remanded that matter to the Agency. Consequently, it is possible that this area could, during a remand to EPA, be reclassified under subpart 2. Although any future decision by EPA to classify this area under subpart 2 might trigger additional future requirements for the area, EPA believes that this does not mean that redesignation of the area cannot now go forward. This belief is based upon: (1) EPA’s longstanding policy of evaluating redesignation requests in accordance with the requirements due at the time the request is submitted; and (2) consideration of the inequity of applying retroactively any requirements that might in the future be applied. At the time the redesignation request was submitted, the York Area was classified under subpart 1 and was obligated to meet subpart 1 requirements. Under EPA’s longstanding interpretation of section 107(d)(3)(E) of the CAA, to qualify for redesignation, states requesting redesignation to attainment must meet only the relevant SIP requirements that came due prior to the submittal of a complete redesignation request. See, September 4, 1992 Calcagni memorandum (‘‘Procedures for Processing Requests to Redesignate Areas to Attainment,’’ Memorandum from John Calcagni, Director, Air Quality Management Division). See also, Michael Shapiro Memorandum, September 17, 1993, and 60 FR 12459, 12465–66 (March 7, 1995) (Redesignation of Detroit-Ann Arbor); Sierra Club v. EPA, 375 F.3d 537 (7th Cir. 2004), which upheld this interpretation; 68 FR 25418, 25424, 25427 (May 12, 2003) (redesignation of St. Louis). PO 00000 Frm 00016 Fmt 4702 Sfmt 4702 Moreover, it would be inequitable to retroactively apply any new SIP requirements that were not applicable at the time the request was submitted. The D.C. Circuit has recognized the inequity in such retroactive rulemaking. See, Sierra Club v. Whitman, 285 F. 3d 63 (D.C. Cir. 2002), in which the D.C. Circuit upheld a District Court’s ruling refusing to make retroactive an EPA determination of nonattainment that was past the statutory due date. Such determination would have resulted in the imposition of additional requirements on that area. The Court stated: ‘‘Although EPA failed to make the nonattainment determination within the statutory time frame, Sierra Club’s proposed solution only makes the situation worse. Retroactive relief would likely impose large costs on the States, which would face fines and suits for not implementing air pollution prevention plans in 1997, even though they were not on notice at the time.’’ Id. at 68. Similarly, here it would be unfair to penalize the area by applying to it for purposes of redesignation, additional SIP requirements under subpart 2 that were not in effect at the time it submitted its redesignation request. With respect to 8-hour subpart 2 requirements, if the York Area initially had been classified under subpart 2, the first two Part D subpart 2 requirements applicable to the York Area under section 182(a) of the CAA would be a base year inventory requirement pursuant to section 182(a)(1) of the CAA, and the emissions statement requirement pursuant to section 182(a)(3)(B). As stated previously, these requirements are not due for purposes of redesignation of the York Area, but nevertheless, Pennsylvania already has in its approved SIP, an emissions statement rule for the 1-hour standard that covers all portions of the designated 8-hour nonattainment area, and that satisfies the emissions statement requirement for the 8-hour standard. See, 25 Pa. Code 135.21(a)(1) codified at 40 CFR 52.2020; 60 FR 2881, January 12, 1995. With respect to the base year inventory requirement, in this notice of proposed rulemaking, EPA is proposing to approve the 2002 base year inventory for the York Area, which was submitted on June 14, 2007, concurrently with its maintenance plan, into the Pennsylvania SIP. EPA is proposing to approve the 2002 base year inventory as fulfilling the requirements, if necessary, of both sections 182(a)(1) and 172(c)(3) of the CAA. A detailed evaluation of Pennsylvania’s 2002 base year inventory for the York Area can be found in a Technical Support Document (TSD) E:\FR\FM\24OCP1.SGM 24OCP1 yshivers on PROD1PC62 with PROPOSALS Federal Register / Vol. 72, No. 205 / Wednesday, October 24, 2007 / Proposed Rules prepared by EPA for this rulemaking. EPA has determined that the emission inventory and the emissions statement for the York Area have been satisfied. In addition to the fact that Part D requirements applicable for purposes of redesignation did not become due prior to submission of the redesignation request, EPA believes that the general conformity and NSR requirements do not require approval prior to redesignation. With respect to section 176, Conformity Requirements, section 176(c) of the CAA requires states to establish criteria and procedures to ensure that Federally-supported or funded projects conform to the air quality planning goals in the applicable SIP. The requirement to determine conformity applies to transportation plans, programs, and projects developed, funded or approved under Title 23 U.S.C. and the Federal Transit Act (‘‘transportation conformity’’) as well as to all other Federally supported or funded projects (‘‘general conformity’’). State conformity revisions must be consistent with Federal conformity regulations relating to consultation, enforcement and enforceability that the CAA required the EPA to promulgate. EPA believes it is reasonable to interpret the conformity SIP requirements as not applying for purposes of evaluating the redesignation request under section 107(d) since State conformity rules are still required after redesignation and Federal conformity rules apply where State rules have not been approved. See, Wall v. EPA, 265 F. 3d 426, 438–440 (6th Cir. 2001), upholding this interpretation. See also, 60 FR 62748 (December 7, 1995). In the case of the York Area, EPA has also determined that before being redesignated, the York Area need not comply with the requirement that an NSR program be approved prior to redesignation. EPA has also determined that areas being redesignated need not comply with the requirement that an NSR program be approved prior to redesignation, provided that the area demonstrates maintenance of the standard without Part D NSR in effect. The rationale for this position is described in a memorandum from Mary Nichols, Assistant Administrator for Air and Radiation, dated October 14, 1994, entitled ‘‘Part D NSR Requirements of Areas Requesting Redesignation to Attainment.’’ Normally, a State’s Prevention of Significant Deterioration (PSD) program will become effective in the area immediately upon redesignation to attainment. See the more detailed explanations in the following redesignation rulemakings: VerDate Aug<31>2005 15:24 Oct 23, 2007 Jkt 214001 Detroit, MI (60 FR 12467–12468, March 7, 1995); Cleveland-Akron-Lorrain, OH (61 FR 20458, 20469–70, May 7, 1996); Louisville, KY (66 FR 53665, 53669, October 23, 2001); Grand Rapids, MI (61 FR 31831, 31836–31837, June 21, 1996). In the case of the York Area, the Chapter 127 Part D NSR regulations in the Pennsylvania SIP (codified at 40 CFR 52.2020(c)(1)) explicitly apply the requirements for NSR in section 184 of the CAA to ozone attainment areas within the ozone transport region (OTR). The OTR NSR requirements are more stringent than that required for a marginal or basic ozone nonattainment area. On October 19, 2001 (66 FR 53094), EPA fully approved Pennsylvania’s NSR SIP revision consisting of Pennsylvania’s Chapter 127 Part D NSR regulations that cover the York Area. EPA has also interpreted the section 184 OTR requirements, including the NSR program, as not being applicable for purposes of redesignation. The rationale for this is based on two considerations. First, the requirement to submit SIP revisions for the section 184 requirements continues to apply to areas in the OTR after redesignation to attainment. Therefore, the State remains obligated to have NSR, as well as reasonably available control technology (RACT), and Vehicle Inspection and Maintenance (I/M) programs even after redesignation. Second, the section 184 control measures are region-wide requirements and do not apply to the York Area by virtue of the area’s designation and classification. See, 61 FR 53174, 53175–53176 (October 10, 1996) and 62 FR 24826, 24830–32 (May 7, 1997). 3. Part D Nonattainment Area Requirements Under the 1-Hour Standard In its June 8, 2007 decision the Court limited its vacatur so as to uphold those provisions of the anti-backsliding requirements that were not successfully challenged. Therefore the Area must meet the federal anti-backsliding requirements, see 40 CFR 51.900, et seq.; 70 FR 30592, 30604 (May 26, 2005), which apply by virtue of the area’s classification for the 1-hour ozone NAAQS. As set forth in more detail below, the area must also address four additional anti-backsliding provisions identified by the Court in its decisions. The anti-backsliding provisions at 40 CFR 51.905(a)(1) prescribe 1-hour ozone NAAQS requirements that continue to apply after revocation of the 1-hour ozone NAAQS to former 1-hour ozone nonattainment areas. Section 51.905(a)(1)(i) provides that: PO 00000 Frm 00017 Fmt 4702 Sfmt 4702 60301 ‘‘The area remains subject to the obligation to adopt and implement the applicable requirements as defined in section 51.900(f), except as provided in paragraph (a)(1)(iii) of paragraph (b) of this section.’’ Section 51.900(f), as amended by 70 FR 30592, 30604 (May 26, 2005), states that: ‘‘Applicable requirements means for an area the following requirements to the extent such requirements applied to the area for the area’s classification under section 181(a)(1) of the CAA for the 1hour NAAQS at the time of designation for the 8-hour NAAQS.’’ (1) RACT. (2) I/M. (3) Major source applicability cut-offs for purposes of RACT. (4) Rate of Progress (ROP) reductions. (5) Stage II vapor recovery. (6) Clean fuels fleet program under section 183(c)(4) of the CAA. (7) Clean fuels for boilers under section 182(e)(3) of the CAA. (8) Transportation Control Measures (TCMs) during heavy traffic hours as required by section 182(e)(4) of the CAA. (9) Enhanced (ambient) monitoring under section 182(c)(1) of the CAA. (10) Transportation control measures (TCMs) under section 182(c)(5) of the CAA. (11) Vehicle miles traveled (VMT) provisions of section 182(d)(1) of the CAA. (12) NOX requirements under section 182(f) of the CAA. (13) Attainment demonstration or alternative as provided under section 51.905(a)(1)(ii).’’ Pursuant to 40 CFR 51.905(c), the York Area is subject to the obligations set forth in 51.905(a) and 51.900(f). Prior to its designation as an 8-hour ozone nonattainment area, the York Area was designated a marginal nonattainment area for the 1-hour standard. With respect to the 1-hour standard, the applicable requirements under the anti-backsliding provisions at 40 CFR 51.905(a)(1) for the York Area are limited to the RACT and I/M programs specified in section 182(a) of the CAA and are discussed in the following paragraphs: Section 182(a)(2)(A) required SIP revisions to correct or amend RACT for sources in marginal areas, such as the York Area, that were subject to control technique guidelines (CTGs) issued before November 15, 1990 pursuant to CAA section 108. On December 22, 1994, EPA fully approved into the Pennsylvania SIP all corrections required under section 182(a)(2)(A) of E:\FR\FM\24OCP1.SGM 24OCP1 60302 Federal Register / Vol. 72, No. 205 / Wednesday, October 24, 2007 / Proposed Rules the CAA (59 FR 65971, December 22, 1994). EPA believes that this requirement applies only to marginal and higher classified areas under the 1hour NAAQS pursuant to the 1990 amendments to the CAA; therefore, this is a one-time requirement. After an area has fulfilled the section 182(a)(2)(A) requirement for the 1-hour NAAQS, there is no requirement under the 8hour NAAQS. Section 182(a)(2)(B) of the CAA relates to the savings clause for certain I/M programs. It requires marginal areas to adopt vehicle I/M programs. This provision was not applicable to the York Area because this area did not have nor was required to have an I/M program before November 15, 1990. In addition the Court held that EPA should have retained four additional measures in its anti-backsliding provisions: (1) Nonattainment area NSR; (2) Section 185 penalty fees; (3) contingency measures under section 172(c)(9) or 182(c)(9) of the CAA; and (4) 1-hour motor vehicle emissions budgets that were yet not replaced by 8hour emissions budgets. These requirements are addressed below: With respect to NSR, EPA has determined that areas being redesignated need not have an approved nonattainment New Source Review program, for the same reasons discussed previously with respect to the applicable Part D requirement for the 8hour standard. The section 185 penalty fee requirement applies only to severe and extreme nonattainment areas, and was never applicable in the York 1-hour marginal nonattainment area. With respect to the requirement for submission of contingency measures for the 1-hour standard, section 182(a) does not require contingency measures for marginal areas. The conformity portion of the Court’s ruling does not impact the redesignation request for the York Area except to the extent that the Court in its June 8 decision clarified that for those areas with 1-hour MVEBs, anti-backsliding requires that those 1-hour budgets must be used for 8-hour conformity determinations until replaced by 8-hour budgets. There are no applicable 1-hour MVEBs for the York Area. (As discussed elsewhere in this document, EPA is proposing to approve 8-hour MVEBs for the York Area.) To meet this requirement, conformity determinations in such areas must comply with the applicable requirements of EPA’s conformity regulations at 40 CFR Part 93. The court clarified that 1-hour conformity determinations are not required for anti-backsliding purposes. Thus EPA has concluded that the York Area has met all requirements applicable for redesignation under the 1-hour standard. 4. Transport Region Requirements All areas in the Ozone Transport Region (OTR), both attainment and nonattainment, are subject to additional control requirements under section 184 for the purpose of reducing interstate transport of emissions that may contribute to downwind ozone nonattainment. The section 184 requirements include RACT, NSR, enhanced vehicle inspection and maintenance (I/M), and Stage II vapor recovery or a comparable measure. In the case of the York Area, which is located in the OTR, nonattainment NSR will continue to be applicable after redesignation. On October 19, 2001, EPA approved the 1-hour NSR SIP revision for the area. See 66 FR 53094 (October 19, 2001). EPA has also interpreted the section 184 OTR requirements, including NSR, as not being applicable for purposes of redesignation. Reading, PA Redesignation, 61 FR 53174, (October 10, 1996), 62 FR 24826 (May 7, 1997). The rationale for this is based on two considerations. First, the requirement to submit SIP revisions for the section 184 requirements continues to apply to areas in the OTR after redesignation to attainment. Therefore, the State remains obligated to have NSR, as well as RACT, and I/M even after redesignation. Second, the section 184 control measures are region-wide requirements and do not apply to the area by virtue of the area’s nonattainment designation and classification, and thus are properly considered not relevant to an action changing an area’s designation. See 61 FR 53174, 53175–53176 (October 10, 1996) and 62 FR 24826, 24830–24832 (May 7, 1997). 5. York Area Has a Fully Approved SIP for Purposes of Redesignation EPA has fully approved the Pennsylvania SIP for the purposes of this redesignation. EPA may rely on prior SIP approvals in approving a redesignation request. Calcagni Memo, p. 3; Southwestern Pennsylvania Growth Alliance v. Browner, 144 F. 3d 984, 989– 90 (6th Cir. 1998); Wall v. EPA, 265 F. 3d 426 (6th Cir. 2001), plus any additional measures it may approve in conjunction with a redesignation action. See also, 68 FR at 25425 (May 12, 2003) and citations therein. C. The Air Quality Improvement in the York Area Is Due to Permanent and Enforceable Reductions in Emissions Resulting From Implementation of the SIP and Applicable Federal Air Pollution Control Regulations and Other Permanent and Enforceable Reductions EPA believes that the Commonwealth has demonstrated that the observed air quality improvement in the York Area is due to permanent and enforceable reductions in emissions resulting from implementation of the SIP, Federal measures, and other State-adopted measures. Emissions reductions attributable to these rules are shown in Table 3. TABLE 3.—TOTAL VOC AND NOX EMISSIONS FOR 2002 AND 2004 IN TONS PER SUMMER DAY (TPSD) Year Point Area Nonroad Mobile Total Volatile Organic Compounds (VOC) 2002 ............................................................................................................................. 2004 ............................................................................................................................. Diff. (02–04) ................................................................................................................. 8.5 5.3 ¥3.2 27.1 26.8 ¥0.3 25.3 21.3 ¥4.0 10.4 10.1 ¥0.3 71.3 63.5 ¥7.8 70.2 75.3 5.1 2.9 3.0 0.1 36.6 31.9 ¥4.7 14.3 13.7 ¥0.6 124.0 123.9 ¥0.1 yshivers on PROD1PC62 with PROPOSALS Nitrogen Oxides (NOX) 2002 ............................................................................................................................. 2004 ............................................................................................................................. Diff. (02–04) ................................................................................................................. VerDate Aug<31>2005 15:24 Oct 23, 2007 Jkt 214001 PO 00000 Frm 00018 Fmt 4702 Sfmt 4702 E:\FR\FM\24OCP1.SGM 24OCP1 Federal Register / Vol. 72, No. 205 / Wednesday, October 24, 2007 / Proposed Rules Between 2002 and 2004, VOC emissions decreased by 7.8 tpsd, and NOX emissions decreased by 0.1 tpsd. These reductions, and anticipated future reductions, are due to the following permanent and enforceable measures. 1. Stationary Point Sources Federal NOX SIP Call (66 FR 43795, August 21, 2001). 2. Stationary Area Sources Solvent Cleaning (68 FR 2206, January 16, 2003). Portable Fuel Containers (69 FR 70893, December 8, 2004). 3. Highway Vehicle Sources Federal Motor Vehicle Control Programs (FMVCP). —Tier 1 (56 FR 25724, June 5, 1991). —Tier 2 (65 FR 6698, February 10, 2000). Heavy-duty Engine and Vehicle Standards (62 FR 54694, October 21, 1997, and 65 FR 59896, October 6, 2000). National Low Emission Vehicle (NLEV) Program (PA) (64 FR 72564, December 28, 1999). Vehicle Emission Inspection/ Maintenance Program (70 FR 58313, October 6, 2005). 4. Non-Road Sources Non-road Diesel (69 FR 38958, June 29, 2004). EPA believes that permanent and enforceable emissions reductions are the cause of the long-term improvement in ozone levels and are the cause of the York Area achieving attainment of the 8hour ozone standard. yshivers on PROD1PC62 with PROPOSALS D. The York Area Has a Fully Approvable Maintenance Plan Pursuant to Section 175A of the CAA In conjunction with its request to redesignate the York Area to attainment status, Pennsylvania submitted a SIP revision to provide for maintenance of the 8-hour ozone NAAQS in the York Area for at least 11 years after redesignation. The Commonwealth is requesting that EPA approve this SIP revision as meeting the requirement of CAA 175A. Once approved, the maintenance plan for the 8-hour ozone NAAQS will ensure that the SIP for the York Area meets the requirements of the CAA regarding maintenance of the applicable 8-hour ozone standard. What Is Required in a Maintenance Plan? Section 175 of the CAA sets forth the elements of a maintenance plan for areas seeking redesignation from nonattainment to attainment. Under VerDate Aug<31>2005 15:24 Oct 23, 2007 Jkt 214001 section 175A, the plan must demonstrate continued attainment of the applicable NAAQS for at least 10 years after approval of a redesignation of an area to attainment. Eight years after the redesignation, the Commonwealth must submit a revised maintenance plan demonstrating that attainment will continue to be maintained for the 10 years following the initial 10-year period. To address the possibility of future NAAQS violations, the maintenance plan must contain such contingency measures, with a schedule for implementation, as EPA deems necessary to assure prompt correction of any future 8-hour ozone violations. Section 175A of the CAA sets forth the elements of a maintenance plan for areas seeking redesignation from nonattainment to attainment. The Calcagni memo provides additional guidance on the content of a maintenance plan. An ozone maintenance plan should address the following provisions: (a) an attainment emissions inventory; (b) a maintenance demonstration; (c) a monitoring network; (d) verification of continued attainment; and (e) a contingency plan. Analysis of the York Area Maintenance Plan (a) Attainment inventory—An attainment inventory includes the emissions during the time period associated with the monitoring data showing attainment. PADEP determined that the appropriate attainment inventory year is 2004. That year establishes a reasonable year within the three-year block of 2004–2006 as a baseline and accounts for reductions attributable to implementation of the CAA requirements to date. The 2004 inventory is consistent with EPA guidance and is based on actual ‘‘typical summer day’’ emissions of VOC and NOX during 2004 and consists of a list of sources and their associated emissions. The 2002 and 2004 point source data was compiled from actual sources. Pennsylvania requires owners and operators of larger facilities to submit annual production figures and emission calculations each year. Throughput data are multiplied by emission factors from Factor Information Retrieval (FIRE) Data Systems and EPA’s publication series AP–42, and are based on Source Classification Codes (SCC). The 2002 area source data was compiled using county-level activity data, from census numbers, from county numbers, etc. The 2004 area source data was projected from the 2002 inventory PO 00000 Frm 00019 Fmt 4702 Sfmt 4702 60303 using temporal allocations provided by the Mid-Atlantic Regional Air Management Association (MARAMA). The on-road mobile source inventories for 2002 and 2004 were compiled using MOBILE6.2 and Pennsylvania Department of Transportation (PENNDOT) estimates for VMT. The PADEP has provided detailed data summaries to document the calculations of mobile on-road VOC and NOX emissions for 2002, as well as for the projection years of 2004, 2009, and 2018 (shown in Tables 5 and 6 below). The 2002 and 2004 emissions for the majority of non-road emission source categories were estimated using the EPA NONROAD 2005 model. The NONROAD model calculates emissions for diesel, gasoline, liquefied petroleum gasoline, and compressed natural gasfueled non-road equipment types and includes growth factors. The NONROAD model does not estimate emissions from locomotives or aircraft. For 2002 and 2004 locomotive emissions, the PADEP projected emissions from a 1999 survey using national fuel consumption information and EPA emission and conversion factors. There are no commercial aircraft operations in York and Adams Counties. For 2002 and 2004 aircraft emissions, PADEP estimated emissions using small airport operations statistics from http://www.airnav.com, and emission factors and operational characteristics in the EPA-approved model, Emissions and Dispersion Modeling System (EDMS). More detailed information on the compilation of the 2002, 2004, 2009, and 2018 inventories can found in the Technical Appendices, which are part of the June 14, 2007 state submittal. (b) Maintenance Demonstration—On June 14, 2007, the PADEP submitted a maintenance plan as required by section 175A of the CAA. The York Area maintenance plan shows maintenance of the 8-hour ozone NAAQS by demonstrating that current and future emissions of VOC and NOX remain at or below the attainment year 2004 emissions levels throughout the York Area through the year 2018. A maintenance demonstration need not be based on modeling. See, Wall v. EPA, supra; Sierra Club v. EPA, supra. See also, 66 FR at 53099–53100; 68 FR at 25430–25432. Tables 4 and 5 specify the VOC and NOX emissions for the York Area for 2004, 2009, and 2018. The PADEP chose 2009 as an interim year in the maintenance demonstration period to demonstrate that the VOC and NOX emissions are not projected to increase E:\FR\FM\24OCP1.SGM 24OCP1 60304 Federal Register / Vol. 72, No. 205 / Wednesday, October 24, 2007 / Proposed Rules above the 2004 attainment level during the time of the maintenance period. TABLE 4.—TOTAL VOC EMISSIONS FOR 2004–2018 (TPSD) 2004 VOC emissions Source category 2009 VOC emissions 2018 VOC emissions Point* ....................................................................................................................................................... Area ......................................................................................................................................................... Mobile** .................................................................................................................................................... Nonroad ................................................................................................................................................... 5.3 26.8 21.3 10.1 8.2 26.2 15.9 8.4 10.1 28.9 9.0 6.9 Total .................................................................................................................................................. 63.5 58.7 54.9 *The stationary point source emissions shown here do not include available banked emission credits as indicated in Appendix A–4 submitted with the maintenance plan. **Includes safety margin identified in the motor vehicle emission budgets for transportation conformity. TABLE 5.—TOTAL NOX EMISSIONS FOR 2004–2018 (TPSD) 2004 NOX emissions Source category 2009 NOX emissions 2018 NOX emissions Point* ....................................................................................................................................................... Area ......................................................................................................................................................... Mobile** .................................................................................................................................................... Non-road .................................................................................................................................................. 75.3 3.0 31.9 13.7 74.1 3.1 22.8 11.2 79.7 3.3 10.0 6.5 Total .................................................................................................................................................. 123.9 111.2 99.5 yshivers on PROD1PC62 with PROPOSALS *The stationary point source emissions shown here do not include available banked emission credits as indicated in Appendix A–4. **Includes safety margin identified in the motor vehicle emission budgets for transportation conformity. Additionally, the following programs are either effective or due to become effective and will further contribute to the maintenance demonstration of the 8hour ozone NAAQS: • The Clean Air Interstate Rule (CAIR) (71 FR 25328, April 28, 2006). • The Federal NOX SIP Call (66 FR 43795, August 21, 2001). • Area VOC regulations concerning portable fuel containers (69 FR 70893, December 8, 2004), consumer products (69 FR 70895, December 8, 2004), and architectural and industrial maintenance coatings (AIM) (69 FR 68080, November 23, 2004). • Federal Motor Vehicle Control Programs (light-duty) (Tier 1, Tier 2; 56 FR 25724, June 5, 1991; 65 FR 6698, February 10, 2000). • Vehicle emission/inspection/ maintenance program (70 FR 58313, October 6, 2005). • Heavy duty diesel on-road (2004/ 2007) and low sulfur on-road (2006) (66 FR 5002, January 18, 2001). • Non-road emission standards (2008) and off-road diesel fuel (2007/2010) (69 FR 38958 June 29, 2004). • NLEV/PA Clean Vehicle Program (54 FR 72564, December 28, 1999)— Pennsylvania will implement this program in car model year 2008. • Pennsylvania Heavy-Duty Diesel Emissions Control Program (May 10, 2002). Based on the comparison of the projected emissions and the attainment VerDate Aug<31>2005 15:24 Oct 23, 2007 Jkt 214001 year emissions along with the additional measures, EPA concludes that PADEP has successfully demonstrated that the 8-hour ozone standard should be maintained in the York Area. (c) Monitoring Network—There are currently two monitors measuring ozone in the York Area. PADEP will continue to operate its current air quality monitor (located in York and Adams Counties), in accordance with 40 CFR part 58. (d) Verification of Continued Attainment—In addition to maintaining the key elements of its regulatory program, the Commonwealth will track the attainment status of the ozone NAAQS in the York Area by reviewing air quality and emissions data during the maintenance period. The Commonwealth will perform an annual evaluation of Vehicle Miles Traveled (VMT) data and emissions reported from stationary sources, and compare them to the assumptions about these factors used in the maintenance plan. The Commonwealth will also evaluate the periodic (every three years) emission inventories prepared under EPA’s Consolidated Emission Reporting Regulation (40 CFR part 51, subpart A) to see if they exceed the attainment year inventory (2004) by more than 10 percent. PADEP will also continue to operate the existing ozone monitoring station in the York Area pursuant to 40 CFR part 58 throughout the maintenance period and submit qualityassured ozone data to EPA through the PO 00000 Frm 00020 Fmt 4702 Sfmt 4702 AQS system. Section 175A(b) of the CAA states that eight years following the redesignation of the York Area, PADEP will be required to submit a second maintenance plan that will ensure attainment through 2028. PADEP has made that commitment to meet the requirement of section 175A(b). (e) The Maintenance Plan’s Contingency Measures—The contingency plan provisions are designed to promptly correct a violation of the NAAQS that occurs after redesignation. Section 175A of the CAA requires that a maintenance plan include such contingency measures as EPA deems necessary to ensure that the State will promptly correct a violation of the NAAQS that occurs after redesignation. The maintenance plan should identify the events that would ‘‘trigger’’ the adoption and implementation of a contingency measure(s), the contingency measure(s) that would be adopted and implemented, and the schedule indicating the timeframe by which the state would adopt and implement the measure(s). The ability of the York Area to stay in compliance with the 8-hour ozone standard after redesignation depends upon VOC and NOX emissions in the area remaining at or below 2004 levels. The Commonwealth’s maintenance plan projects VOC and NOX emissions to decrease and stay below 2004 levels through the year 2018. The E:\FR\FM\24OCP1.SGM 24OCP1 yshivers on PROD1PC62 with PROPOSALS Federal Register / Vol. 72, No. 205 / Wednesday, October 24, 2007 / Proposed Rules Commonwealth’s maintenance plan outlines the procedures for the adoption and implementation of contingency measures to further reduce emissions should a violation occur. Contingency measures will be considered if for two consecutive years the fourth highest 8-hour ozone concentrations at the York and Adams Counties monitors are above 84 ppb. If this trigger point occurs, the Commonwealth will evaluate whether additional local emission control measures should be implemented in order to prevent a violation of the air quality standard. PADEP will also analyze the conditions leading to the excessive ozone levels and evaluate which measures might be most effective in correcting the excessive ozone levels. PADEP will also analyze the potential emissions effect of Federal, state, and local measures that have been adopted but not yet implemented at the time the excessive ozone levels occurred. PADEP will then begin the process of implementing any selected measures. Contingency measures will also be considered in the event that a violation of the 8-hour ozone standard occurs at the York and Adams Counties, Pennsylvania monitors. In the event of a violation of the 8-hour ozone standard, PADEP will adopt additional emissions reduction measures as expeditiously as practicable in accordance with the implementation schedule listed later in this notice and the Pennsylvania Air Pollution Control Act in order to return the area to attainment with the standard. Contingency measures to be considered for the York Area will include, but not be limited to the following: Regulatory measures: —Additional controls on consumer products. —Additional controls on portable fuel containers. Non-Regulatory measures: —Voluntary diesel engine ‘‘chip reflash’’ (installation software to correct the defeat device option on certain heavy-duty diesel engines). —Diesel retrofit, including replacement, repowering or alternative fuel use, for public or private local on-road or offroad fleets. —Idling reduction technology for Class 2 yard locomotives. —Idling reduction technologies or strategies for truck stops, warehouses and other freight-handling facilities. —Accelerated turnover of lawn and garden equipment, especially commercial equipment, including promotion of electric equipment. —Additional promotion of alternative fuel (e.g., biodiesel) for home heating and agricultural use. VerDate Aug<31>2005 15:24 Oct 23, 2007 Jkt 214001 The plan lays out a process to have any regulatory contingency measures in effect within 19 months of the trigger. The plan also lays out a process to implement the non-regulatory contingency measures within 12–24 months of the trigger. VII. Are the Motor Vehicle Emissions Budgets Established and Identified in the York Area Maintenance Plan Adequate and Approvable? A. What Are the Motor Vehicle Emissions Budgets? Under the CAA, States are required to submit, at various times, control strategy SIPs and maintenance plans in ozone areas. These control strategy SIPs (i.e., RFP SIPs and attainment demonstration SIPs) and maintenance plans identify and establish MVEBs for certain criteria pollutants and/or their precursors to address pollution from on-road mobile sources. In the maintenance plan, the MVEBs are termed ‘‘on-road mobile source emission budgets.’’ Pursuant to 40 CFR part 93 and § 51.112, MVEBs must be established in an ozone maintenance plan. An MVEB is the portion of the total allowable emissions that is allocated to highway and transit vehicle use and emissions. An MVEB serves as a ceiling on emissions from an area’s planned transportation system. The MVEB concept is further explained in the preamble to the November 24, 1993, transportation conformity rule (58 FR 62188). The preamble also describes how to establish and revise the MVEBs in control strategy SIPs and maintenance plans. Under section 176(c) of the CAA, new transportation projects, such as the construction of new highways, must ‘‘conform’’ to (i.e., be consistent with) the part of the State’s air quality plan that addresses pollution from cars and trucks. ‘‘Conformity’’ to the SIP means that transportation activities will not cause new air quality violations, worsen existing violations, or delay timely attainment of or reasonable progress towards the NAAQS. If a transportation plan does not ‘‘conform,’’ most new projects that would expand the capacity of roadways cannot go forward. Regulations at 40 CFR part 93 set forth EPA policy, criteria, and procedures for demonstrating and ensuring conformity of such transportation activities to a SIP. When reviewing submitted ‘‘control strategy’’ SIPs or maintenance plans containing MVEBs, EPA must affirmatively find the MVEB contained therein ‘‘adequate’’ for use in determining transportation conformity. After EPA affirmatively finds the submitted MVEB is adequate for PO 00000 Frm 00021 Fmt 4702 Sfmt 4702 60305 transportation conformity purposes, that MVEB can be used by state and federal agencies in determining whether proposed transportation projects ‘‘conform’’ to the SIP as required by section 176(c) of the CAA. EPA’s substantive criteria for determining ‘‘adequacy’’ of a MVEB are set forth in 40 CFR 93.118(e)(4). EPA’s process for determining ‘‘adequacy’’ consists of three basic steps: public notification of a SIP submission, a public comment period, and EPA’s adequacy finding. This process for determining the adequacy of submitted SIP MVEBs was initially outlined in EPA’s May 14, 1999 guidance, ‘‘Conformity Guidance on Implementation of March 2, 1999, Conformity Court Decision.’’ This guidance was finalized in the Transportation Conformity Rule Amendments for the ‘‘New 8-Hour Ozone and PM2.5 National Ambient Air Quality Standards and Miscellaneous Revisions for Existing Areas; Transportation Conformity Rule Amendments—Response to Court Decision and Additional Rule Change’’ on July 1, 2004 (69 FR 40004). EPA consults this guidance and follows this rulemaking in making its adequacy determinations. The MVEBS for the York Area are listed in Table 1 of this document for 2009 and 2018, and are the projected emissions for the on-road mobile sources plus any portion of the safety margin allocated to the MVEBs (safety margin allocation for 2009 and 2018 only). These emission budgets, when approved by EPA, must be used for transportation conformity determinations. B. What Is a Safety Margin? A safety margin is the difference between the attainment level of emissions (from all sources) and the projected level of emissions (from all sources) in the maintenance plan. The attainment level of emissions is the level of emissions during one of the years in which the area met the NAAQS. The safety margin is the extra emissions that can be allocated as long as the total attainment level of emissions is maintained. The credit, or a portion thereof, can be allocated to any of the source categories. The following example is for the 2018 safety margin: the York Area first attained the 8-hour ozone NAAQS during the 2002 to 2004 time period. The Commonwealth used 2004 as a year to determine attainment levels of emissions for the York Area. The total emissions from point, area, mobile on-road, and mobile non-road sources in 2004 equaled 63.5 tpd of E:\FR\FM\24OCP1.SGM 24OCP1 60306 Federal Register / Vol. 72, No. 205 / Wednesday, October 24, 2007 / Proposed Rules VOC and 123.9 tpd of NOX. PADEP projected emissions out to the year 2018 and projected a total of 54.9 tpd of VOC and 99.5 tpd of NOX from all sources in the York Area. The safety margin for the York Area for 2018 is the difference between these amounts, or 8.6 tpd of VOC and 24.4 tpd of NOX. The emissions up to the level of the attainment year including the safety margins are projected to maintain the area’s air quality consistent with the 8hour ozone NAAQS. Table 6 shows the safety margins for the 2009 and 2018 years. TABLE 6.—2009 AND 2018 SAFETY MARGINS FOR THE YORK AREA VOC Emissions (tpd) Inventory year 2004 2009 2009 2004 2018 2018 Attainment ........................................................................................................................................... Interim ................................................................................................................................................. Safety Margin ..................................................................................................................................... Attainment ........................................................................................................................................... Final .................................................................................................................................................... Safety Margin ..................................................................................................................................... PADEP allocated 0.8 tpd VOC and 1.0 tpd NOX to the 2009 interim VOC projected on-road mobile source emissions projection and the 2009 interim NOX projected on-road mobile source emissions projection to arrive at the 2009 MVEBs. For the 2018 MVEBs, PADEP allocated 1.1 tpd VOC and 1.0 tpd NOX from the 2018 safety margins to arrive at the 2018 MVEBs. Once allocated to the mobile source budgets, these portions of the safety margins are NOX Emissions (tpd) 63.5 58.7 4.8 63.5 54.9 8.6 123.9 111.2 12.7 123.9 99.5 24.4 no longer available, and may not be allocated to any other source category. Table 7 shows the final 2009 and 2018 MVEBs for the York Area. TABLE 7.—2009 AND 2018 FINAL MVEBS FOR THE YORK AREA VOC Emissions (tpd) Inventory Year 2009 2009 2009 2018 2018 2018 Projected On-road Mobile Source Projected Emissions .................................................................... Safety Margin Allocated to MVEBs .................................................................................................... MVEBs ................................................................................................................................................ Projected On-road Mobile Source Projected Emissions .................................................................... Safety Margin Allocated to MVEBs .................................................................................................... MVEBs ................................................................................................................................................ yshivers on PROD1PC62 with PROPOSALS C. Why Are the MVEBs Approvable? The 2009 and 2018 MVEBs for the York Area are approvable because the MVEBs for NOX and VOCs continue to maintain the total emissions at or below the attainment year inventory levels as required by the transportation conformity regulations. D. What Is the Adequacy and Approval Process for the MVEBs in the York Area Maintenance Plan? The MVEBs for the York Area maintenance plan are being posted to EPA’s conformity Web site concurrently with this proposal. The public comment period will end at the same time as the public comment period for this proposed rule. In this case, EPA is concurrently processing the action on the maintenance plan and the adequacy process for the MVEBs contained therein. In this proposed rule, EPA is proposing to find the MVEBs adequate and also proposing to approve the MVEBs as part of the maintenance plan. The MVEBs cannot be used for transportation conformity until the maintenance plan and associated MVEBs are approved in a final Federal Register notice, or EPA otherwise finds VerDate Aug<31>2005 15:24 Oct 23, 2007 Jkt 214001 the budgets adequate in a separate action following the comment period. If EPA receives adverse written comments with respect to the proposed approval of the York Area MVEBs, or any other aspect of our proposed approval of this updated maintenance plan, we will respond to the comments on the MVEBs in our final action or proceed with the adequacy process as a separate action. Our action on the York Area MVEBs will also be announced on EPA’s conformity Web site: http:// www.epa.gov/otaq/stateresources/ transconf/index.htm (once there, click on ‘‘Adequacy Review of SIP Submissions). VIII. Proposed Actions EPA is proposing to determine that the York Area has attained the 8-hour ozone NAAQS. EPA is also proposing to approve the redesignation of the York Area from nonattainment to attainment for the 8-hour ozone NAAQS. EPA has evaluated Pennsylvania’s redesignation request and determined that it meets the redesignation criteria set forth in section 107(d)(3)(E) of the CAA. EPA believes that the redesignation request and monitoring data demonstrate that the PO 00000 Frm 00022 Fmt 4702 Sfmt 4702 NOX Emissions (tpd) 15.1 0.8 15.9 7.9 1.1 9.0 21.8 1.0 22.8 9.0 1.0 10.0 York Area has attained the 8-hour ozone standard. The final approval of this redesignation request would change the designation of the York Area from nonattainment to attainment for the 8hour ozone standard. EPA is proposing to approve the maintenance plan for the York Area, submitted on June 14, 2007, as a revision to the Pennsylvania SIP. EPA is proposing to approve the maintenance plan for the York Area because it meets the requirements of section 175A as described previously in this notice. EPA is also proposing to approve the 2002 base-year inventory for the York Area, and the MVEBs submitted by Pennsylvania for the York Area in conjunction with its redesignation request. EPA is soliciting public comments on the issues discussed in this document. These comments will be considered before taking final action. IX. Statutory and Executive Order Reviews Under Executive Order 12866 (58 FR 51735, October 4, 1993), this proposed action is not a ‘‘significant regulatory action’’ and therefore is not subject to review by the Office of Management and E:\FR\FM\24OCP1.SGM 24OCP1 yshivers on PROD1PC62 with PROPOSALS Federal Register / Vol. 72, No. 205 / Wednesday, October 24, 2007 / Proposed Rules Budget. For this reason, this action is also not subject to Executive Order 13211, ‘‘Actions Concerning Regulations That Significantly Affect Energy Supply, Distribution, or Use’’ (66 FR 28355 (May 22, 2001)). This action merely proposes to approve state law as meeting Federal requirements and imposes no additional requirements beyond those imposed by state law. Redesignation of an area to attainment under section 107(d)(3)(e) of the CAA does not impose any new requirements on small entities. Redesignation is an action that affects the status of a geographical area and does not impose any new regulatory requirements on sources. Redesignation of an area to attainment under section 107(d)(3)(E) of the CAA does not impose any new requirements on small entities. Redesignation is an action that affects the status of a geographical area and does not impose any new regulatory requirements on sources. Accordingly, the Administrator certifies that this proposed rule will not have a significant economic impact on a substantial number of small entities under the Regulatory Flexibility Act (5 U.S.C. 601 et seq.). Because this rule proposes to approve pre-existing requirements under state law and does not impose any additional enforceable duty beyond that required by state law, it does not contain any unfunded mandate or significantly or uniquely affect small governments, as described in the Unfunded Mandates Reform Act of 1995 (Pub. L. 104–4). Because this action affects the status of a geographical area or allows the state to avoid adopting or implementing other requirements and because this action does not impose any new requirements on sources, this proposed rule also does not have a substantial direct effect on one or more Indian tribes, on the relationship between the Federal Government and Indian tribes, or on the distribution of power and responsibilities between the Federal Government and Indian tribes, as specified by Executive Order 13175 (65 FR 67249, November 9, 2000), nor will it have substantial direct effects on the States, on the relationship between the national government and the States, or on the distribution of power and responsibilities among the various levels of government, as specified in Executive Order 13132 (64 FR 43255, August 10, 1999), because it merely proposes to approve a state rule implementing a Federal requirement, and does not alter the relationship or the distribution of power and responsibilities established in the CAA. This proposed rule also is not subject to Executive Order 13045 (62 FR 19885, VerDate Aug<31>2005 15:24 Oct 23, 2007 Jkt 214001 April 23, 1997), because it approves a state rule implementing a Federal standard. In reviewing SIP submissions, EPA’s role is to approve state choices, provided that they meet the criteria of the CAA. In this context, in the absence of a prior existing requirement for the State to use voluntary consensus standards (VCS), EPA has no authority to disapprove a SIP submission for failure to use VCS. It would thus be inconsistent with applicable law for EPA, when it reviews a SIP submission, to use VCS in place of a SIP submission that otherwise satisfies the provisions of the CAA. Redesignation is an action that affects the status of a geographical area and does not impose any new requirements on sources. Thus, the requirements of section 12(d) of the National Technology Transfer and Advancement Act of 1995 (15 U.S.C. 272 note) do not apply. As required by section 3 of Executive Order 12988 (61 FR 4729, February 7, 1996), in issuing this proposed rule, EPA has taken the necessary steps to eliminate drafting errors and ambiguity, minimize potential litigation, and provide a clear legal standard for affected conduct. EPA has complied with Executive Order 12630 (53 FR 8859, March 15, 1988) by examining the takings implications of the rule in accordance with the ‘‘Attorney General’s Supplemental Guidelines for the Evaluation of Risk and Avoidance of Unanticipated Takings’’ issued under the executive order. This rule, proposing to approve the redesignation of the York Area to attainment for the 8-hour ozone NAAQS, the associated maintenance plan, the 2002 base-year inventory, and the MVEBs identified in the maintenance plan, does not impose an information collection burden under the provisions of the Paperwork Reduction Act of 1995 (44 U.S.C. 3501 et seq.). List of Subjects 40 CFR Part 52 Environmental protection, Air pollution control, Nitrogen oxides, Ozone, Reporting and recordkeeping requirements, Volatile organic compounds. 40 CFR Part 81 Environmental protection, Air pollution control, National parks, Wilderness areas. Authority: 42 U.S.C. 7401 et seq. PO 00000 Frm 00023 Fmt 4702 Sfmt 4702 60307 Dated: October 16, 2007. Donald S. Welsh, Regional Administrator, Region III. [FR Doc. E7–20942 Filed 10–23–07; 8:45 am] BILLING CODE 6560–50–P DEPARTMENT OF HOMELAND SECURITY Transportation Security Administration 49 CFR Parts 1540, 1544, and 1560 [Docket No. TSA–2007–28572] RIN 1652–AA45 Secure Flight Program Transportation Security Administration, DHS. ACTION: Proposed Rule: Extension of Comment Period. AGENCY: SUMMARY: The Transportation Security Administration (TSA) is extending the comment period on the Notice of Proposed Rulemaking regarding the Secure Flight Program published on August 23, 2007. TSA has decided to grant, in part, two requests for an extension of the comment period and will extend the comment period for thirty (30) days. The comment period will now end on November 21, 2007, instead of October 22, 2007. DATES: The comment period for the proposed rule at 72 FR at 48356, August 23, 2007, is extended until November 21, 2007. ADDRESSES: You may submit comments, identified by the TSA docket number to this rulemaking, to the Federal Docket Management System (FDMS), a government-wide, electronic docket management system, using any one of the following methods: Electronically: You may submit comments through the Federal eRulemaking portal at http:// www.regulations.gov. Follow the online instructions for submitting comments. Mail, In Person, or Fax: Address, hand-deliver, or fax your written comments to the Docket Management Facility, U.S. Department of Transportation, 1200 New Jersey Avenue, SE., West Building Ground Floor, Room W12–140, Washington, DC 20590–0001; Fax 202–493–2251. The Department of Transportation (DOT), which maintains and processes TSA’s official regulatory dockets, will scan the submission and post it to FDMS. See SUPPLEMENTARY INFORMATION for format and other information about comment submissions. FOR FURTHER INFORMATION CONTACT: Kevin Knott, Policy Manager, Secure E:\FR\FM\24OCP1.SGM 24OCP1
[Pages 60296-60307]
[FR Doc No: E7-20942]
[EPA-R03-OAR-2007-0625; FRL-8485-9]
(PADEP) is requesting that the York (York and Adams Counties) ozone
nonattainment area (York Area) be redesignated as attainment for the 8-
hour ozone national ambient air quality standard (NAAQS). EPA is
proposing to approve the ozone redesignation request for the York Area.
In conjunction with its redesignation request, the Commonwealth
submitted a SIP revision consisting of a maintenance plan for the York
Area that provides for continued attainment of the 8-hour ozone NAAQS
for at least 10 years after redesignation. EPA is proposing to make a
determination that the York Area has attained the 8-hour ozone NAAQS,
based upon three years of complete, quality-assured ambient air quality
monitoring data for 2004-2006. EPA's proposed approval of the 8-hour
ozone redesignation request is based on its determination that the York
the Clean Air Act (CAA). In addition, the Commonwealth has also
submitted a 2002 base year inventory for the York Area which EPA is
proposing to approve as a SIP revision. EPA is also providing
plan for the York Area for purposes of transportation conformity, which
EPA is also proposing to approve. EPA is proposing approval of the
redesignation request and of the maintenance plan and 2002 base year
inventory SIP revisions in accordance with the requirements of the CAA.
DATES: Written comments must be received on or before November 23,
R03-OAR-2007-0625 by one of the following methods:
C. Mail: EPA-R03-OAR-2007-0625, Marilyn Powers, Acting Chief, Air
2007-0625. EPA's policy is that all comments received will be included
FOR FURTHER INFORMATION CONTACT: LaKeshia Robertson, (215) 814-2113, or
by e-mail at robertson.lakeshia@epa.gov.
Identified in the York Area Maintenance Plan Adequate and
On June 14, 2007, PADEP formally submitted a request to redesignate
the York Area from nonattainment to attainment of the 8-hour NAAQS for
ozone. Concurrently, Pennsylvania submitted a maintenance plan for the
York Area as a SIP revision to ensure continued attainment in the area
over the next 11 years. Pennsylvania also submitted a 2002 base year
inventory for the York Area as a SIP revision. The York Area is
currently designated a basic 8-hour ozone nonattainment area. EPA is
proposing to determine that the York Area has attained the 8-hour ozone
NAAQS and that it has met the requirements for redesignation pursuant
to section 107(d)(3)(E) of the CAA. EPA is, therefore, proposing to
approve the redesignation request to change the designation of the York
Area from nonattainment to attainment for the 8-
hour ozone NAAQS. EPA is also proposing to approve the York Area
maintenance plan as a SIP revision (such approval being one of the CAA
criteria for redesignation to attainment status). The maintenance plan
is designed to ensure continued attainment in the York Area for the
next 11 years. EPA is also proposing to approve the 2002 base year
inventory for the York Area as a SIP revision. Additionally, EPA is
announcing its action on the adequacy process for the MVEBs identified
in the York maintenance plan, and proposing to approve the MVEBs
identified for volatile organic compounds (VOCs) and nitrogen oxides
(NOX) for the York Area for transportation conformity
are referred to as precursors of ozone. The CAA establishes a process
for air quality management through the attainment and maintenance of
years of data at the time EPA designated 8-hour areas. The York Area
was designated a basic 8-hour ozone nonattainment area in a Federal
Register notice signed on April 15, 2004 and published on April 30,
2004 (69 FR 23857), based on its exceedance of the 8-hour health-based
standard for ozone during the years 2001-2003.
revoke the 1-hour ozone NAAQS in the York Area (as well as most other
areas of the country) effective June 15, 2005. See, 40 CFR 50.9(b); 69
FR at 23966 (April 30, 2004); and 70 FR 44470 (August 3, 2005).
2006) (hereafter ``South Coast''). On June 8, 2007, in South Coast Air
several petitions for rehearing, the D.C. Circuit clarified that the
under subpart 2 of Title I, part D of the CAA as 8-hour nonattainment
attainment of the 1-hour NAAQS, or for failure to attain that NAAQS.
In addition, the June 8 decision clarified that the Court's
budgets were available for 8-hour conformity determinations, which is
already required under EPA's conformity regulation. The Court thus
clarified that 1-hour conformity determinations are not required for
anti-backsliding purposes. The Court upheld EPA's authority to revoke
the 1-hour standard provided there were adequate anti-backsliding
provisions. Elsewhere in this document, mainly in section VI. B. ``The
York Area Has Met All Applicable Requirements Under Section 110 and
Part D of the CAA and Has a Fully Approved SIP Under Section 110(k) of
the CAA,'' EPA discusses its rationale why the decision in South Coast
is not an impediment to redesignating the York Area to attainment of
The CAA, Title I, Part D, contains two sets of provisions--subpart
1 and subpart 2--that address planning and control requirements for
nonattainment areas. Subpart 1 (which EPA refers to as ``basic''
nonattainment) contains general, less prescriptive requirements for
nonattainment areas for any pollutant--including ozone--governed by a
NAAQS. Subpart 2 (which EPA refers to as ``classified'' nonattainment)
provides more specific requirements for ozone nonattainment areas. In
2004, the York Area was classified a basic 8-hour ozone nonattainment
area based on air quality monitoring data from 2001-2003. Therefore,
the York Area is subject to the requirements of subpart 1 of Part D.
average ambient air quality ozone concentrations is less than or equal
completeness as determined in Appendix I of 40 CFR part 50. The ozone
monitoring data indicates that the York Area has a design value of
0.081 ppm for the 3-year period of 2004-2006, using complete, quality-
assured data. Therefore, the ambient ozone data for the York Area
The York Area consists of York and Adams Counties, Pennsylvania.
York Area was a marginal 1-hour ozone nonattainment area, and
therefore, was subject to requirements for marginal nonattainment areas
pursuant to section 182(a) of the CAA. See 56 FR 56694 (November 6,
1991). EPA determined that the York Area has attained the 1-hour ozone
NAAQS by the November 15, 1993 attainment date (60 FR 3349, January 17,
On June 14, 2007, PADEP requested that the York Area be
ozone had been achieved in the York Area. The data satisfies the CAA
requirements that the 3-year
concentration (commonly referred to as the area's design value), must
be less than or equal to 0.08 ppm (i.e., 0.084 ppm when rounding is
considered). Under the CAA, a nonattainment area may be redesignated if
sufficient complete, quality-assured data is available to determine
that the area has attained the standard and the area meets the other
CAA redesignation requirements set forth in section 107(d)(3)(E).
area to attainment. Specifically, section 107(d)(3)(E) of the CAA,
Memorandum from Bill Laxton, June 18, 1990;
On June 14, 2007, PADEP requested redesignation of the York Area to
attainment for the 8-hour ozone standard. On June 14, 2007, PADEP
submitted a maintenance plan for the York Area as a SIP revision, to
ensure continued attainment of the 8-hour ozone NAAQS over the next 11
years, until 2018. PADEP also submitted a 2002 base year inventory
concurrently with its maintenance plan as a SIP revision. EPA has
determined that the York Area has attained the 8-hour ozone standard
and has met the requirements for redesignation set forth in section
designation of the York Area from nonattainment to attainment for the
8-hour ozone NAAQS found at 40 CFR part 81. It would also incorporate
into the Pennsylvania SIP a 2002 base year inventory and a maintenance
plan ensuring continued attainment of the 8-hour ozone NAAQS in the
York Area for the next 11 years, until 2018. The maintenance plan
includes contingency measures to remedy any future violations of the 8-
hour NAAQS (should they occur), and identifies the NOX and
VOC MVEBs for transportation conformity purposes for the years 2009 and
2018. These MVEBs are displayed in the following table:
Table 1.--Motor Vehicle Emissions Budgets in Tons per Summer Day (tpsd)
Year                             VOC      NOX
2009..................................................     15.9     22.8
2018..................................................      9.0     10.0
EPA is proposing to determine that the York Area has attained the
8-hour ozone standard and that all other redesignation criteria have
been met. The following is a description of how the PADEP's June 14,
2007 submittal satisfies the requirements of section 107(d)(3)(E) of
8-hour ozone NAAQS. For ozone, an area may be considered to be
average ozone concentrations, measured at each monitor within the area
over each year, must not exceed the ozone standard of 0.08 ppm. Based
on the rounding convention described in 40 CFR part 50, Appendix I, the
generally should have remained at the same
In the York Area, there are two ozone monitors, located in York
County (York) and another in Adams County (Biglerville) that measures
air quality with respect to ozone. As part of its redesignation
request, Pennsylvania referenced ozone monitoring data for the years
2004-2006 for the York Area. This data has been quality assured and is
recorded in the AQS. PADEP uses the AQS as the permanent database to
maintain its data and quality assures the data transfers and content
for accuracy. The fourth-highest 8-hour daily maximum concentrations,
along with the three-year average are summarized in Table 2.
Table 2.--York Area Fourth Highest 8-Hour Average Values
Annual 4th highest reading
Monitor/County/AIRS ID         --------------------------------
York County Monitor/AQS ID 42-133-0008.       .077       .089       .077
Adams County Monitor/AQS ID 42-001-0002       .072       .080      .074
The average for the 3-year period 2004-2006 is 0.081 ppm (based on York
Monitor/AQS 42-133-0008).
The air quality data for 2004-2006 show that the York Area has
attained the standard with a design value of 0.081 ppm. The data
collected at the York Area monitor satisfies the CAA requirement that
average ozone concentration is less than or equal to 0.08 ppm. PADEP's
request for redesignation for the York Area indicates that the data is
complete and was quality assured in accordance with 40 CFR part 58. In
addition, as discussed below with respect to the maintenance plan,
PADEP has committed to continue monitoring in accordance with 40 CFR
part 58. In summary, EPA has determined that the data submitted by
Pennsylvania and data taken from AQS indicate that the York Area has
B. The York Area Has Met All Applicable Requirements Under Section 110
and Part D of the CAA and Has a Fully Approved SIP Under Section 110(k)
EPA has determined that the York Area has met all SIP requirements
applicable for purposes of this redesignation under section 110 of the
CAA (General SIP Requirements) and that it meets all applicable SIP
requirements under Part D of Title I of the CAA, in accordance with
section 107(d)(3)(E)(v). In addition, EPA has determined that the SIP
is fully approved with respect to all requirements applicable for
purposes of redesignation in accordance with section 107(d)(3)(E)(ii)
of the CAA. In making these proposed determinations, EPA ascertained
which requirements are applicable to the York Area and determined that
the applicable portions of the SIP meeting these requirements are fully
approved under section 110(k) of the CAA. We note that SIPs must be
requesting redesignation to attainment must meet only the relevant CAA
requirements that came due prior to the submittal of a complete
redesignation request. See also, Michael Shapiro memorandum, September
17, 1993, and 60 FR 12459, 12465-66 (March 7, 1995) (redesignation of
Detroit-Ann Arbor). Applicable requirements of the CAA that come due
subsequent to the area's submittal of a complete redesignation request
remain applicable until a redesignation is approved, but are not
required as a prerequisite to redesignation. Section 175A(c) of the
CAA. Sierra Club v. EPA, 375 F.3d 537 (7th Cir. 2004). See also, 68 FR
at 25424, 25427 (May 12, 2003) (redesignation of St. Louis).
under the relevant redesignation provisions of the CAA and longstanding
Section 110(a)(2) of Title I of the CAA delineates the general
requirements for a SIP, which include enforceable emissions limitations
and other control measures, means, or techniques, provisions for the
establishment and operation of appropriate devices necessary to collect
data on ambient air quality, and programs to enforce the limitations.
The general SIP elements and requirements set forth in section
110(a)(2) include, but are not limited to the following:
for NSR permit programs;
Air Interstate Rule (CAIR), May 12, 2005 (70 FR 25162). However,
[[Page 60300]]
area in the State. Thus, we do believe that these requirements are
of redesignation. The York Area will still be subject to these
requirements, which are linked with a particular area's designation and
classification, are the relevant measures to evaluate in reviewing a
oxygenated fuels requirement. See, Reading, Pennsylvania, proposed and
hour) NAAQS.'' 69 FR 23951, 23983 (April 30, 2004).
the York Area prior to the submission of the redesignation request.
Because the Pennsylvania SIP satisfies all of the applicable
general SIP elements and requirements set forth in section 100(a)(2),
EPA concludes that Pennsylvania has satisfied the criterion of section
107(d)(3)(e) regarding section 110 of the CAA.
Pursuant to an April 30, 2004, final rule (69 FR 23951), the York
Area was designated a basic nonattainment area under subpart 1 for the
8-hour ozone standard. Sections 172-176 of the CAA, found in subpart 1
of Part D, set forth the basic nonattainment requirements applicable to
all nonattainment areas. Section 182 of the CAA, found in subpart 2 of
Part D, establishes additional specific requirements depending on the
the area cannot now go forward. This belief is based upon: (1) EPA's
with the requirements due at the time the request is submitted; and (2)
At the time the redesignation request was submitted, the York Area
was classified under subpart 1 and was obligated to meet subpart 1
requirements. Under EPA's longstanding interpretation of section
107(d)(3)(E) of the CAA, to qualify for redesignation, states
requesting redesignation to attainment must meet only the relevant SIP
redesignation request. See, September 4, 1992 Calcagni memorandum
(``Procedures for Processing Requests to Redesignate Areas to
Detroit-Ann Arbor); Sierra Club v. EPA, 375 F.3d 537 (7th Cir. 2004),
which upheld this interpretation; 68 FR 25418, 25424, 25427 (May 12,
2003) (redesignation of St. Louis).
submitted. The D.C. Circuit has recognized the inequity in such
retroactive rulemaking. See, Sierra Club v. Whitman, 285 F. 3d 63 (D.C.
Cir. 2002), in which the D.C. Circuit upheld a District Court's ruling
was past the statutory due date. Such determination would have resulted
in the imposition of additional requirements on that area. The Court
stated: ``Although EPA failed to make the nonattainment determination
within the statutory time frame, Sierra Club's proposed solution only
makes the situation worse. Retroactive relief would likely impose large
costs on the States, which would face fines and suits for not
implementing air pollution prevention plans in 1997, even though they
were not on notice at the time.'' Id. at 68. Similarly, here it would
be unfair to penalize the area by applying to it for purposes of
redesignation, additional SIP requirements under subpart 2 that were
With respect to 8-hour subpart 2 requirements, if the York Area
initially had been classified under subpart 2, the first two Part D
subpart 2 requirements applicable to the York Area under section 182(a)
of the CAA would be a base year inventory requirement pursuant to
section 182(a)(1) of the CAA, and the emissions statement requirement
pursuant to section 182(a)(3)(B).
As stated previously, these requirements are not due for purposes
of redesignation of the York Area, but nevertheless, Pennsylvania
already has in its approved SIP, an emissions statement rule for the 1-
hour standard that covers all portions of the designated 8-hour
nonattainment area, and that satisfies the emissions statement
requirement for the 8-hour standard. See, 25 Pa. Code 135.21(a)(1)
to the base year inventory requirement, in this notice of proposed
rulemaking, EPA is proposing to approve the 2002 base year inventory
for the York Area, which was submitted on June 14, 2007, concurrently
with its maintenance plan, into the Pennsylvania SIP. EPA is proposing
to approve the 2002 base year inventory as fulfilling the requirements,
if necessary, of both sections 182(a)(1) and 172(c)(3) of the CAA. A
detailed evaluation of Pennsylvania's 2002 base year inventory for the
York Area can be found in a Technical Support Document (TSD)
[[Page 60301]]
prepared by EPA for this rulemaking. EPA has determined that the
emission inventory and the emissions statement for the York Area have
176(c) of the CAA requires states to establish criteria and procedures
to ensure that Federally-supported or funded projects conform to the
that the CAA required the EPA to promulgate. EPA believes it is
In the case of the York Area, EPA has also determined that before
being redesignated, the York Area need not comply with the requirement
that an NSR program be approved prior to redesignation. EPA has also
determined that areas being redesignated need not comply with the
requirement that an NSR program be approved prior to redesignation,
Radiation, dated October 14, 1994, entitled ``Part D NSR Requirements
of Areas Requesting Redesignation to Attainment.'' Normally, a State's
rulemakings: Detroit, MI (60 FR 12467-12468, March 7, 1995); Cleveland-
Akron-Lorrain, OH (61 FR 20458, 20469-70, May 7, 1996); Louisville, KY
(66 FR 53665, 53669, October 23, 2001); Grand Rapids, MI (61 FR 31831,
31836-31837, June 21, 1996). In the case of the York Area, the Chapter
127 Part D NSR regulations in the Pennsylvania SIP (codified at 40 CFR
52.2020(c)(1)) explicitly apply the requirements for NSR in section 184
of the CAA to ozone attainment areas within the ozone transport region
(OTR). The OTR NSR requirements are more stringent than that required
for a marginal or basic ozone nonattainment area. On October 19, 2001
(66 FR 53094), EPA fully approved Pennsylvania's NSR SIP revision
consisting of Pennsylvania's Chapter 127 Part D NSR regulations that
cover the York Area.
Inspection and Maintenance (I/M) programs even after redesignation.
Second, the section 184 control measures are region-wide requirements
and do not apply to the York Area by virtue of the area's designation
and classification. See, 61 FR 53174, 53175-53176 (October 10, 1996)
and 62 FR 24826, 24830-32 (May 7, 1997).
In its June 8, 2007 decision the Court limited its vacatur so as to
uphold those provisions of the anti-backsliding requirements that were
not successfully challenged. Therefore the Area must meet the federal
anti-backsliding requirements, see 40 CFR 51.900, et seq.; 70 FR 30592,
30604 (May 26, 2005), which apply by virtue of the area's
classification for the 1-hour ozone NAAQS. As set forth in more detail
below, the area must also address four additional anti-backsliding
provisions identified by the Court in its decisions.
``The area remains subject to the obligation to adopt and implement the
applicable requirements as defined in section 51.900(f), except as
``Applicable requirements means for an area the following requirements
to the extent such requirements applied to the area for the area's
classification under section 181(a)(1) of the CAA for the 1-hour NAAQS
at the time of designation for the 8-hour NAAQS.''
hours as required by section 182(e)(4) of the CAA.
section 51.905(a)(1)(ii).''
Pursuant to 40 CFR 51.905(c), the York Area is subject to the
obligations set forth in 51.905(a) and 51.900(f).
York Area was designated a marginal nonattainment area for the 1-hour
standard. With respect to the 1-hour standard, the applicable
51.905(a)(1) for the York Area are limited to the RACT and I/M programs
specified in section 182(a) of the CAA and are discussed in the
RACT for sources in marginal areas, such as the York Area, that were
subject to control technique guidelines (CTGs) issued before November
15, 1990 pursuant to CAA section 108. On December 22, 1994, EPA fully
approved into the Pennsylvania SIP all corrections required under
section 182(a)(2)(A) of
[[Page 60302]]
the CAA (59 FR 65971, December 22, 1994). EPA believes that this
requirement applies only to marginal and higher classified areas under
the 1-hour NAAQS pursuant to the 1990 amendments to the CAA; therefore,
this is a one-time requirement. After an area has fulfilled the section
182(a)(2)(A) requirement for the 1-hour NAAQS, there is no requirement
under the 8-hour NAAQS.
Section 182(a)(2)(B) of the CAA relates to the savings clause for
certain I/M programs. It requires marginal areas to adopt vehicle I/M
programs. This provision was not applicable to the York Area because
this area did not have nor was required to have an I/M program before
Nonattainment area NSR; (2) Section 185 penalty fees; (3) contingency
measures under section 172(c)(9) or 182(c)(9) of the CAA; and (4) 1-
hour motor vehicle emissions budgets that were yet not replaced by 8-
The section 185 penalty fee requirement applies only to severe and
extreme nonattainment areas, and was never applicable in the York 1-
hour marginal nonattainment area.
redesignation request for the York Area except to the extent that the
Court in its June 8 decision clarified that for those areas with 1-hour
MVEBs, anti-backsliding requires that those 1-hour budgets must be used
There are no applicable 1-hour MVEBs for the York Area. (As discussed
elsewhere in this document, EPA is proposing to approve 8-hour MVEBs
for the York Area.) To meet this requirement, conformity determinations
in such areas must comply with the applicable requirements of EPA's
conformity regulations at 40 CFR Part 93. The court clarified that 1-
hour conformity determinations are not required for anti-backsliding
Thus EPA has concluded that the York Area has met all requirements
section 184 requirements include RACT, NSR, enhanced vehicle inspection
and maintenance (I/M), and Stage II vapor recovery or a comparable
In the case of the York Area, which is located in the OTR,
well as RACT, and I/M even after redesignation. Second, the section 184
control measures are region-wide requirements and do not apply to the
area by virtue of the area's nonattainment designation and
classification, and thus are properly considered not relevant to an
action changing an area's designation. See 61 FR 53174, 53175-53176
redesignation request. Calcagni Memo, p. 3; Southwestern Pennsylvania
Growth Alliance v. Browner, 144 F. 3d 984, 989-90 (6th Cir. 1998); Wall
may approve in conjunction with a redesignation action. See also, 68 FR
at 25425 (May 12, 2003) and citations therein.
C. The Air Quality Improvement in the York Area Is Due to Permanent and
Other Permanent and Enforceable Reductions
observed air quality improvement in the York Area is due to permanent
Emissions reductions attributable to these rules are shown in Table 3.
Year                              Point       Area     Nonroad     Mobile     Total
2002.....................................................        8.5       27.1       25.3       10.4       71.3
2004.....................................................        5.3       26.8       21.3       10.1       63.5
Diff. (02-04)............................................       -3.2       -0.3       -4.0       -0.3       -7.8
2002.....................................................       70.2        2.9       36.6       14.3      124.0
2004.....................................................       75.3        3.0       31.9       13.7      123.9
Diff. (02-04)............................................        5.1        0.1       -4.7       -0.6       -0.1
[[Page 60303]]
Between 2002 and 2004, VOC emissions decreased by 7.8 tpsd, and
NOX emissions decreased by 0.1 tpsd. These reductions, and
anticipated future reductions, are due to the following permanent and
enforceable measures.
--Tier 1 (56 FR 25724, June 5, 1991).
--Tier 2 (65 FR 6698, February 10, 2000).
Heavy-duty Engine and Vehicle Standards (62 FR 54694, October 21,
National Low Emission Vehicle (NLEV) Program (PA) (64 FR 72564,
December 28, 1999).
Vehicle Emission Inspection/Maintenance Program (70 FR 58313,
EPA believes that permanent and enforceable emissions reductions
are the cause of the long-term improvement in ozone levels and are the
cause of the York Area achieving attainment of the 8-hour ozone
D. The York Area Has a Fully Approvable Maintenance Plan Pursuant to
Section 175A of the CAA
In conjunction with its request to redesignate the York Area to
attainment status, Pennsylvania submitted a SIP revision to provide for
maintenance of the 8-hour ozone NAAQS in the York Area for at least 11
years after redesignation. The Commonwealth is requesting that EPA
approve this SIP revision as meeting the requirement of CAA 175A. Once
approved, the maintenance plan for the 8-hour ozone NAAQS will ensure
that the SIP for the York Area meets the requirements of the CAA
regarding maintenance of the applicable 8-hour ozone standard.
Section 175 of the CAA sets forth the elements of a maintenance
the applicable NAAQS for at least 10 years after approval of a
violations. Section 175A of the CAA sets forth the elements of a
attainment. The Calcagni memo provides additional guidance on the
content of a maintenance plan. An ozone maintenance plan should address
reductions attributable to implementation of the CAA requirements to
The 2002 area source data was compiled using county-level activity
data, from census numbers, from county numbers, etc. The 2004 area
source data was projected from the 2002 inventory using temporal
conversion factors. There are no commercial aircraft operations in York
and Adams Counties. For 2002 and 2004 aircraft emissions, PADEP
estimated emissions using small airport operations statistics from
http://www.airnav.com, and emission factors and operational
characteristics in the EPA-approved model, Emissions and Dispersion
Modeling System (EDMS).
are part of the June 14, 2007 state submittal.
(b) Maintenance Demonstration--On June 14, 2007, the PADEP
submitted a maintenance plan as required by section 175A of the CAA.
The York Area maintenance plan shows maintenance of the 8-hour ozone
NAAQS by demonstrating that current and future emissions of VOC and
NOX remain at or below the attainment year 2004 emissions
levels throughout the York Area through the year 2018. A maintenance
demonstration need not be based on modeling. See, Wall v. EPA, supra;
Sierra Club v. EPA, supra. See also, 66 FR at 53099-53100; 68 FR at
25430-25432.
York Area for 2004, 2009, and 2018. The PADEP chose 2009 as an interim
year in the maintenance demonstration period to demonstrate that the
VOC and NOX emissions are not projected to increase
2004 VOC     2009 VOC     2018 VOC
Source category            emissions    emissions    emissions
Point*...........................          5.3          8.2         10.1
Area.............................         26.8         26.2         28.9
Mobile**.........................         21.3         15.9          9.0
Nonroad..........................         10.1          8.4          6.9
Total........................         63.5         58.7         54.9
*The stationary point source emissions shown here do not include
available banked emission credits as indicated in Appendix A-4
submitted with the maintenance plan.
**Includes safety margin identified in the motor vehicle emission
budgets for transportation conformity.
2004 NOX     2009 NOX     2018 NOX
Point*...........................         75.3         74.1         79.7
Area.............................          3.0          3.1          3.3
Mobile**.........................         31.9         22.8         10.0
Non-road.........................         13.7         11.2          6.5
Total........................        123.9        111.2         99.5
available banked emission credits as indicated in Appendix A-4.
The Clean Air Interstate Rule (CAIR) (71 FR 25328, April
Area VOC regulations concerning portable fuel containers
(69 FR 70893, December 8, 2004), consumer products (69 FR 70895,
December 8, 2004), and architectural and industrial maintenance
coatings (AIM) (69 FR 68080, November 23, 2004).
Federal Motor Vehicle Control Programs (light-duty) (Tier
1, Tier 2; 56 FR 25724, June 5, 1991; 65 FR 6698, February 10, 2000).
Vehicle emission/inspection/maintenance program (70 FR
58313, October 6, 2005).
Heavy duty diesel on-road (2004/2007) and low sulfur on-
road (2006) (66 FR 5002, January 18, 2001).
Non-road emission standards (2008) and off-road diesel
fuel (2007/2010) (69 FR 38958 June 29, 2004).
NLEV/PA Clean Vehicle Program (54 FR 72564, December 28,
1999)--Pennsylvania will implement this program in car model year 2008.
Pennsylvania Heavy-Duty Diesel Emissions Control Program
(May 10, 2002).
attainment year emissions along with the additional measures, EPA
concludes that PADEP has successfully demonstrated that the 8-hour
ozone standard should be maintained in the York Area.
(c) Monitoring Network--There are currently two monitors measuring
ozone in the York Area. PADEP will continue to operate its current air
quality monitor (located in York and Adams Counties), in accordance
(d) Verification of Continued Attainment--In addition to
maintaining the key elements of its regulatory program, the
Commonwealth will track the attainment status of the ozone NAAQS in the
York Area by reviewing air quality and emissions data during the
maintenance period. The Commonwealth will perform an annual evaluation
of Vehicle Miles Traveled (VMT) data and emissions reported from
stationary sources, and compare them to the assumptions about these
factors used in the maintenance plan. The Commonwealth will also
evaluate the periodic (every three years) emission inventories prepared
under EPA's Consolidated Emission Reporting Regulation (40 CFR part 51,
subpart A) to see if they exceed the attainment year inventory (2004)
by more than 10 percent. PADEP will also continue to operate the
existing ozone monitoring station in the York Area pursuant to 40 CFR
part 58 throughout the maintenance period and submit quality-assured
ozone data to EPA through the AQS system. Section 175A(b) of the CAA
states that eight years following the redesignation of the York Area,
PADEP will be required to submit a second maintenance plan that will
ensure attainment through 2028. PADEP has made that commitment to meet
the requirement of section 175A(b).
(e) The Maintenance Plan's Contingency Measures--The contingency
plan provisions are designed to promptly correct a violation of the
NAAQS that occurs after redesignation. Section 175A of the CAA requires
that a maintenance plan include such contingency measures as EPA deems
necessary to ensure that the State will promptly correct a violation of
identify the events that would ``trigger'' the adoption and
implementation of a contingency measure(s), the contingency measure(s)
that would be adopted and implemented, and the schedule indicating the
timeframe by which the state would adopt and implement the measure(s).
The ability of the York Area to stay in compliance with the 8-hour
ozone standard after redesignation depends upon VOC and NOX
emissions in the area remaining at or below 2004 levels. The
Commonwealth's maintenance plan projects VOC and NOX
emissions to decrease and stay below 2004 levels through the year 2018.
Commonwealth's maintenance plan outlines the procedures for the
adoption and implementation of contingency measures to further reduce
emissions should a violation occur.
Contingency measures will be considered if for two consecutive
years the fourth highest 8-hour ozone concentrations at the York and
Adams Counties monitors are above 84 ppb. If this trigger point occurs,
the Commonwealth will evaluate whether additional local emission
control measures should be implemented in order to prevent a violation
of the air quality standard. PADEP will also analyze the conditions