99-28310. Approval and Promulgation of State Implementation Plans; Minnesota  

  • [Federal Register Volume 64, Number 209 (Friday, October 29, 1999)]
    [Rules and Regulations]
    [Pages 58347-58355]
    From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
    [FR Doc No: 99-28310]
    
    
    -----------------------------------------------------------------------
    
    ENVIRONMENTAL PROTECTION AGENCY
    
    40 CFR Parts 52 and 81
    
    [MN58-01-7283; FRL-6465-4]
    
    
    Approval and Promulgation of State Implementation Plans; 
    Minnesota
    
    AGENCY: Environmental Protection Agency.
    
    ACTION: Final rule.
    
    -----------------------------------------------------------------------
    
    SUMMARY: The Environmental Protection Agency (EPA) is approving the 
    State of Minnesota's request to redesignate the Minneapolis/St. Paul 
    area, which includes Anoka, Carver, Dakota, Hennepin, Ramsey, Scott, 
    Washington, and Wright Counties to attainment for carbon monoxide (CO). 
    The EPA is also approving the corresponding 175A maintenance plan 
    associated with the redesignation request as a revision to the 
    Minnesota State Implementation Plan (SIP) for attaining and maintaining 
    the National Ambient Air Quality Standard (NAAQS) for CO. The EPA 
    proposed to approve this plan on May 13, 1999 (64 FR 25855).
    
    DATES: This rule will be effective November 29, 1999.
    
    ADDRESSES: Copies of the SIP revision, public comments and EPA's 
    responses are available for inspection at the following address: 
    Regulation Development Section, Air Programs Branch (AR-18J), United 
    States Environmental Protection Agency, 77 West Jackson Boulevard, 
    Chicago, Illinois 60604. (It is recommended that you telephone Michael 
    Leslie at (312) 353-6680 before visiting the Region 5 Office.)
        A copy of these SIP revisions are available for inspection at the 
    following location: Office of Air and Radiation (OAR) Docket and 
    Information Center (Air Docket 6102), room M1500, United States 
    Environmental Protection Agency, 401 M Street S.W., Washington, D.C. 
    20460, (202) 260-7548.
    
    FOR FURTHER INFORMATION CONTACT: Michael G. Leslie, Regulation 
    Development Section (AR-18J), Air Programs Branch, Air and Radiation 
    Division, United States Environmental Protection Agency, Region 5, 77 
    West Jackson Boulevard, Chicago, Illinois 60604, (312) 353-6680.
    
    SUPPLEMENTARY INFORMATION:
    
    Table of Contents
    
    I. Background
    II. Public Comments
        A. Comments from the Izaak Walton League of America
        B. Comments from Envirotest Corporation
        C. Comments from Environ Corporation
    III. EPA Final Action
    IV. Administrative Requirements
        A. Executive Order 12866
        B. Executive Order 12875
        C. Executive Order 13045
        D. Executive Order 13084
        E. Regulatory Flexibility Act
        F. Unfunded Mandates Act
        G. Submission to Congress and the Comptroller General
        H. National Technology Transfer and Advancement Act
        I. Petitions for Judicial Review
    
    I. Background
    
    A. Minneapolis/St. Paul CO Nonattainment Area
    
        On March 3, 1978 (43 FR 8902), pursuant to section 107 of the Clean 
    Air Act (Act), EPA designated the Minneapolis/St. Paul area as 
    nonattainment for CO. Under the 1990 amendments to the Act, the EPA is 
    authorized to designate nonattainment areas and to classify them 
    according to degree of severity. Therefore, on November 16, 1991 (56 FR 
    56694), the EPA designated the Minneapolis/St. Paul area moderate CO 
    nonattainment.
    
    [[Page 58348]]
    
    B. Redesignation Request
    
        On March 23, 1998, pursuant to Section 107(d)(3) of the Act, the 
    State of Minnesota requested the redesignation of the Minneapolis/St. 
    Paul area to attainment with respect to the CO NAAQS. In order to 
    qualify for redesignation, an area must first demonstrate that 
    monitored air quality levels are within the applicable NAAQS. Since 
    attaining the standard in 1995 and 1996, air quality monitors in the 
    Minneapolis/St. Paul area continue to show attainment of the CO NAAQS. 
    Therefore, pursuant to section 107(d) of the Act, the area is eligible 
    for redesignation from nonattainment to attainment. In order to ensure 
    continued attainment of the CO standard, Minnesota also submitted a 
    maintenance plan under section 175A of the Act. Once redesignation is 
    approved, the section 175A maintenance plan will become a federally 
    enforceable part of the SIP for the Minneapolis/St. Paul area.
    
    II. Public Comments
    
        On May 13, 1999, the EPA proposed approval of a revision to the 
    Minnesota SIP for attainment and maintenance for the NAAQS for CO (64 
    FR 25855) and opened a 30 day comment period on the proposed action. 
    During the comment period, the Izaak Walton League of America, 
    Envirotest Corporation, and Envirotest Corporation's consultant ENVIRON 
    submitted adverse comments on EPA's proposed action. These comments are 
    summarized below, along with EPA's response.
    
    A. Comments From the Izaak Walton League of America
    
        Comment: Discontinuance of the Vehicle Inspection/Maintenance (I/M) 
    Program Leaves the State without a Fully-Approved SIP for the Area.
        In the proposal, EPA stated that the Agency ``will not finalize its 
    approval of the redesignation until such time that EPA approves the 
    state's I/M SIP for the Minneapolis St. Paul area.'' 64 FR 25855, 25858 
    (May 13, 1999). But the Legislature has subsequently discontinued the 
    I/M program. Clearly, EPA cannot finalize this proposed redesignation 
    without a fully approved SIP in place. 42 U.S.C. 
    Sec. 7407(d)(3)(E)(ii). Just as clearly, EPA has stated that a fully 
    approved SIP sufficient to justify a redesignation to attainment for CO 
    must include an EPA-approved vehicle I/M program.
        EPA Response: As discussed in the May 13, 1999 proposal, the SIP 
    for the Minneapolis/St. Paul area must be fully approved in order to be 
    redesignated to attainment. At the time of proposal, the EPA had 
    approved every required element into the SIP, except for the I/M 
    program. As noted in EPA's proposed action on the redesignation 
    request, final approval of the redesignation request is contingent on 
    the approval of the I/M program. EPA proposed full approval of the I/M 
    plan on August 6, 1999 (64 FR 42888) and is finalizing its approval 
    elsewhere in today's Federal Register.
        Furthermore, EPA policy contained in a September 4, 1992, 
    memorandum from John Calcagni, Director of the Air Quality Management 
    Division entitled ``Procedures for Processing Requests to Redesignate 
    Areas to Attainment'' (Calcagni memo) notes that ``the State will be 
    expected to maintain its implemented control strategy despite 
    redesignation to attainment, unless such measures are shown to be 
    unnecessary for maintenance.'' Additional guidance on this issue is 
    contained in a memorandum dated September 17, 1993, from Michael 
    Shapiro, Acting Assistant Administrator for Air and Radiation entitled, 
    ``State Implementation Plan Requirements for Areas Submitting Requests 
    for Redesignation to Attainment of the Ozone and Carbon Monoxide 
    National Ambient Air Quality Standards on or after November 15, 1992'' 
    (Shapiro memo). This memo states:
    
        As a general policy, a State may not relax the adopted and 
    implemented SIP upon the area's redesignation to attainment. States 
    should continue to implement existing control strategies in order to 
    maintain the standard. However, section 175A recognizes that States 
    may be able to move SIP measures to the contingency plan upon 
    redesignation if the State can adequately demonstrate that such 
    action will not interfere with maintenance of the standard. The type 
    of demonstration necessary is dependent upon the pollutant for which 
    the area has been redesignated to attainment.
        In order to make such a demonstration for an area redesignated 
    to attainment for CO, EPA believes that the State could submit a 
    revised control strategy demonstration showing that the measure is 
    not necessary to maintain the standard.
    
        In its redesignation request, Minnesota shows through an emissions 
    analysis, as well as through microscale modeling, that the area can 
    maintain the CO NAAQS without the implementation of the I/M program. 
    This analysis is described in more detail in EPA's proposed approval of 
    the State's I/M SIP published on August 6, 1999 (64 FR 42888). The EPA 
    has reviewed the State's emissions inventory and modeling analyses and 
    finds that they meet applicable guidance and requirements. Therefore, 
    the State has made the necessary demonstration that the I/M program is 
    not necessary to maintain the CO NAAQS. In accordance with this policy, 
    the State must include the program as a contingency measure in the 
    maintenance plan for the redesignated area, which it has done.
        Today's approval of Minnesota's I/M SIP applies to the program 
    while it remains in effect, while recognizing the potential 
    redesignation of the Minneapolis/St. Paul area to attainment. This 
    action also approves the State's plan to discontinue the program after 
    the area is redesignated to attainment and move it to the contingency 
    measures portion of the maintenance plan for the area in accordance 
    with the policy noted above and the requirements of the Act. The State 
    has made the necessary corrections to its I/M plan, and has also made 
    the appropriate demonstrations that the program is not necessary for 
    attainment. Therefore, the I/M plan has been fully approved, fulfilling 
    the requirement that the area have a fully approved SIP in order to be 
    redesignated to attainment.
        Comment: Minnesota has not demonstrated that the improvements to CO 
    are due to permanent and enforceable emissions decreases.
        EPA also must determine that the improvement in air quality is due 
    to permanent and enforceable reductions in emissions before an area can 
    be redesignated. 42 U.S.C. 7407(d)(3)(E)(iii). The State has based its 
    request on statements that this element has been met through the 
    implementation of federally enforceable FMVCP, oxygenated fuel and 
    vehicle I/M reductions. But as noted above, the vehicle I/M program 
    will no longer be implemented.
        EPA response: Section 107(d)(3)(E)(iii) requires that, for the EPA 
    to approve a redesignation, it must determine that the improvement in 
    air quality is due to permanent and enforceable reductions in 
    emissions. The Calcagni memo clarifies this requirement by stating that 
    ``attainment resulting from temporary reductions in emission rates 
    (e.g., reduced production or shutdown due to temporary adverse economic 
    conditions) or unusually favorable meteorology would not qualify as an 
    air quality improvement due to permanent and enforceable emission 
    reductions.'' As discussed in the May 13, 1999 Federal Register notice, 
    the Minneapolis/St. Paul area has reasonably demonstrated that 
    permanent and enforceable emission reductions are responsible for the 
    recent improvement in air quality. This demonstration was accomplished 
    through an estimate of the reductions
    
    [[Page 58349]]
    
    (from a nonattainment year, 1990 to an attainment year, 1996) of CO 
    achieved primarily through implementation of the Federal Motor Vehicle 
    Control Program (FMVCP), oxygenated gasoline and the I/M program, in 
    line with the Calcagni memo. However, since the I/M program may be 
    discontinued upon redesignation, the EPA has analyzed the State's 
    emissions data to ensure that the area can meet the permanent and 
    enforceable test without counting the I/M program. This analysis 
    indicates that the permanent and enforceable reductions from FMVCP and 
    the oxygenated gasoline programs are large enough to meet the permanent 
    and enforceable test without reductions from I/M. The State, therefore, 
    adequately demonstrated that the improvement in air quality is due to 
    permanent and enforceable emission reductions.
        The commentor notes that the I/M program will be discontinued in 
    future years. A future year analysis is necessary as part of an 
    approvable maintenance plan under sections 107(d)(3)(E)(iv) and 175(A) 
    of the Act. In general, maintenance plans are designed to show that an 
    area will continue to remain in attainment of the applicable NAAQS for 
    a period of at least ten years beyond approval of a redesignation 
    request. As noted in the Calcagni memo, States must make a maintenance 
    demonstration, either through an emissions analysis, or through 
    computer modeling, that future year emissions levels will not cause a 
    violation of the NAAQS. This demonstration should include an analysis 
    of future growth in industry and population, increases in the number of 
    vehicle miles traveled, and other changes that would affect air quality 
    levels in the area, such as the discontinuation of a required control 
    program. The State of Minnesota has made this demonstration through 
    both the emissions analysis and modeling methods in accordance with 
    EPA's emissions inventory and modeling guidance. The State's Technical 
    Support Document (TSD) for the redesignation request contains an 
    analysis of emissions levels with and without the I/M program, and has 
    shown that the CO standard can be maintained without I/M in the future. 
    A more detailed discussion of the I/M demonstration is contained in 
    EPA's proposed approval of the I/M SIP, published on August 6, 1999 (64 
    FR 42888).
        Comment: Minnesota does not have an approvable maintenance plan for 
    the area.
        Minnesota also must submit, and EPA must approve, a maintenance 
    plan for the area. 42 U.S.C. 7407(d)(3)(E)(iv). EPA has stated that an 
    approvable maintenance plan for the area must include the state's 
    continuance of ``all the control measures contained in the SIP prior to 
    redesignation,'' and contingency measures in the event of a future CO 
    problem. 64 FR 25855, 25859 (May 13, 1999). Among those contingency 
    measures is a basic vehicle I/M program. Id. at 25860-61. But EPA seems 
    unaware that the Minnesota Legislature has invalidated such programs.
        EPA response: As noted in the Calcagni memo ``the State will be 
    expected to maintain its implemented control strategy despite 
    redesignation to attainment, unless such measures are shown to be 
    unnecessary for maintenance.'' Additional guidance on moving 
    implemented programs to the contingency plan portion of the maintenance 
    plan is contained in the Shapiro memo. As noted above, this memo allows 
    for an area to discontinue a required measure and move it to the 
    contingency plan if the State is able to make the appropriate 
    demonstrations. Minnesota has submitted a modeling-based revised 
    control strategy demonstration showing that the area can maintain the 
    CO NAAQS without the implementation of the I/M program. This analysis 
    is described in more detail in EPA's proposed approval of the State's 
    I/M SIP published on August 6, 1999 (64 FR 42888). The EPA has reviewed 
    the State's emissions inventory and modeling analyses and finds that 
    they meet applicable guidance and requirements. Therefore, the State 
    has made the necessary demonstration that the I/M program is not 
    necessary to maintain the CO NAAQS in accordance with the Shapiro memo. 
    As required, the State has included the program as a contingency 
    measure in the maintenance plan for the redesignated area. The 
    commentor is incorrect in stating that the ``Minnesota Legislature has 
    invalidated such programs,'' since the I/M program continues to operate 
    and is clearly identified as a contingency measure in the State's 
    maintenance plan.
        Comment: The redesignation request, coupled with the vehicle I/M 
    discontinuance, means that all requirements of section 110 of the Act 
    are not met.
        In order for an area to be redesignated to attainment, the state 
    must show that it has met ``all requirements applicable to the area 
    under Section 110 of this title and part D of this subchapter.'' 42 
    U.S.C. 7407(d)(3)(E)(v). We read this as requiring the state to 
    demonstrate and the Agency to consider and determine whether plans for 
    implementation, maintenance and enforcement of all NAAQS, promulgated 
    or revised, would continue in the event of the redesignation. This 
    proposal, however, accompanied as it will be by the discontinuance of 
    the vehicle I/M program, will undoubtedly result in increased oxides of 
    nitrogen (NOX) emissions (as well as increased CO). 
    NOX are precursors, along with volatile organic compounds 
    (VOCs), of ozone smog. Automobiles and other vehicles emit 
    NOX and VOCs, as well as CO. When the vehicle I/M program is 
    discontinued, we believe that automobiles will pollute in an unchecked 
    fashion in Minnesota, causing increases in NOX and VOC 
    emissions. Increased NOX emissions, however, and the 
    resulting implications for the area's and state's ability to meet the 
    1-hour and 8-hour NAAQS for ozone have not been assessed as part of 
    this redesignation. We believe that the statute requires EPA to make 
    such an analysis where it is aware that there is a risk that any air 
    quality problem may ensue. Indeed the Agency has noted that contingency 
    plans must be in place ``to assure prompt correction of any air quality 
    problems.'' 64 FR 25855, 25859 (May 13, 1999). However the proposed 
    redesignation does not include analysis of the potential effects on the 
    area's ozone status to be expected from the CO redesignation and 
    subsequent lifting of the vehicle I/M program. We believe this makes 
    the redesignation request unapprovable.
        EPA response: As noted above, the State's I/M SIP is approved 
    elsewhere in today's Federal Register. As a result, the area has met 
    all requirements of section 110 and Part D of the Act. At present, the 
    I/M program remains in operation and the State has made the required 
    demonstrations to discontinue the program after redesignation to 
    attainment for CO.
        Under the sections 107 and 175A of the Act, the State is only 
    required to address the pollutant for which the area was violating and 
    demonstrate that there will not be subsequent violations of the 
    applicable NAAQS following redesignation. The State has performed 
    modeling that shows continued attainment of the CO standard, and 
    projected CO emissions through the maintenance period which show 
    decreases from the attainment level. Notwithstanding the commentor's 
    interpretation of EPA's proposed action, which stated that 
    ``maintenance plans must contain contingency measures, with schedules 
    to assure prompt correction of any air quality problems' (64 FR 25859), 
    section 175A(d) of the Act specifies that ``each plan revision 
    submitted under this section shall
    
    [[Page 58350]]
    
    contain such contingency provisions as the Administrator deems 
    necessary to assure that the State will promptly correct any violation 
    of the standard which occurs after the redesignation of the area as an 
    attainment area.'' Clearly, this language indicates that contingency 
    plans need only include measures for the pollutant for which the area 
    is being redesignated.
        Section 110(l) of the Act notes that ``the Administrator shall not 
    approve a revision of a plan if the revision would interfere with any 
    applicable requirement concerning attainment and reasonable further 
    progress, or any other applicable requirement of this Act.'' While the 
    I/M program was put into place for purposes of CO, the issue of whether 
    the discontinuation of the I/M program will interfere with the area's 
    ability to meet other applicable NAAQS must be addressed. As noted 
    above,
    I/M programs do have additional air quality benefits in that they 
    reduce emissions of VOC and NOx, both precursors of ground 
    level ozone.
        Historically, however, the Minneapolis/St. Paul area has never 
    experienced a ground level ozone nonattainment problem. The EPA has 
    reviewed monitoring data for the one-hour ozone levels recorded since 
    1980, showing attainment of the one-hour NAAQS. In fact, monitors in 
    the area have not shown a single exceedance of the one-hour ozone NAAQS 
    since 1990. The one-hour ozone NAAQS that was established in 1979 
    allows three exceedances of the standard at any monitor over a three 
    year period before an area is considered to violate the standard. In no 
    year since 1980 have more than two exceedances occurred, including 
    1988, a year known for its high ozone levels around the country. In 
    1980, by far the worst year on record in the Minneapolis/St. Paul area, 
    three monitors in the area recorded only five exceedances of the one-
    hour ozone standard. Even then, the three year values at these monitors 
    did not show a violation of the NAAQS. Since the last exceedance in 
    1990, ozone levels measured in the Minneapolis/St. Paul area have 
    continued to drop off and remain well below the health based one-hour 
    ozone standard. The current ozone design value, the measure that EPA 
    uses to assess the nonattainment status of an area, in Minneapolis/St. 
    Paul is 24 percent below the one-hour ozone NAAQS with a value of .091 
    ppm compared to the .120 ppm standard.
        In 1997, the EPA established a new, more stringent eight-hour ozone 
    standard based on more recent health effects information. Since that 
    time, EPA has been developing guidance and regulations to establish 
    compliance strategies for the new standard. As part of this effort, the 
    EPA will be establishing new nonattainment areas for the eight-hour 
    standard in July 2000. In preparation for this activity, the EPA has 
    analyzed eight-hour ozone data for areas around the country to see 
    which areas have monitored levels over the new standard. The analysis 
    that was done for Minnesota concludes that since 1993, the first year 
    that eight-hour ozone information is available, current eight-hour 
    concentrations are well below the health-based NAAQS. Unlike the one-
    hour standard which is exceedance based, allowing three exceedances 
    over a three year period, the eight-hour standard looks at the average 
    of the fourth highest level over a three year period. Since 1993, no 
    monitor in the area has recorded a fourth high over the eight-hour 
    standard at any time. In order to be considered in violation of the 
    NAAQS, the average of the fourth high over a three year period would 
    need to be over the standard. EPA's analysis shows that monitors in the 
    Minneapolis/St. Paul area are well below these levels, and does not 
    expect the area to experience a nonattainment problem in the future.
        Much of the improvement in ozone levels nationwide has been 
    attributed to the reduction in emissions from the automobile. The EPA 
    continues to establish more stringent motor vehicle emissions standards 
    at the national level and emissions from the automobile continue to 
    drop dramatically. This, along with other control programs, has brought 
    many areas into attainment with the one-hour ozone NAAQS without 
    implementation of I/M programs. The ozone levels recorded in 
    Minneapolis/St. Paul are well below levels seen in areas that have been 
    successfully redesignated. Since the area has never experienced an 
    exceedance of the one-hour ozone standard, continues to show low eight-
    hour ozone values, and automobile emissions continue to decline 
    overall, the EPA has no reason to believe that any marginal increase in 
    VOC and NOX emissions resulting from the shutdown of the I/M 
    program will interfere with the area's ability to meet either the one-
    hour or the eight-hour ozone NAAQS standard.
    
    B. Comments from Envirotest Corporation
    
        Comment: We are concerned with the disposition of a series of CO 
    violations that took place in September 1998. According to the EPA 
    Aerometric Information Retrieval System (AIRS) web page (http://
    www.epa.pov/airs/nonattn.html) Minneapolis had experienced violations 
    of the NAAQS for CO. We learned that EPA allowed MPCA to erase these 
    violations. It is our understanding that the MPCA was successful in 
    getting these violations erased from the database because the problem 
    was explained to be an equipment malfunction, yet that same piece of 
    equipment is still in place and there were no repairs made to it! This 
    seems odd to us. It appears that the monitoring system is used as a 
    measure of air quality until such time as the air quality levels are 
    exceeded.
        EPA response: The EPA retrieved the air quality data for the 1997 
    and 1998 CO season from AIRS. The data illustrates that all the 
    monitors in the area continue to demonstrate attainment of the CO 
    NAAQS.
        On September 26-28, 1998, a downtown Minneapolis, MN CO monitor 
    (27-053-0954), located at 528 Hennepin Avenue, measured three periods 
    of high concentrations. In a February 26, 1999 letter, the MPCA 
    requested EPA concurrence on the removal of the September 26-28, 1998 
    CO monitoring data from AIRS for this site. MPCA prepared a report on 
    an investigation into the validity of this data. This report concluded 
    that this data is the result of equipment malfunction, most likely due 
    to thunderstorm activity in the area.
        The MPCA monitoring network was granted approval in November of 
    1998. On December 29 and 30, 1998, EPA-Region 5 Air Monitoring Section 
    staff performed a Technical Systems Audit (TSA) on the Minnesota 
    monitoring network. The TSA concluded that there are no deficiencies in 
    the monitoring network. The Air Monitoring Section further documented 
    information on the CO episode in a memorandum entitled ``Minnesota 
    Carbon Monoxide Episode,'' dated February 26, 1999. The MPCA 
    investigation coupled with the TSA and additional information was used 
    to make a decision on the validity of the abnormally high CO monitoring 
    data. On March 2, 1999, USEPA concurred on the MPCA request to withdraw 
    the erroneous data from AIRS. The likely malfunction identified in the 
    State's report is uncommon but has been seen in other areas. 
    Malfunctions of this type do not typically require replacement of the 
    monitor, and the EPA believes that the State has acted appropriately to 
    ensure that this monitoring site records accurate data. The EPA has 
    reviewed the monitoring quality assurance procedures present in the 
    Minneapolis/St. Paul area and finds that they meet the requirements of 
    40 CFR 51.110(k).
    
    [[Page 58351]]
    
    C. Comments From ENVIRON Corporation
    
    i. Impact of Discontinuing I/M Program on Ambient CO Concentrations
        Comment: VMT growth factors used to estimate future year mobile 
    source CO emissions appear to exhibit anomalous behavior within 
    individual areas, with rates of growth varying widely from one five 
    year period to the next and from one area to the next. For example, VMT 
    growth rates for the St. Paul Central Business district alternate 
    between positive and negative for each successive time interval and 
    these rates bear no apparent relationship to the rates for any other 
    area (most of which exhibit there own fluctuating and highly unusual 
    growth rates). Emission projections based on such anomalous growth 
    rates are highly suspect.
        EPA response: The Metropolitan Council, the Metropolitan Planning 
    Organization for the Minneapolis/St. Paul area, provides the VMT growth 
    factors used to estimate future VMT. These growth rates are consistent 
    with the 2020 Regional Transportation Plan for the area. On November 
    25, 1997, the EPA made a determination that this plan was adequate for 
    transportation planning purposes. This information represents the best 
    available forecast of on-road travel, and has been developed in 
    accordance with EPA and Department of Transportation guidance. The EPA 
    believes that these estimates are appropriate for use in the State's 
    maintenance projections.
        Comment: CO dispersion modeling methods used by the MPCA to 
    estimate future year CO concentrations are not consistent with EPA 
    guidelines. The deviation from guideline procedures affected the model 
    results in at least two ways:
        1. A Gaussian dispersion model (CAL3QHC) was used to estimate peak 
    concentrations around ten major intersections in the nonattainment 
    area. This model only estimates the contribution of the specific 
    intersection being modeled to the total CO concentration; the urban 
    background concentration must be added to the model predictions. 
    Current state-of-the-art procedures rely on an urban-wide grid model 
    such as the Urban Airshed Model (UAM) for estimating this urban 
    background concentration under current and future emission conditions. 
    These models are able to account for the fact that the appropriate 
    ``background'' concentration may vary from one intersection to the next 
    based on the distribution of surrounding sources and prevailing 
    meteorological conditions. This is the EPA guideline procedure for 
    preparation of CO State Implementation Plans (SIPs) and would therefore 
    be the most appropriate procedure for use in a CO redesignation 
    request. Despite this, the TSD did not include a UAM analysis and 
    instead used a very limited amount of ambient data from a single 
    monitoring site to estimate the background concentration for each 
    intersection. No justification is given in the TSD for not following 
    the SIP guideline procedure. Projected background levels given in the 
    TSD were based on the anomalous regional VMT growth projections noted 
    above. As the individual region-type growth factors are suspect (see 
    above), the future-year background concentrations are equally suspect. 
    For example, this projection procedure predicts that, by 2018, the 
    highest background concentrations (by a significant margin) will be in 
    the rural areas and the lowest will be in the Minneapolis and St. Paul 
    CBDs. This makes no sense. Furthermore, according to the SAI report, no 
    allowance was made for the expected growth in non-road mobile and 
    stationary sources. This is significant as the area and non-road mobile 
    emissions are projected to increase by 2018 as shown in Table 3-1 of 
    the TSD and the fraction of total emissions contributed by these 
    sources is also projected to increase as shown in Figure 3-1 of the 
    TSD.
        2. Dispersion modeling was based on a single year of meteorological 
    data. This represents a significant departure from the EPA guidelines 
    which require the use of at least five years of meteorological data so 
    as to maximize the opportunity to simulate the worst-case conditions 
    that can lead to CO exceedances. Additional years of meteorological 
    data are readily available for the study area from EPA and from the 
    National Climatic Data Center and should be used. It should also be 
    noted that the TSD relies on meteorological data collected at the 
    Minneapolis/St. Paul International Airport which is located a 
    considerable distance from most of the modeled intersections. These 
    data may therefore not be representative of actual conditions at the 
    intersections.
        EPA response: The Calcagni memo states that areas may assess 
    areawide maintenance through emissions projections, demonstrating that 
    emissions do not increase from the attainment year, or through areawide 
    modeling such as UAM. The State utilized the emissions projection 
    method and an intersection ``hot-spot'' analysis to show that emissions 
    levels will be below the attainment level, and the CO concentrations at 
    the selected intersections. The Calcagni memo notes that hot-spot 
    modeling is EPA's preferred approach for CO demonstrations. The CAL3QHC 
    model is EPA's approved model for performing CO hot-spot analysis. The 
    EPA believes that the States analysis is appropriate and meets 
    redesignation and modeling criteria.
        The State's TSD describes the meteorological inputs used in the 
    first screen microscale analysis. The State assumed worst case 
    meteorological conditions for wind speed, wind direction, stability 
    class, and mixing height as defined by the EPA's ``Guideline for 
    Modeling Carbon Monoxide from Roadway Intersection.'' The State 
    developed temperature inputs for the modeling using methodology which 
    is consistent with EPA's ``Guideline for Modeling Carbon Monoxide from 
    Roadway Intersections'' and ``procedure for Emission Inventory 
    Preparation Volume IV: Mobile Sources.'' As a result, the EPA believes 
    that the State has developed the appropriate inputs for the modeling 
    analysis.
        Comment: Intersections selected for the TSD modeling analysis 
    resulted in the selection of seven intersections (in addition to the 
    three ``required'' intersections where monitoring data are available) 
    with some unusual characteristics one would not normally associate with 
    transportation facilities that produce peak CO concentrations. The 
    seven selected intersections were all located well away from the 
    congested Minneapolis and St. Paul urban centers, had free flow speeds 
    of 45 to 55 mph on at least one artery, and had free-flow right turn 
    lanes in every case. These seven intersections represent primarily busy 
    highways intersecting with relatively low volume secondary roads so 
    that the bulk of the traffic volume is accounted for by the high speed 
    links. Based on additional information provided by the MPCA about the 
    intersection ranking procedure, it appears that the selection process 
    gave too much weight to the average daily traffic volume (ADT) of 
    intersections without taking into consideration the number of traffic 
    lanes present or the degree to which cross traffic interferes with the 
    free flow of vehicles. This resulted in high volume, high capacity 
    suburban intersections being favored over lower volume (but more 
    congested) urban intersections. The level of service ranking procedure 
    was apparently insufficient to overcome this bias. This is evident from 
    the fact that the three modeled intersections with a known history of 
    NAAQS exceedances (e.g., University at
    
    [[Page 58352]]
    
    Lexington Ave., Snelling at University, and Hennepin Ave. at Lake St.) 
    received the three lowest ranks in the selection procedure. 
    Furthermore, two of these intersections receive mid-level ranks when 
    sorted by maximum CAL3QHC predicted concentrations instead of the 
    bottom rankings suggested by the intersection selection procedure.
        EPA response: The State selected intersections for modeling based 
    on traffic and congestion. The State initially identified 30 
    intersections in the nonattainment area as potential candidates for 
    modeling. These 30 intersections were ranked by level of congestion, 
    and ultimately reduced to ten, the top seven ranked and the three 
    historic CO NAAQS violating intersections, for the modeling analysis. 
    As a result, the EPA believes that the State's selection of 
    intersections to model for hot-spot analysis is appropriate and 
    represents a good mix of high congestion intersections and 
    intersections where high levels of CO have been monitored.
        The method utilized by the State is consistent with EPA guidelines 
    which require areas to model the top three intersections based on 
    traffic volume and congestion level. None of the intersections selected 
    for modeling by the State exceeded the CO NAAQS in the modeling and, 
    therefore, adequately demonstrate maintenance of the CO NAAQS.
    ii. Impact of Discontinuing I/M Program on O3, PM and 
    Regional Haze
        Comment: When evaluating the impact of discontinuing the current I/
    M program in Minneapolis/St. Paul as is proposed in Minnesota's 
    maintenance plan, it must be recognized that such an action, by itself, 
    can be expected to result not only in higher CO emissions than would 
    otherwise occur but also higher emissions of reactive organic gases 
    (commonly referred to as VOCs) and nitrogen oxides (NOX) 
    that are an important precursor of ground-level ozone, particulate 
    matter, and regional haze. Thus, irrespective of the program's 
    continuing role in maintaining attainment of the ambient CO standard, 
    discontinuation of the program can be expected to have an adverse 
    impact on ozone levels and PM levels in the Twin Cities as well as 
    regional haze in nearby Class I areas. This issue is particularly 
    critical in light of EPA's recent promulgation of a revised NAAQS for 
    8-hour ozone which is significantly more stringent than the previous 1-
    hour standard, a new PM2.5 NAAQS, and a Regional Haze regulation.
        EPA response: As discussed above, Section 110(l) of the Act notes 
    that ``the Administrator shall not approve a revision of a plan if the 
    revision would interfere with any applicable requirement concerning 
    attainment and reasonable further progress, or any other applicable 
    requirement of this Act.'' This includes an area's ability to meet the 
    NAAQS for ozone and PM2.5, as well as the requirements of EPA's 
    Regional Haze regulation. A detailed discussion on why EPA believes 
    that discontinuation of the I/M program will not interfere with 
    attainment of the ozone NAAQS has already been discussed in today's 
    action.
        In the past, the PM10 problems that have been experienced in the 
    Minneapolis/St. Paul area have been due to emissions from large 
    factories or groups of factories or other stationary sources, or from 
    road dust that is blown in the air from wind or heavy duty vehicle 
    traffic. The area has never experienced a PM10 nonattainment problem 
    caused by motor vehicle emissions. As a result, the EPA has no reason 
    to believe that the discontinuation of the I/M program and the 
    potential increase in NOX or VOC emissions would interfere 
    with the area's ability to meet the PM10 NAAQS.
        For fine particles, or PM2.5, the EPA is currently working with 
    States to establish monitoring networks to assess the magnitude of the 
    problem. Without accurate monitoring data, it is impossible to identify 
    where PM2.5 problems exist, assess the cause of these problems, or 
    develop control strategies to correct the problem and bring areas to 
    attainment. At present, there is not enough information to indicate 
    whether there is a PM2.5 problem in the Minneapolis/St. Paul area or 
    not, much less enough information to indicate whether motor vehicle 
    emissions cause or contribute to the problem. As a result, the EPA has 
    no reason to believe that disconinuation of the I/M program will 
    contribute to the area's ability to meet the PM2.5 NAAQS.
        For regional haze, the EPA has developed regulations to address the 
    impairment of visibility in Federal Class I areas. Like PM2.5, the 
    first part of this process is focused on monitoring where visibility is 
    impaired, and then assessing the causes of the problem. At present, a 
    nationwide monitoring network is being established and information on 
    the contributors to regional haze problems is not yet available. 
    Studies that have been performed to date indicate that in the Midwest, 
    sulfate emissions are the major contributor to haze problems, and that 
    the problem is regional in nature. As a result, EPA expects that 
    control strategies for regional haze in the Midwest will focus on 
    region wide industrial source controls, rather than local controls on 
    the automobile. At present, therefore, the EPA has no reason to believe 
    that discontinuation of the I/M program will contribute to the area's 
    ability to meet the regional haze regulations.
    
    III. EPA Final Action
    
        The EPA approves the Minneapolis/St. Paul CO maintenance plan as a 
    SIP revision meeting the requirements of section 175A. In addition, the 
    EPA is approving the redesignation request for the Minneapolis/St. Paul 
    area because the State has demonstrated compliance with the 
    requirements of section 107(d)(3)(E) for redesignation.
        Nothing in this action should be construed as permitting or 
    allowing or establishing a precedent for any future request for 
    revision to any SIP. Each request for revision to the SIP shall be 
    considered separately in light of specific technical, economic, and 
    environmental factors and in relation to relevant statutory and 
    regulatory requirements.
        CO SIPs are designed to satisfy the requirements of part D of the 
    Act and to provide for attainment and maintenance of the CO NAAQS. This 
    proposed redesignation should not be interpreted as authorizing the 
    State to delete, alter, or rescind any of the CO emission limitations 
    and restrictions contained in the approved CO SIP. Changes to CO SIP 
    regulations rendering them less stringent than those contained in the 
    EPA approved plan cannot be made unless a revised plan for attainment 
    and maintenance is submitted to and approved by EPA. Unauthorized 
    relaxations, deletions, and changes could result in both a finding of 
    nonimplementation [section 173(b) of the Act] and in a SIP deficiency 
    call made pursuant to section 110(a)(2)(H) of the Act.
    
    IV. Administrative Requirements
    
    A. Executive Order 12866
    
        The Office of Management and Budget (OMB) has exempted this 
    regulatory action from Executive Order (E.O.) 12866, entitled 
    ``Regulatory Planning and Review.''
    
    B. Executive Order 12875
    
        Under E.O. 12875, EPA may not issue a regulation that is not 
    required by statute and that creates a mandate upon a state, local, or 
    tribal government, unless the Federal government provides the funds 
    necessary to pay the direct compliance costs incurred by those 
    governments. If the mandate is unfunded, EPA must provide to the
    
    [[Page 58353]]
    
    Office of Management and Budget a description of the extent of EPA's 
    prior consultation with representatives of affected state, local, and 
    tribal governments, the nature of their concerns, copies of written 
    communications from the governments, and a statement supporting the 
    need to issue the regulation.
        In addition, E.O. 12875 requires EPA to develop an effective 
    process permitting elected officials and other representatives of 
    state, local, and tribal governments ``to provide meaningful and timely 
    input in the development of regulatory proposals containing significant 
    unfunded mandates.'' Today's rule does not create a mandate on state, 
    local or tribal governments. The rule does not impose any enforceable 
    duties on these entities. Accordingly, the requirements of section 1(a) 
    of E.O. 12875 do not apply to this rule.
        On August 4, 1999, President Clinton issued a new executive order 
    on federalism, Executive Order 13132 [64 FR 43255 (August 10, 1999)] 
    which will take effect on November 2, 1999. In the interim, the current 
    Executive Order 12612 [52 FR 41685 (October 30, 1987)] on federalism 
    still applies. This rule will not have a substantial direct effect on 
    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 12612. 
    The rule affects only one State, and does not alter the relationship or 
    the distribution of power and responsibilities established in the Clean 
    Air Act.
    
    C. Executive Order 13045
    
        Protection of Children from Environmental Health Risks and Safety 
    Risks (62 FR 19885, April 23, 1997), applies to any rule that: (1) Is 
    determined to be ``economically significant'' as defined under E.O. 
    12866, and (2) concerns an environmental health or safety risk that EPA 
    has reason to believe may have a disproportionate effect on children. 
    If the regulatory action meets both criteria, the Agency must evaluate 
    the environmental health or safety effects of the planned rule on 
    children, and explain why the planned regulation is preferable to other 
    potentially effective and reasonably feasible alternatives considered 
    by the Agency.
        This rule is not subject to E.O. 13045 because it does not involve 
    decisions intended to mitigate environmental health or safety risks.
    
    D. Executive Order 13084
    
        Under E.O. 13084, EPA may not issue a regulation that is not 
    required by statute, that significantly affects or uniquely affects the 
    communities of Indian tribal governments, and that imposes substantial 
    direct compliance costs on those communities, unless the Federal 
    government provides the funds necessary to pay the direct compliance 
    costs incurred by the tribal governments. If the mandate is unfunded, 
    EPA must provide to the Office of Management and Budget, in a 
    separately identified section of the preamble to the rule, a 
    description of the extent of EPA's prior consultation with 
    representatives of affected tribal governments, a summary of the nature 
    of their concerns, and a statement supporting the need to issue the 
    regulation.
        In addition, E.O. 13084 requires EPA to develop an effective 
    process permitting elected and other representatives of Indian tribal 
    governments ``to provide meaningful and timely input in the development 
    of regulatory policies on matters that significantly or uniquely affect 
    their communities.'' Today's rule does not significantly or uniquely 
    affect the communities of Indian tribal governments. Accordingly, the 
    requirements of section 3(b) of E.O. 13084 do not apply to this rule.
    
    E. Regulatory Flexibility Act
    
        The Regulatory Flexibility Act (RFA) generally requires an agency 
    to conduct a regulatory flexibility analysis of any rule subject to 
    notice and comment rulemaking requirements unless the agency certifies 
    that the rule will not have a significant economic impact on a 
    substantial number of small entities. Small entities include small 
    businesses, small not-for-profit enterprises, and small governmental 
    jurisdictions.
        This final rule will not have a significant impact on a substantial 
    number of small entities because SIP approvals under section 110 and 
    subchapter I, part D of the Clean Air Act do not create any new 
    requirements but simply approve requirements that the State is already 
    imposing. Therefore, because the Federal SIP approval does not create 
    any new requirements, I certify that this action will not have a 
    significant economic impact on a substantial number of small entities.
        Moreover, due to the nature of the Federal-State relationship under 
    the Clean Air Act, preparation of flexibility analysis would constitute 
    Federal inquiry into the economic reasonableness of state action. The 
    Clean Air Act forbids EPA to base its actions concerning SIPs on such 
    grounds. Union Electric Co. v. U.S. EPA, 427 U.S. 246, 255-66 (1976); 
    42 U.S.C. 7410(a)(2).
    
    F. Unfunded Mandates Act
    
        Under Section 202 of the Unfunded Mandates Reform Act of 1995 
    (``Unfunded Mandates Act''), signed into law on March 22, 1995, EPA 
    must prepare a budgetary impact statement to accompany any proposed or 
    final rule that includes a Federal mandate that may result in estimated 
    annual costs to State, local, or tribal governments in the aggregate; 
    or to private sector, of $100 million or more. Under Section 205, EPA 
    must select the most cost-effective and least burdensome alternative 
    that achieves the objectives of the rule and is consistent with 
    statutory requirements. Section 203 requires EPA to establish a plan 
    for informing and advising any small governments that may be 
    significantly or uniquely impacted by the rule.
        EPA has determined that the approval action promulgated does not 
    include a Federal mandate that may result in estimated annual costs of 
    $100 million or more to either State, local, or tribal governments in 
    the aggregate, or to the private sector. This Federal action approves 
    pre-existing requirements under State or local law, and imposes no new 
    requirements. Accordingly, no additional costs to State, local, or 
    tribal governments, or to the private sector, result from this action.
    
    G. Submission to Congress and the Comptroller General
    
        The Congressional Review Act, 5 U.S.C. 801 et seq., as added by the 
    Small Business Regulatory Enforcement Fairness Act of 1996, generally 
    provides that before a rule may take effect, the agency promulgating 
    the rule must submit a rule report, which includes a copy of the rule, 
    to each House of the Congress and to the Comptroller General of the 
    United States. EPA will submit a report containing this rule and other 
    required information to the U.S. Senate, the U.S. House of 
    Representatives, and the Comptroller General of the United States prior 
    to publication of the rule in the Federal Register. A major rule cannot 
    take effect until 60 days after it is published in the Federal 
    Register. This rule is not a ``major'' rule as defined by 5 U.S.C. 
    804(2).
    
    H. National Technology Transfer and Advancement Act
    
        Section 12 of the National Technology Transfer and Advancement Act 
    (NTTAA) of 1995 requires Federal
    
    [[Page 58354]]
    
    agencies to evaluate existing technical standards when developing a new 
    regulation. To comply with NTTAA, EPA must consider and use ``voluntary 
    consensus standards'' (VCS) if available and applicable when developing 
    programs and policies unless doing so would be inconsistent with 
    applicable law or otherwise impractical.
        The EPA believes that VCS are inapplicable to this action. Today's 
    action does not require the public to perform activities conducive to 
    the use of VCS.
    
    I. Petitions for Judicial Review
    
        Under section 307(b)(1) of the Clean Air Act, petitions for 
    judicial review of this action must be filed in the United States Court 
    of Appeals for the appropriate circuit by December 28, 1999. Filing a 
    petition for reconsideration by the Administrator of this final rule 
    does not affect the finality of this rule for the purposes of judicial 
    review nor does it extend the time within which a petition for judicial 
    review may be filed, and shall not postpone the effectiveness of such 
    rule or action. This action may not be challenged later in proceedings 
    to enforce its requirements. (See section 307(b)(2).)
    
    List of Subjects
    
    40 CFR Part 52
    
        Environmental protection, Air pollution control, Intergovernmental 
    relations, Carbon monoxide.
    
    40 CFR Part 81
    
        Environmental protection, Air pollution control, National Parks, 
    Wilderness areas.
    
        Authority: 42 U.S.C. 7401-7671 et seq.
    
        Dated: October 21, 1999.
    David A. Ullrich,
    Acting Regional Administrator, Region 5.
    
        Chapter I, title 40 of the Code of Federal Regulations is amended 
    as follows:
    
    PART 52--[AMENDED]
    
        1. The authority citation for Part 52 continues to read as follows:
    
        Authority: 42 U.S.C. 7401 et seq.
    
    Subpart Y--Minnesota
    
        2. Section 52.1237 is amended by adding paragraph(c) to read as 
    follows:
    
    
    Sec. 52.1237  Control strategy: Carbon monoxide.
    
    * * * * * *
        (c) Approval--On March 23, 1998, the Minnesota Pollution Control 
    Agency submitted a request to redesignate the Minneapolis/St. Paul CO 
    nonattainment area (consisting of portions of Anoka, Carver, Dakota, 
    Hennepin, Ramsey, Scott, Washington, and Wright) to attainment for CO. 
    As part of the redesignation request, the State submitted a maintenance 
    plan as required by 175A of the Clean Air Act, as amended in 1990. 
    Elements of the section 175A maintenance plan include a base year (1996 
    attainment year) emission inventory for CO, a demonstration of 
    maintenance of the ozone NAAQS with projected emission inventories to 
    the year 2009, a plan to verify continued attainment, a contingency 
    plan, and an obligation to submit a subsequent maintenance plan 
    revision in 8 years as required by the Clean Air Act. If the area 
    records a violation of the CO NAAQS (which must be confirmed by the 
    State), Minnesota will implement one or more appropriate contingency 
    measure(s) which are contained in the contingency plan. The menu of 
    contingency measures includes oxygenated fuel, transportation control 
    measures, or a vehicle inspection and maintenance program. The 
    redesignation request and maintenance plan meet the redesignation 
    requirements in section 107(d)(3)(E) and 175A of the Act as amended in 
    1990, respectively.
    
    PART 81--[AMENDED]
    
        1. The authority citation for part 81 continues to read as follows:
    
        Authority: 42 U.S.C. 7401-7871q.
    
        2. In Sec. 81.324 the table for ``Minnesota-CO'' is amended by 
    revising the entry for the Minneapolis/St. Paul area for carbon 
    monoxide to read as follows:
    
    
    Sec. 81.324  Minnesota
    
    * * * * *
    
                                                      Minnesota-CO
    ----------------------------------------------------------------------------------------------------------------
                                                                 Designation                       Classification
                Designated Areas             -----------------------------------------------------------------------
                                                      Date \1\                   Type            Date \1\     Type
    ----------------------------------------------------------------------------------------------------------------
    Minneapolis-Saint Paul Area:
      Anoka.................................  November 29, 1999......  Attainment.............
    County..................................  ......do...............  Attainment.............
    Carver County (part)
        Carver, Chanhassen, Chaska, Hamburg,  ......do...............  Attainment.............
         Norwood, Victoria, Waconia,
         Watertown, Young America, Chaska
         Township, Laketown Township,
         Waconia Township, Watertown
         Township, Young America Township.
    Dakota County (part)
        Apple Valley, Burnsville, Eagan,      ......do...............  Attainment.............
         Farmington, Hastings, Inver Grove
         Heights, Lakeville, Lilydale,
         Mendota, Mendota Heights,
         Rosemount, South St. Paul, Sunfish
         Lake, West St. Paul.
      Hennepin..............................  ......do...............  Attainment.............
    County..................................  ......do...............  Attainment.............
      Ramsey
    County
    Scott County (part)                       ......do...............  Attainment.............
        Belle Plaine, Elko, New Market, New   ......do...............  Attainment.............
         Prague, Prior Lake, Savage,
         Shakopee, Credit River Township,
         Jackson Township, Louisville
         Township, New Market Township,
         Spring Lake Township.
    
    [[Page 58355]]
    
     
    Washington County (part)
        All cities and townships except
         Denmark Township
    Wright County (part)
        Albertville, Annandale, Buffalo,
         Clearwater, Cokato, Delano,
         Hanover, Monticello, Montrose,
         Rockford, St. Michael, South Haven,
         Waverly, Dayton (Wright Co. part),
         Buffalo Township, Chatham Township,
         Clearwater Township, Cokato
         Township, Corrinna Township,
         Frankfort Township, Maple Lake
         Township, Franklin Township,
         Marysville Township, Monticello
         Township, Ostego Township, Rockford
         Township, Silver Creek Township,
         Southside Township
     
    *                  *                  *                  *                  *                  *
                                                   *
    ----------------------------------------------------------------------------------------------------------------
    \1\ This date is November 15, 1990, unless otherwise noted.
    
    [FR Doc. 99-28310 Filed 10-28-99; 8:45 am]
    BILLING CODE 6560-50-P
    
    
    

Document Information

Effective Date:
11/29/1999
Published:
10/29/1999
Department:
Environmental Protection Agency
Entry Type:
Rule
Action:
Final rule.
Document Number:
99-28310
Dates:
This rule will be effective November 29, 1999.
Pages:
58347-58355 (9 pages)
Docket Numbers:
MN58-01-7283, FRL-6465-4
PDF File:
99-28310.pdf
CFR: (2)
40 CFR 52.1237
40 CFR 81.324