[Federal Register Volume 59, Number 241 (Friday, December 16, 1994)]
[Unknown Section]
[Page 0]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 94-30949]
[[Page Unknown]]
[Federal Register: December 16, 1994]
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ENVIRONMENTAL PROTECTION AGENCY
40 CFR Parts 52 and 81
[KY-069-6105; FRL-5123-2]
Proposed Approval and Promulgation of Implementation Plans and
Designation of Areas for Air Quality Planning Purposes; Commonwealth of
Kentucky
AGENCY: Environmental Protection Agency (EPA).
ACTION: Proposed rule.
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SUMMARY: On November 12, 1993, the Commonwealth of Kentucky through the
Natural Resources and Environmental Protection Cabinet (Cabinet)
submitted a maintenance plan and a request to redesignate the Kentucky
portion of the Ashland-Huntington nonattainment area from nonattainment
to attainment for ozone (O3). The Kentucky portion of the moderate
O3 nonattainment area includes Boyd County and a portion of
Greenup County. On November 12, 1992, West Virginia requested to
redesignate their portion of the Ashland-Huntington nonattainment area
and action is being taken by Region 3 in a separate notice. Under the
Clean Air Act, designations can be changed if sufficient data are
available to warrant such changes. In this action, EPA is proposing to
approve the Commonwealth of Kentucky's submittal because it will meet
the maintenance plan and redesignation requirements. The approved
maintenance plan will become a federally enforceable part of Kentucky's
State Implementation Plan (SIP) for the moderate nonattainment area. In
this action, EPA ia also proposing to approve the Commonwealth of
Kentucky's 1990 baseline emissions inventory because it meets EPA's
requirements regarding the approval on baseline emission inventories.
DATES: To be considered, comments must be received by January 17, 1995.
ADDRESSES: Written comments on this action should be addressed to Scott
Southwick, at the EPA Regional Office listed.
Copies of the documents relative to this action are available for
public inspection during normal business hours at the following
locations. The interested persons wanting to examine these documents
should make an appointment with the appropriate office at least 24
hours before the visiting day.
Environmental Protection Agency, Region 4 Air Programs Branch, 345
Courtland Street, NE., Atlanta, Georgia 30365.
Commonwealth of Kentucky, Natural Resources and Environmental
Protection Cabinet, Department for Environmental Protection, Division
for Air Quality, 803 Schenkel Lane, Frankfort, Kentucky 40601.
FOR FURTHER INFORMATION CONTACT: Scott Southwick, Regulatory Planning
and Development Section, Air Programs Branch, Air, Pesticides & Toxics
Management Division, Region 4 Environmental Protection Agency, 345
Courtland Street, NE., Atlanta, Georgia 30365. The telephone number is
404/347-3555 extension 4207. Reference file KY-069-6105.
SUPPLEMENTARY INFORMATION: On November 15, 1990, the Clean Air Act
Amendments of 1990 (CAA) were enacted. (Pub. L. 101-549, 104 Stat.
2399, codified at 42 U.S.C. 7401-7671q). Under section 107(d)(1)(C),
EPA designated Boyd County of the Ashland-Huntington area as
nonattainment by operation of law with respect to O3 because the
area was designated nonattainment immediately before November 15, 1990.
The nonattainment area was expanded to include portions of Greenup
County per section 107(d)(1)(A)(i) (See 56 FR 56694 (Nov. 6, 1991) and
57 FR 56762 (Nov. 30, 1992), codified at 40 CFR 81.318.) The area was
classified as moderate.
The moderate nonattainment area more recently has ambient
monitoring data that show no violations of the O3 National Ambient
Air Quality Standard (NAAQS), during the period from 1991 through 1993.
Therefore, in an effort to comply with the CAA and to ensure continued
attainment of the NAAQS, on November 12, 1993, the Commonwealth of
Kentucky submitted for parallel processing an O3 maintenance plan
and requested redesignation of the area to attainment with respect to
the O3 NAAQS and EPA found the request complete. On July 21, 1994,
the Commonwealth revised the maintenance plan to address public
comments, and EPA comments dated December 16, 1993, and May 5, 1994.
On February 7, 1994, Region 4 determined that the information
received from the Cabinet constituted a complete redesignation request
under the general completeness criteria of 40 CFR part 51, appendix V,
sections 2.1 and 2.2. However, for purposes of determining what
requirements are applicable for redesignation purposes, EPA believes it
is necessary to identify when the Cabinet first submitted a
redesignation request that meets the completeness criteria. EPA noted
in a previous policy memorandum that parallel processing requests for
submittals under the amended CAA, including redesignation submittals,
would not be determined complete. See ``State Implementation Plan (SIP)
Actions Submitted in Response to Clean Air Act (Act) Deadlines,''
Memorandum from John Calcagni to Air Programs Division Directors,
Regions I-X, dated October 28, 1992 (Memorandum). The rationale for
this conclusion was that the parallel processing exception to the
completeness criteria (40 CFR part 51, appendix V, section 2.3) was not
intended to extend statutory due dates for mandatory submittals. (See
Memorandum at 3-4). However, since requests for redesignation are not
mandatory submittals under the CAA, EPA changed its policy with respect
to redesignation submittals to conform to the existing completeness
criteria. Therefore, EPA believes the parallel processing exception to
the completeness criteria may be applied to redesignation request
submittals, at least until such time as the EPA decides to revise that
exception (See 58 FR 38108 ``Approval and Promulgation of Maintenance
Plan and Designation of Areas for Air Quality Planning Purposes for
Carbon Monoxide, State of New York'' published July 15, 1993, and
``State Implementation Plans (SIP) Actions submitted in Response to
Clean Air Act (CAA) Deadlines,'' Memorandum from John Calcagni to Air
Program Directors, Region I-X, dated October 28, 1992).
The Kentucky redesignation request for the Ashland moderate O3
nonattainment area meets the five requirements of section 107(d)(3)(E)
for redesignation to attainment. The following is a brief description
of how the Commonwealth of Kentucky has fulfilled each of these
requirements. Because the maintenance plan is a critical element of the
redesignation request, EPA will discuss its evaluation of the
maintenance plan under its analysis of the redesignation request.
1. The Area Must Have Attained the O3 NAAQS
The Commonwealth of Kentucky's request is based on an analysis of
quality assured ambient air quality monitoring data which is relevant
to the maintenance plan and to the redesignation request. Most recent
ambient air quality monitoring data for calendar year 1991 through
calendar year 1993 show an expected exceedance rate of less than 1.0
per year of the O3 NAAQS in the nonattainment area (See 40 CFR
50.9 and appendix H). The area has continued to demonstrate attainment
to date. Because the nonattainment area has complete quality-assured
data showing no violations of the standard over the most recent
consecutive three calendar year period, the area has met the first
component of attainment of the O3 NAAQS. The Commonwealth of
Kentucky has also met the second component of attainment of the O3
NAAQS by committing to continue monitoring the moderate nonattainment
area in accordance with 40 CFR part 58.
2. The Area Has Met All Applicable Requirements Under Section 110
and Part D of the CAA
On January 25, 1980, August 7, 1981, November 24, 1981, November
30, 1981, and March 30, 1983, EPA fully approved Kentucky's SIP as
meeting the requirements of section 110(a)(2) and part D of the 1977
CAA (45 FR 6092, 46 FR 40188, 46 FR 57486, 46 FR 58080, and 48 FR
13168). The approved control strategy did not result in attainment of
NAAQS for O3. Additionally, the amended CAA revised section
182(a)(2)(A), 110(a)(2) and, under part D, revised section 172 and
added new requirements for all nonattainment areas. Therefore, for
purposes of redesignation, to meet the requirement that the SIP contain
all applicable requirements under the CAA, EPA reviewed the Kentucky
SIP and ensures that it contains all measures due under the amended CAA
prior to or at the time the Commonwealth of Kentucky submitted its
redesignation request.
A. Section 110 Requirements
Although section 110 was amended by the CAA, the Kentucky SIP for
the moderate nonattainment area meets the requirements of amended
section 110(a)(2). A number of the requirements did not change in
substance and, therefore, EPA believes that the pre-amendment SIP met
these requirements. EPA has analyzed the SIP and determined that it is
consistent with the requirements of amended section 110(a)(2).
B. Part D Requirements
Before the moderate nonattainment area may be redesignated to
attainment, the Commonwealth must have fulfilled the applicable
requirements of part D. Under part D, an area's classification
indicates the requirements to which it will be subject. Subpart 1 of
part D sets forth the basic nonattainment requirements applicable to
all nonattainment areas, classified as well as nonclassifiable. Subpart
2 of part D establishes additional requirements for O3
nonattainment areas classified under table 1 of section 181(a). The
Ashland-Huntington nonattainment area is classified as moderate (See 56
FR 56694, codified at 40 CFR 81.318). The Commonwealth of Kentucky
submitted the request for redesignation of the moderate nonattainment
area on November 12, 1993. Therefore, in order to be redesignated to
attainment, the Commonwealth of Kentucky must meet the applicable
requirements of subpart 1 of part D, specifically sections 172(c) and
176, and is also required to meet the applicable requirements of
subpart 2 of part D, specifically sections 182(a) and (b).
a. Subpart 1 of Part D
Under section 172(b), the section 172(c) requirements are
applicable as determined by the Administrator, but no later than three
years after an area has been designated to nonattainment. EPA had not
determined that these requirements were applicable to classified ozone
nonattainment areas on or before November 12, 1993, the date that the
Commonwealth of Kentucky submitted a complete redesignation request for
the Kentucky portion of the Ashland-Huntington nonattainment area.
Therefore, the Commonwealth was not required to meet these requirements
for purposes of redesignation. Upon the redesignation of this area to
attainment, the prevention of significant deterioration (PSD)
provisions contained in part C of title I are applicable. On January
25, 1978, September 1, 1989, November 6, 1989, November 13, 1989,
November 28, 1989, February 7, 1990, and June 23, 1994, the EPA
approved revisions to the Commonwealth of Kentucky's PSD program (43 FR
3360, 54 FR 36307, 54 FR 46613, 54 FR 47211, 54 FR 488887, 55 FR 4169
and 59 FR 32343).
Section 176(c) of the CAA requires States to revise their SIPs to
establish criteria and procedures to ensure that Federal actions,
before they are taken, conform to the air quality planning goals in the
applicable state SIP. The requirement to determine conformity applies
to transportation plans, programs and projects developed, funded or
approved under Title 23 U.S.C. or the Federal Transit Act
(``transportation conformity''), as well as to all other Federal
actions (``general conformity''). Section 176 further provides that the
conformity revisions to be submitted by states must be consistent with
Federal conformity regulations that the CAA required EPA to promulgate.
Congress provided for the state revisions to be submitted one year
after the date for promulgation of final EPA conformity regulations.
When that date passed without such promulgation, EPA's General Preamble
for the implementation of Title I informed states that its conformity
regulations would establish a submittal date [see 57 FR 13498t 13557
(April 16, 1992)].
The EPA promulgated final transportation conformity regulations on
November 24, 1993 (58 FR 62188) and general conformity regulations on
November 30, 1993 (58 FR 63214). These conformity rules require that
states adopt both transportation and general conformity provisions in
the SIP for areas designated nonattainment or subject to a maintenance
plan approved under CAA Section 175A. Pursuant to section 51.396 of the
transportation conformity rule and section 51.851 of the general
conformity rule, the Commonwealth of Kentucky is required to submit SIP
revisions containing transportation and general conformity criteria and
procedures consistent with those established in the Federal rule by
November 25, 1994 and December 1, 1994, respectively. Because the
deadlines for these submittals have not yet come due, they are not
applicable requirements under section 107(d)(3)(E)(V) and, thus, do not
affect approval of this redesignation request.
On July 21, 1994, the Commonwealth of Kentucky revised their
maintenance plan to commit to revise the SIP by November 25, 1994, to
be consistent with the final Federal regulations on conformity. In
addition, the Division for Air Quality and the Kentucky Transportation
Cabinet are cooperating in adopting regulations consistent with the
final conformity regulation.
b. Subpart 2 of Part D--Section 182
The CAA was amended on November 15, 1990, Pub. L. 101-549, 104
Stat. 2399, codified at 42 U.S.C. 7401-7671q. EPA was required to
classify O3 nonattainment areas according to the severity of their
problem. On November 6, 1991 (56 FR 56694), the Ashland-Huntington
metropolitan statistical area (MSA) was designated as moderate O3
nonattainment. Because the Ashland-Huntington area is a moderate
O3 nonattainment area, it is required to have met the requirements
of sections 182(a), (b) and (f) of the CAA. EPA has analyzed the SIP
and determined which requirements have been met and for which
requirements further action is required. In the instances where further
action is required, SIP revisions meeting those requirements must be
fully approved in order for EPA to find that all the applicable
requirements of the CAA have been met. Thus, final approval of this
redesignation is contingent upon the final approval of the additional
SIP submittals described below.
(1) Section 182(a)(1)--Emissions Inventory. Section 182(a)(1) of
the CAA required an inventory of all actual emissions from all sources,
as described in section 172(c)(3) to be submitted by November 15, 1992.
On November 13, 1992, the Cabinet submitted an emission inventory on
the Ashland-Huntington area. The Cabinet submitted revisions on October
15, 1993, and July 8, 1994, addressing EPA comments. EPA is proposing
to approve the inventory in this notice. Final approval of this
redesignation is contingent on final approval of the emissions
inventory.
(2) Section 182(a)(2), 182(b)(2)--Reasonably Available Control
Technology (RACT). Subsequent to the 1977 Clean Air Act Amendments,
Boyd county was designated as not meeting the O3 NAAQS on March 3,
1978 (43 FR 8962). The Commonwealth was subsequently required to revise
its O3 SIP for this area to meet the requirements of section
110(a)(2) and part D of the 1977 Clean Air Act. On January 25, 1980,
August 7, 1981, November 24, 1981, November 30, 1981, and March 30,
1983, EPA fully approved Kentucky's SIP as meeting the requirements of
section 110(a)(2) and part D of the 1977 CAA (45 FR 6092, 46 FR 40188,
46 FR 57486, 46 FR 58080, and 48 FR 13168). On December 31, 1987, EPA
deemed that this control strategy had not resulted in the attainment of
the NAAQS for O3 in the Ashland-Huntington area. Consequently,
Greer C. Tidwell, Region 4 Regional Administrator, sent a letter to
Wallace G. Wilkinson, Governor of Kentucky, on May 26, 1988. This
letter, pursuant to section 110(a)(2)(H) of the 1977 CAA, notified
Kentucky that the SIP was substantially inadequate to achieve the NAAQS
for O3 in Ashland-Huntington and called upon the Commonwealth to
revise the SIP.
The 1990 CAA amended section 182(a)(2)(A), and Congress statutorily
adopted the requirement that O3 nonattainment areas correct their
deficient RACT rules for O3 (RACT Fix-ups). Areas designated
nonattainment before amendment of the CAA and which retained that
designation and were classified as marginal or above as of enactment
are required to meet the RACT Fix-ups requirement. Under section
182(a)(2)(A), those areas were required by May 15, 1991, to correct
RACT regulations as required under pre-amendment guidance.1 The
SIP call letters interpreted that guidance and indicated corrections
necessary for specific nonattainment areas. Ashland-Huntington was
previously subject to RACT requirements for ozone. Therefore, this area
is subject to the RACT fix-up requirement and the May 15, 1991,
deadline.
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\1\Among other things, the pre-amendment guidance consists of
the VOC RACT portions of the Post-87 policy, 52 FR 45044 (Nov. 24,
1987); the Bluebook, ``Issues Relating to VOC Regulation Cutpoints,
Deficiencies and Deviations, Clarification to Appendix D of November
24, 1987 Federal Register Notice'' (of which notice of availability
was published in the Federal Register on May 25, 1988); and the
existing Control Technology Guidelines (CTGs).
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The 1990 CAA also amended section 182(b)(2) which required RACT on
all major sources of VOCs for O3 nonattainment areas designated
moderate and above (RACT Catch-ups) by November 15, 1992. The RACT
Catch-ups provision required the state to submit a revision to the SIP
to implement RACT on: (1) each category of VOC sources in the area
covered by a CTG document issued between the enactment of the CAA and
the date of attainment; (2) all VOC sources in the area covered by any
CTG issued before the date of the CAA; and (3) all other major
stationary sources of VOCs that are located in the area.
Kentucky failed to meet the May 15, 1991, deadline date for RACT
fix-ups and EPA notified the Commonwealth on June 25, 1991, that a
finding of failure to submit had been made. This finding of failure to
submit was published on October 22, 1991 (56 FR 54554), triggering the:
(1) 18-month time clock for mandatory application of sanctions under
section 179(a); (2) the Administrator's discretionary authority to
impose sanctions under section 110(m); and (3) the 2-year time clock
for promulgation of the Federal Implementation Plan (FIP) VOC
regulations for this area as required by section 110(c)(1).
The 18-month period prior to application of mandatory sanctions
ended on April 22, 1993. Kentucky submitted SIP revisions through the
Cabinet to EPA on February 12, 1992, October 20, 1992, February 17,
1993, and March 4, 1993, all prior to the April 22, 1993, deadline.
Because the revisions addressed all RACT Fix-up deficiencies and were
found to contain all required administrative and technical components,
the 18-month time clock for mandatory application of sanctions under
section 179(a) was stopped. A Federal Register approving the SIP
revision submitted on February 12, 1992, was published on October 22,
1993 (58 FR 54516). A Federal Register approving the SIP revisions
submitted on October 20, 1992, February 17, 1993, and March 4, 1993,
was published on June 23, 1994 (59 FR 32343).
The February 12, 1992, October 20, 1992, February 17, 1993, and
March 4, 1993, submittals also addressed all of the RACT Catch-up
requirements except the requirement of RACT on all other major
stationary sources of VOC that are located in the area, i.e., all
sources that are not covered by a CTG. There is one source in the
Ashland-Huntington area that is not covered by a CTG. This source will
be subject to a source specific SIP revision requiring VOC RACT. Action
on this SIP revision will be under a separate notice on or before final
action is taken on this redesignation request. The approval of this
redesignation request is contingent upon the approval of this source
specific SIP revision.
(3) Section 182(a)(3)--Emissions Statements. Section 182(a)(3) of
the CAA required that the SIP be revised by November 15, 1992, to
require stationary sources of oxides of nitrogen (NOX) and VOCs to
provide the state with a statement showing actual emission each year.
On January 15, 1993, the Cabinet submitted an emission statement rule.
The Cabinet will submit revisions to the emission statement rule to
address EPA comments. Action on this SIP revision will be under a
separate notice on or before final action is taken on this
redesignation request. Final approval of this redesignation is
contingent on final approval of the emissions statement rule.
(4) Section 182(b)(1)--15% Progress Plans. Section 182(b)(1) of the
CAA required states to submit a revision to the SIP by November 15,
1993, to provide for VOC emission reductions by November 15, 1996, of
at least 15% from baseline emissions accounting for any growth in
emissions after the date of enactment of the CAA. The Commonwealth
failed to submit the required revisions and as a result, on April 1,
1994, EPA issued a finding letter notifying Kentucky of a finding of
failure to submit. This finding of failure to submit triggered the: (1)
18-month time clock for mandatory application of sanctions under
section 179(a); (2) the Administrator's discretionary authority to
impose sanctions under section 110(m); and (3) the 2-year time clock
for promulgation of the FIP 15% regulations for this area as required
by section 110(c)(1). However, the letter acknowledges the submittal of
this redesignation request to attainment and stated that if the
redesignation request to attainment is approved then requirements for a
15% plan SIP will be unnecessary for the Ashland-Huntington area.
Therefore, upon approval of this redesignation request, the sanctions
clock will stop. As the requirement to submit a 15% plan did not come
due until November 15, 1993, the 15% plan requirement is not an
applicable requirement for purposes of the evaluation of this
redesignation request.
(5) Section 182(b)(3)--Stage II. Section 182(b)(3) of the CAA
required moderate areas to implement Stage II gasoline vapor recovery
systems unless and until EPA promulgated onboard vapor recovery (OBVR)
regulations. On January 24, 1994, EPA promulgated the OBVR rule, and,
as section 202(a)(b) of the CAA provides that once the rule is
promulgated, moderate areas are no longer required to implement Stage
II. Thus, the Stage II vapor recovery requirement of section 182(b)(3)
is no longer an applicable requirement.
(6) Section 182(b)(4)--Motor Vehicle Inspection and Maintenance (I/
M). The CAA required all moderate and above areas to revise the SIP to
include provisions necessary to provide for a vehicle inspection and
maintenance program. The Commonwealth failed to submit the required
revisions and as a result, on April 1, 1994, EPA issued a finding
letter notifying Kentucky of a finding of failure to submit. This
finding of failure to submit triggered the: (1) 18-month time clock for
mandatory application of sanctions under section 179(a); (2) the
Administrator's discretionary authority to impose sanctions under
section 110(m); and (3) the 2-year time clock for promulgation of the
FIP I/M regulations for this area as required by section 110(c)(1).
However, the letter acknowledges the submittal of this redesignation
request to attainment and stated that if the redesignation request to
attainment is approved then requirements for an I/M SIP will be
necessary for the Ashland-Huntington area only as a contingency
measure. Therefore, when this redesignation request is approved, the
sanctions clock will stop and the program will be a contingency measure
in the maintenance plan.
(7) Section 182(b)(5)--New Source Review (NSR). The CAA required
all classified nonattainment areas to meet several requirements
regarding NSR, including provisions to ensure that increased emissions
of VOCs compounds will not result from any new or major source
modifications and a general offset rule. The Cabinet submitted a NSR
rule on February 17, 1993, to incorporate VOC and NOX permit
review requirements for new and modified sources in Kentucky's O3
nonattainment areas. The revised permit requirements meet new offset
ratios and additional provisions for moderate O3 nonattainment
areas. This rule was approved by EPA on June 23, 1994 (59 FR 32343).
(EPA notes that under the policy announced in the memorandum, ``Part D
New Source Review (part D NSR) Requirements for Areas Requesting
Redesignation to Attainment'', dated October 14, 1994, from Mary D.
Nichols to Air Division Directors I-X, approval of the NSR submittal is
not necessarily required for approval of a redesignation.)
(8) Section 182(f)--Oxides of Nitrogen (NOX) requirements.
Section 182(f) of the CAA requires states with areas designated
nonattainment for O3 and classified as moderate and above to
impose the same control requirements for major stationary sources of
NOX as apply to major stationary sources of volatile organic
compounds (VOCs). These control requirements, NOX RACT and
NOX NSR, were to be submitted to EPA in a SIP revision by November
15, 1992. EPA adopted a policy pursuant to section 110(k)(4) of the CAA
to conditionally approve NOX RACT SIPs which committed to provide
EPA with specific enforceable measures within one year of the date of
approval of the commitment. EPA's committal SIP policy was challenged
in Natural Resources Defense Council v. Browner--in the United States
Court of Appeals for the District of Columbia Circuit. In a full
Opinion, dated May 6, 1994, the Court found that EPA's conditional
approval interpretation exceeded the EPA's statutory authority, but
concluded that ``EPA properly extended'' to November 15, 1993, the
deadline for submittal of fully enforceable NOX RACT SIPs. As a
result of this court case, the deadline to submit NOX RACT rules
was November 15, 1993. Therefore, because that date is after the
Commonwealth submitted the redesignation request, NOX RACT is not
an applicable requirement for this redesignation request.
3. The Area Has a Fully Approved SIP Under Section 110(k) of the
CAA
Based on the approval of provisions under the pre-amended CAA and
EPA's prior approval of SIP revisions under the amended CAA, EPA has
determined that Kentucky will have a fully approved O3 SIP under
section 110(k) for the moderate nonattainment area when EPA approves
SIP submissions regarding the emissions inventory, VOC RACT for
stationary sources not covered by a CTG, and emission statements. Final
action will be taken prior to or at the same time as final approval of
this redesignation.
4. The Air Quality Improvement Must Be Permanent and Enforceable
Several control measures have come into place since the Ashland-
Huntington nonattainment area violated the O3 NAAQS. Of these
control measures, the reduction of fuel volatility from 10.5 psi in
1988 to 9.0 psi in 1992, as measured by the Reid Vapor Pressure (RVP),
and fleet turnover due to the Federal Motor Vehicle Control Program
(FMVCP) produced the most significant decreases in VOC emissions. The
table below lists the actual enforceable emission reductions which are
responsible for the recent air quality improvement in the Kentucky
portion of the nonattainment area. The VOC emissions in the base year
are not artificially low due to a depressed economy. The technical
support document (TSD) contains additional information on these
reductions.
Reductions in VOC and NOX Emissions From 1990 to 1993
------------------------------------------------------------------------
NOX
VOC (tpd) (tpd)
------------------------------------------------------------------------
3.88........................................................... 0.28
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5. The Area Must Have a Fully Approved Maintenance Plan Pursuant to
Section 175A of the CAA
Section 175A of the CAA sets forth the elements of a maintenance
plan for areas seeking redesignation from nonattainment to attainment.
The plan must demonstrate continued attainment of the applicable NAAQS
for at least ten years after the Administrator approves a redesignation
to attainment. Eight years after the redesignation, the state must
submit a revised maintenance plan which demonstrates attainment for the
ten years following the initial ten-year period. To provide for the
possibility of future NAAQS violations, the maintenance plan must
contain contingency measures, with a schedule for implementation,
adequate to assure prompt correction of any air quality problems.
In this notice, EPA is proposing approval of the Commonwealth of
Kentucky's maintenance plan for the Ashland-Huntington nonattainment
area because EPA finds that the Commonwealth of Kentucky's submittal
meets the requirements of section 175A.
A. Emissions Inventory--Base Year Inventory
On November 13, 1992, the Commonwealth of Kentucky submitted
comprehensive inventories of VOC, NOX, and CO emissions from the
Ashland-Huntington nonattainment area. The inventory included biogenic,
area, stationary, and mobile sources using 1990 as the base year for
calculations to demonstrate maintenance. The 1990 inventory was
projected to a 1993 attainment inventory using population growth rates.
The 1993 inventory can serve as an attainment inventory because the
O3 NAAQS was not violated during the 1993 year. The CO and the
biogenic VOC values are included as a part of the 1990 base year
emission inventory.
The Commonwealth of Kentucky submittal contains the detailed
inventory data and summaries by county and source category. Finally,
this inventory was prepared in accordance with EPA guidance. A summary
of the base year and projected maintenance year inventories are
included in this notice for VOCs and NOX. Refer to the TSD
accompanying this notice for more in-depth details regarding the base
year inventory for the Ashland-Huntington nonattainment area. This
notice proposes approval of the base year inventory for the Ashland-
Huntington area.
CO Emission Inventory Summary for 1990
[Tons per day]
----------------------------------------------------------------------------------------------------------------
Point Area Mobile Non-Road Total
----------------------------------------------------------------------------------------------------------------
Emissions for 1990.................................. 133.03 2.41 59.90 14.42 209.76
----------------------------------------------------------------------------------------------------------------
Biogenic Emission Inventory Summary for 1990
[Tons per day]
------------------------------------------------------------------------
Biogenic
------------------------------------------------------------------------
Emissions for 1990............................................ 23.60
------------------------------------------------------------------------
B. Demonstration of Maintenance--Projected Inventories
As summarized in the following tables, totals for VOC, and NOX
emissions were projected from the 1990 base year, to the 1993
attainment year and out to 2005. These projected inventories were
prepared in accordance with EPA guidance. Refer to EPA's TSD
accompanying this notice for more in-depth details regarding the
projected inventory for the Ashland-Huntington nonattainment area.
Kentucky Portion of the Ashland-Huntington VOC Projection Inventory Summary
[Tons per day]
----------------------------------------------------------------------------------------------------------------
1993
1990 base attain 1996 proj 1999 proj 2002 proj 2005 proj
base
----------------------------------------------------------------------------------------------------------------
Point....................................... 34.81 33.79 34.12 34.10 34.10 34.10
Area........................................ 3.8 3.9 3.68 4.09 4.12 4.20
Mobile...................................... 12.43 8.60 8.55 9.40 7.95 7.86
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Total................................. 51.04 46.29 46.35 47.60 46.17 46.16
----------------------------------------------------------------------------------------------------------------
Kentucky Portion of the Ashland-Huntington NOX Projection Inventory Summary
[Tons per day]
----------------------------------------------------------------------------------------------------------------
1993
1990 base attain 1996 proj 1999 proj 2002 proj 2005 proj
base
----------------------------------------------------------------------------------------------------------------
Point......................................... 25.71 25.59 25.77 25.78 25.78 25.79
Area.......................................... 0.18 0.18 0.18 0.18 0.18 0.17
Mobile........................................ 7.71 7.40 7.51 7.82 7.13 7.11
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Total................................... 33.60 33.17 33.46 33.78 33.09 33.08
----------------------------------------------------------------------------------------------------------------
Projections indicate that there was an emissions decrease in VOCs
and NOX in the nonattainment area from the 1993 attainment
baseyear to 2005. However, the projections show a temporary increase in
NOX emissions of less than 2%. EPA believes this increase to be
insignificant, and therefore, EPA believes that these emissions
projections demonstrate that the nonattainment area will continue to
maintain the O3 NAAQS.
C. Verification of Continued Attainment
Continued attainment of the O3 NAAQS in the nonattainment area
depends, in part, on the Commonwealth of Kentucky's efforts toward
tracking indicators of continued attainment during the maintenance
period. The Cabinet will develop periodic emission inventories every
three years beginning in 1996 and will evaluate these periodic
inventories to see if they exceed the baseline emission inventory by
more than 10%. If a 10% exceedance occurs, the state will evaluate
existing control measures to see if any further emission reduction
measures should be implemented.
The Commonwealth of Kentucky's contingency plan can also be
triggered by an air quality exceedance. If an exceedance occurs, the
Commonwealth will evaluate existing control measures to see if any
further emission reduction measures should be implemented. The
Commonwealth of Kentucky contingency plan will be triggered in the
event of a monitored violation of the ozone standard. The Commonwealth
then commits to adopt within a six months, one or more of the
contingency measures listed in the contingency plan. The Commonwealth
has also committed to operate the air monitoring network in accordance
to 40 CFR 58 with no reductions in the existing network. Refer to the
TSD accompanying this notice for a more complete discussion of the
indicators the Commonwealth is tracking and the contingency measures.
D. Contingency Plan
The level of VOC and NOX emissions in the nonattainment area
will largely determine its ability to stay in compliance with the
O3 NAAQS in the future. Despite the Commonwealth's best efforts to
demonstrate continued compliance with the NAAQS, the ambient air
pollutant concentrations may exceed or violate the NAAQS. Therefore,
the Commonwealth of Kentucky has provided contingency measures with a
schedule for implementation in the event of a future O3 air
quality problem. The plan contains the following possible contingency
measures: (1) Petition EPA to opt into reformulated gasoline (RFG), (2)
Inspection and maintenance (I/M), and (3) Stage II. In addition to
these contingency measures, the Commonwealth will consider other
miscellaneous options. A complete description of these contingency
measures and their trigger can be found in the TSD accompanying this
notice. EPA finds that the contingency measures provided in the
Commonwealth of Kentucky's submittal meet the requirements of section
175A(d) of the CAA.
E. Subsequent Maintenance Plan Revisions
In accordance with section 175A(b) of the CAA, the Commonwealth of
Kentucky has agreed to submit a revised maintenance SIP eight years
after the nonattainment area redesignates to attainment. Such revised
SIP will provide for maintenance for an additional ten years.
Proposed Action
EPA proposes approval of the Commonwealth of Kentucky's request to
redesignate to attainment the Kentucky portion of the Ashland-
Huntington moderate O3 nonattainment area and maintenance plan
contingent upon a full and final approval of the outstanding
requirements discussed above (emission statement and a source specific
SIP revision requiring VOC RACT on a non-CTG major VOC source). EPA
also proposes to approve the 1990 baseyear inventory for the Kentucky
portion of the Ashland-Huntington nonattainment area.
The OMB has exempted these actions from review under Executive
Order 12866.
Nothing in this action shall be construed as permitting or allowing
or establishing a precedent for any future request for a revision to
any state implementation plan. Each request for revision to the state
implementation plan shall be considered separately in light of specific
technical, economic, and environmental factors and in relation to
relevant statutory and regulatory requirements.
Under the Regulatory Flexibility Act, 5 U.S.C. 600 et seq., EPA
must prepare a regulatory flexibility analysis assessing the impact of
any proposed or final rule on small entities. 5 U.S.C. 603 and 604.
Alternatively, EPA may certify that the rule will not have a
significant impact on a substantial number of small entities. Small
entities include small businesses, small not-for-profit enterprises,
and government entities with jurisdiction over populations of less than
50,000.
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 regulatory requirements on sources. The
Administrator certifies that the approval of the redesignation request
will not affect a substantial number of small entities.
List of Subjects in 40 CFR Part 52
Air pollution control, Carbon monoxide, Hydrocarbons, Incorporation
by reference, Intergovernmental relations, Lead, Nitrogen dioxide,
Ozone, Particulate matter, Reporting and recordkeeping requirements,
Sulfur oxides.
Dated: December 8, 1994.
Patrick M. Tobin,
Acting Regional Administrator.
[FR Doc. 94-30949 Filed 12-15-94; 8:45 am]
BILLING CODE 6560-50-P
