94-14892. Approval and Promulgation of Implementation Plan; Indiana  

  • [Federal Register Volume 59, Number 117 (Monday, June 20, 1994)]
    [Unknown Section]
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    From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
    [FR Doc No: 94-14892]
    
    
    [[Page Unknown]]
    
    [Federal Register: June 20, 1994]
    
    
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    ENVIRONMENTAL PROTECTION AGENCY
    40 CFR Part 52
    
    [IN37-1-6217A, IN38-1-6256A; FRL-5000-8]
    
     
    
    Approval and Promulgation of Implementation Plan; Indiana
    
    AGENCY: Environmental Protection Agency.
    
    ACTION: Final rule.
    
    -----------------------------------------------------------------------
    
    SUMMARY: The United States Environmental Protection Agency (USEPA) 
    approves Indiana's 1990 base year ozone precursor emission inventories 
    for certain ozone nonattainment areas as a revision to the Indiana 
    ozone State Implementation Plan (SIP). The emission inventories were 
    submitted by the State of Indiana to satisfy a Federal requirement that 
    States containing ozone nonattainment areas submit inventories of 
    actual ozone precursor emissions in accordance with USEPA guidance. The 
    ozone nonattainment areas covered by the emission inventories addressed 
    in this rulemaking are: Evansville (Vanderburgh County); Indianapolis 
    (Marion County); Louisville (Clark and Floyd Counties); and South Bend/
    Elkhart (Elkhart and St. Joseph Counties). (The emission inventories 
    for Lake and Porter Counties, the only other ozone nonattainment areas, 
    will be addressed in a separate rulemaking action.) In the proposed 
    rules section of this Federal Register, USEPA is proposing approval of 
    and soliciting public comment on this requested SIP revision. If 
    adverse comments are received on this direct final rule, USEPA will 
    withdraw this final rule and address the comments received in response 
    to this final rule in a final rule on the related proposed rule which 
    is being published in the proposed rules section of this Federal 
    Register.
    
    DATES: This final rule will be effective August 19, 1994 unless notice 
    is received by July 20, 1994 that someone wishes to submit adverse 
    comments. If the effective date of this action is delayed due to 
    adverse comments, timely notice will be published in the Federal 
    Register.
    
    ADDRESSES: Written comments should be sent to J. Elmer Bortzer, Chief, 
    Regulation Development Section (AR-18J), U.S. Environmental Protection 
    Agency, 77 West Jackson Boulevard, Chicago, Illinois, 60604. Copies of 
    Indiana's emission inventory submittals and USEPA's technical support 
    documents are available for public review during normal business hours, 
    between 8 a.m. and 4:30 p.m., at the above address.
    
    FOR FURTHER INFORMATION CONTACT: Edward Doty, Regulation Development 
    Section (AR-18J), U.S. Environmental Protection Agency, 77 West Jackson 
    Boulevard, Chicago, Illinois, 60604. Telephone: (312) 886-6057.
    
    SUPPLEMENTARY INFORMATION:
    
    I. Emission Inventory Policy and Guidelines
    
        Under the Clean Air Act (Act), as amended in 1990, States have the 
    responsibility to inventory emissions contributing to the violation of 
    a National Ambient Air Quality Standard (NAAQS), to track these 
    emissions over time, and to ensure that control strategies are being 
    implemented that reduce emissions and move areas towards attainment of 
    the NAAQS. States containing ozone nonattainment areas are required, 
    under section 182(a)(1) of the Act, to submit by November 15, 1992, a 
    comprehensive, accurate, and current inventory of actual ozone 
    precursor emissions (emissions of Volatile Organic Compounds (VOC), 
    Oxides of Nitrogen (NOX), and Carbon Monoxide (CO)) for each ozone 
    nonattainment area. This inventory must include base year (1990) 
    emissions from point, area, on-road mobile, and non-road mobile 
    anthropogenic (man-made) sources and biogenic (natural or plant 
    generated) sources in the ozone nonattainment area(s) and the ozone 
    precursor emissions from major stationary sources (with VOC, CO, or 
    NOX emissions equal to or exceeding 100 tons per year) located 
    within 25 miles of the nonattainment area(s). The emissions inventory 
    must be established for the peak ozone season (those months when peak 
    hourly ozone concentrations occur in excess of the primary ozone NAAQS, 
    generally June through August in Indiana) and must represent typical 
    weekday emissions. Available guidance for preparing and reviewing the 
    emission inventories is provided in the General Preamble to Title I of 
    the Act. See 57 FR 13498 (April 16, 1992). Additional guidance is 
    identified in the Technical Support Document (TSD) for this rulemaking.
        The Act also requires States with ozone nonattainment areas 
    designated as moderate, serious, severe, or extreme to submit a plan by 
    November 15, 1993, to reduce VOC emissions by 15 percent by November 
    15, 1996. The baseline level of emissions, from which the 15 percent 
    reduction is calculated, is determined by adjusting the base year 
    emissions inventory to exclude biogenic emissions and certain emission 
    reductions not creditable toward the 15 percent Reasonable Further 
    Progress (RFP) requirement. The 1990 base year emissions inventory is 
    the primary emissions inventory from which the RFP projection 
    inventory, future periodic inventories, and attainment demonstration 
    modeling inventories are derived. Further information on these 
    inventories and their purposes can be found in the ``Emission Inventory 
    Requirements for Ozone State Implementation Plans,'' U.S. Environmental 
    Protection Agency, Office of Air Quality Planning and Standards, 
    Research Triangle Park, North Carolina, March 1991.
        As a primary tool for the review of the quality of emission 
    inventory submittals, the USEPA has developed three levels (I, II, and 
    III) of emission inventory quality assurance review checklists. The 
    Level I and II reviews are used to determine that all required 
    components of the base year emission inventory and its associated 
    documentation are present. These reviews also evaluate the level of 
    quality of the supporting documentation and data provided by the State 
    and assess whether the emission estimates were developed according to 
    current USEPA guidance. The Level III review evaluates 10 crucial 
    aspects and the overall acceptability of the emission inventory 
    submittal. Failure to meet one of these crucial aspects would lead to 
    disapproval of the emission inventory submittal. The 10 crucial 
    requirements of the emission inventory submittal are:
        1. An Inventory Preparation Plan (IPP) must be submitted by the 
    State and approved by the USEPA. In addition, a Quality Assurance (QA) 
    plan contained within the IPP must have been implemented and 
    documented.
        2. The emission inventory submittal must contain adequate 
    documentation showing the procedures and input data used and the input 
    data sources.
        3. The point source portion of the inventory must be complete.
        4. The point source emissions must have been prepared or calculated 
    in accordance with current USEPA guidance.
        5. The area source portion of the inventory must be complete.
        6. The area source emissions must have been calculated in 
    accordance with current USEPA policy.
        7. The biogenic emissions must have been calculated using USEPA's 
    PC-Biogenic Emissions Inventory System (PC-BEIS) or other equivalent 
    techniques in accordance with current USEPA guidance.
        8. The Vehicle Miles Travelled (VMT) estimates used in the 
    calculation of on-road mobile source emissions must have been developed 
    in accordance with USEPA guidance and must have been adequately 
    documented in the inventory submittal.
        9. The MOBILE emission factor model must have been correctly 
    applied to produce emission factors for each of the vehicle classes.
        10. Non-road mobile source emissions must have been prepared in 
    accordance with current USEPA guidance for all of the non-road source 
    categories.
        The base year emission inventory may be approved if it passes the 
    Level I, II, and III reviews. Detailed Level I and II review procedures 
    and questions can be found in the ``Quality Review Guidelines for 1990 
    Base Year Emission Inventories,'' U.S. Environmental Protection Agency, 
    Office of Air Quality Planning and Standards, Research Triangle Park, 
    North Carolina, July 27, 1992. Level III review procedures and criteria 
    are specified in a memorandum from David Mobley, Emission Inventory 
    Branch, Office of Air Quality Planning and Standards, U.S. 
    Environmental Protection Agency, to the Chief of the Regulation 
    Development Branch, Region V, et. al., title ``Final Emission Inventory 
    Level III Acceptance Criteria,'' October 7, 1992.
        The Act requires States to observe certain procedural requirements 
    in developing and submitting SIP revisions, including the base year 
    emissions inventory submittal. Section 110(a)(2) of the Act provides 
    that each SIP revision submitted by a State must be adopted after 
    reasonable notice and public hearing. Final approval of the emissions 
    inventory will not occur until the State revises the emissions 
    inventory to address public comments.
    
    II. Indiana's Emission Inventory Submittals
    
        On January 15, 1994, the Indiana Department of Environmental 
    Management (IDEM) submitted the final, adopted base year ozone 
    precursor emissions inventories for the Evansville, Louisville, and 
    South Bend/Elkhart ozone nonattainment areas. On February 14, 1994, the 
    City of Indianapolis (acting for the State of Indiana) submitted the 
    final, adopted base year ozone precursor emissions inventory for the 
    Indianapolis ozone nonattainment area. The emission inventory 
    submittals cover the emissions of VOC, NOX, and CO for the 
    following ozone nonattainment areas: Evansville (Vanderburgh County); 
    Indianapolis (Marion County); Louisville (Clark and Floyd Counties); 
    and South Bend/Elkhart (Elkhart and St. Joseph Counties). (The emission 
    inventories for Lake and Porter Counties, the only other ozone 
    nonattainment areas, will be addressed in a separate rulemaking 
    action.) In addition to emissions from the ozone nonattainment areas, 
    the submittals also cover VOC, NOX, and CO emissions from major 
    stationary sources (with actual emissions for any of the covered 
    pollutants equal to or in excess of 100 tons per year) in all counties 
    located within 25 miles of the ozone nonattainment areas.
        Prior to developing the base year emission inventories, the State 
    of Indiana developed an IPP as required by the USEPA. This IPP was 
    approved by the USEPA in March 1992.
        Emissions contained in the emission inventories cover the general 
    source categories of stationary point sources (or simply point 
    sources), area sources, on-road mobile sources, off-road mobile 
    sources, and biogenic sources. Emission inventory summary tables in the 
    submittal include a more detailed source category breakdown as 
    requested by the USEPA. All emission summaries were accompanied by 
    documentation covering the sources and values of input data and by 
    sample calculations.
        To determine up-to-date point source emissions, the State and the 
    City of Indianapolis, respectively, sent emission inventory 
    questionnaires to all facilities contained in the State's Aerometric 
    Information Retrieval System (AIRS) and to all sources which hold an 
    air emissions permit issued by the State or by the City of 
    Indianapolis. The City of Indianapolis for Marion County and the State 
    for Vanderburgh, Clark, Floyd, St. Joseph and Elkhart Counties. The 
    questionnaires contained all key data fields necessary to calculate 
    typical summer weekday emissions. To assure full coverage of emitting 
    point sources, the State also consulted other data sources, such as 
    manufacturer's listings, newly issued construction permits, and other 
    databases, including Superfund Amendments and Reauthorization Act 
    (SARA) Title III, section 313 summaries, and the Toxic Release 
    Inventory. Similarly, the City of Indianapolis also consulted other 
    data sources and utilized direct company inquiries to assure the 
    completeness of data.
        The point source portions of the emission inventories include 
    detailed facility-specific emission listings with emissions determined 
    at the segment level and at the facility total level. Point source 
    emissions at these source levels were listed for all facilities in the 
    ozone nonattainment areas with emissions of VOC or NOX equal to or 
    greater than 10 tons per year or with emissions of CO equal to or 
    greater than 100 tons per year (facilities with less emissions were 
    also included in the point source portions of the emission 
    inventories). Exceedance of the emission cutoff for VOC, NOX, or 
    CO resulted in the reporting of VOC, NOX, and CO emissions for a 
    given facility. Point source emissions were calculated using emission 
    factors contained in AIRS or using techniques outlined in the approved 
    IPP. Emission factors used were generally obtained from the AIRS 
    Facility Subsystem (AFS), AP-42 Compilation of Air Pollution Emission 
    Factors, National Acid Precipitation Assessment Program emission 
    inventory, direct stack test data, and other USEPA guidelines. The 
    point source listings included with emission inventory submittals (on 
    file at the Region 5 office) identify the emission factors, source 
    activity levels or throughputs, operating schedules, control equipment 
    efficiencies, and rule effectiveness estimates (a default 80 percent 
    rule effectiveness level was used for most sources) used for each 
    facility and facility segment.
        Area source emissions were calculated using a variety of 
    information sources and guidance from the USEPA. Where appropriate, 
    point source emissions have been subtracted from the calculated area 
    source emissions to account for source coverage overlap. For all 
    appropriate source categories, the State and the City of Indianapolis 
    assumed a rule effectiveness level of 80 percent.
        In preparing the area source emissions, the State and the City of 
    Indianapolis used the following USEPA guidance documents: Procedures 
    for the Preparation of Emission Inventories for Carbon Monoxide and 
    Precursors of Ozone, Volumes I and II, EPA-450/4-91-016 and EPA-450/4-
    91-014, May 1991; and Procedures for Emission Inventory Preparation, 
    Volume IV: Mobile Sources, EPA-450/4-81-026d, revised July 1989. The 
    new Volume IV guidance, issued in the Spring of 1992, was used to 
    estimate railroad and aircraft emissions. Estimates of other off-road 
    mobile source emissions were based on USEPA's 1991 off-road mobile 
    source emission study. In making other area source estimates, the State 
    and the City of Indianapolis followed the approved IPP.
        The State has entered the calculated area source emission estimates 
    into USEPA's AIRS Area and Mobile Source System (AIRS/AMS). The data 
    are well documented in both hardcopy and in computer data files 
    submitted with the emission inventory submittals as additional 
    documentation.
        On-road mobile source emissions were calculated using USEPA's 
    Procedures for Emission Inventory Preparation, Volume IV: Mobile 
    Sources (as revised in 1989) and USEPA's MOBILE5A model. Daily Vehicle 
    Miles Travelled (VMT) and speed data by county and roadway type were 
    obtained from the Indiana Department of Transportation (InDOT), who 
    used the Highway Performance Monitoring System (HPMS) to determine VMT 
    by roadway functional class. The VMT provided by InDOT were annual 
    average daily traffic levels. Insufficient data existed to allow the 
    VMT to be adjusted to the summer months and the day of week levels. To 
    quality assure the VMT estimates, the local Metropolitan Planning 
    Organizations (MPOs) were requested to confirm the VMT estimates or to 
    correct them if needed based on more representative data. The VMT were 
    quality assured through comparison with current roadway traffic counts.
        The MPOs recommended vehicle speeds based on the use of local 
    transportation models (the MINUTP transportation model was used in the 
    Evansville, Louisville (Clark and Floyd Counties, Indiana), and South 
    Bend/Elkhart areas, while the City of Indianapolis chose to use the 
    default speeds recommended by the USEPA in MOBILE5A). The speeds 
    derived using the MINUTP transportation model were on average higher 
    than the default speeds recommended by the USEPA. Nonetheless the MPOs 
    believe the model-generated speeds are more representative of their 
    areas than the recommended default speeds and are justified on 
    observations of actual traffic flow rates (no monitored speeds were 
    presented to defend these conclusions). The estimated speeds were used 
    in conjunction with USEPA recommended defaults for vehicle mixtures to 
    determine emission rates for each roadway type. Fuel volatility was 
    assumed to comply with USEPA requirements for the areas. The ambient 
    temperatures used in the mobile source emissions modeling were derived 
    from the average maximum and minimum temperatures on the ten highest 
    ozone days for the period of 1988 through 1990 for each area using an 
    approach recommended by the USEPA. The emission factors determined 
    using MOBILE5A were combined with the total VMT for each functional 
    roadway class to determine the total mobile source emissions for each 
    county. All parameters used in the mobile source emissions modeling, 
    including the parameters used by the MOBILE5A model, were well 
    documented.
        The biogenic emissions for each of the counties were determined 
    using USEPA's PC-BEIS model. Included in the documentation of the 
    applications of this model were descriptions of the methodology used to 
    determine temperature inputs for the model. The temperature inputs were 
    determined using the technique recommended by the USEPA. The 
    applications of PC-BEIS also included the use of land use data supplied 
    by the USEPA.
        The State of Indiana held public hearings on the Evansville, Clark 
    and Floyd Counties, and South Bend/Elkhart emission inventories on June 
    28, 1993, and July 6, 1993. Comments received during these public 
    hearings were used to make appropriate corrections in the emission 
    inventories. A public hearing on the Indianapolis emission inventory 
    submittal was held on November 5, 1993.
        The emissions in units of tons/day for an average day are 
    summarized below:
    
    ------------------------------------------------------------------------
               Source type                 VOC           CO          NOX    
    ------------------------------------------------------------------------
                         Evansville (Vanderburgh County)                    
                                                                            
    ------------------------------------------------------------------------
    Point Sources....................        12.76         1.20         2.78
    Area Sources.....................        12.46         1.71         2.14
    On-Road Mobile Sources...........        25.25       155.33        14.11
    Off-Road Mobile Sources..........         7.50        41.00         7.70
    Biogenic Sources.................         8.37  ...........  ...........
    ------------------------------------------------------------------------
          Totals.....................        66.34       199.24        26.73
                                                                            
    ------------------------------------------------------------------------
                          Indianapolis (Marion County)                      
                                                                            
    ------------------------------------------------------------------------
    Point Sources....................        29.17       220.77        53.63
    Area Sources.....................        48.70        37.88        30.94
    On-Road Mobile Sources...........       107.22       731.50        63.44
    Off-Road Mobile Sources..........        19.24       147.70        28.56
    Biogenic Sources.................        25.29  ...........  ...........
                                      --------------------------------------
          Totals.....................       229.62      1137.85       176.57
                                                                            
    ------------------------------------------------------------------------
                      Louisville (Clark and Floyd Counties)                 
                                                                            
    ------------------------------------------------------------------------
    Point Sources....................         7.52         8.44        44.50
    Area Sources.....................        10.78         2.46         1.25
    On-Road Mobile Sources...........        19.10       106.99        13.32
    Off-Road Mobile Sources..........         6.69        36.90         5.12
    Biogenic Sources.................        38.02  ...........  ...........
                                      --------------------------------------
          Totals.....................        82.11       154.79        64.19
                                                                            
    ------------------------------------------------------------------------
              South Bend/Elkhart (Elkhart and St. Joseph Counties)          
                                                                            
    ------------------------------------------------------------------------
    Point Sources....................        14.44         1.06        10.81
    Area Sources.....................        41.83         5.47         6.32
    On-Road Mobile Sources...........        39.83       249.95        31.36
    Off-Road Mobile Sources..........        10.13        56.42        17.82
    Biogenic Sources.................        19.62  ...........  ...........
                                      --------------------------------------
          Totals.....................       125.85       312.90        66.31
    ------------------------------------------------------------------------
    
    III. Final Rulemaking Action
    
        The USEPA has conducted Level I, II, and III quality assurance 
    reviews of the emission inventory submittals and has concluded that the 
    State of Indiana has met the requirements of section 182(a)(1) of the 
    Act by submitting ozone precursor emission inventories that include 
    comprehensive, accurate, and current actual emissions from all 
    identified sources in the subject ozone nonattainment areas. In 
    particular, the Indiana submittals meet the 10 crucial criteria 
    contained in the Level III quality assurance review. The emission 
    inventories are, therefore, approved for incorporation in the SIP as 
    satisfying the requirements of section 182(a)(1) of the Act.
        Because USEPA considers this action to be noncontroversial and 
    routine, the USEPA is approving it without prior approval. This action 
    will become effective on August 19, 1994. However, if the USEPA 
    receives adverse comments by July 20, 1994, then the USEPA will publish 
    a notice that withdraws the action, and will address the comments 
    received in response to this final rule in the final rule on the 
    requested SIP revision which has been proposed for approval in the 
    proposed rules section of this Federal Register. The comment period 
    will not be extended or reopened.
        This action has been classified as a Table 2 action by the Regional 
    Administrator under the procedures published in the Federal Register on 
    January 19, 1989 (54 FR 2214-2225), as revised by an October 4, 1993 
    memorandum from Michael H. Shapiro, Acting Assistant Administrator for 
    Air and Radiation. A future notice will inform the general public of 
    these tables. On January 6, 1989, the Office of Management and Budget 
    (OMB) waived Table 2 and Table 3 SIP revisions (54 FR 2222) from the 
    requirements of section 3 of the Executive Order 12291 for a period of 
    2 years. The USEPA has submitted a request for a permanent waiver for 
    Tables 2 and 3 SIP revisions. The OMB has agreed to continue the waiver 
    until such time as it rules on USEPA's request. This request continues 
    in effect under Executive Order 12866, which superseded Executive Order 
    12291 on September 30, 1993. The OMB has exempted this regulatory 
    action from Executive Order 12866 review.
        Nothing in this section 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 any SIP 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., USEPA 
    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, USEPA may certify 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 government entities with jurisdiction over populations 
    of less than 50,000.
        The SIP approvals under section 110 and subchapter I, part D, of 
    the 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 impose any new requirements, I certify 
    that it does not have a significant impact on small entities. Moreover, 
    due to the nature of the Federal-State relationship under the Act, 
    preparation of a regulatory flexibility analysis would constitute 
    Federal inquiry into the economic reasonableness of State action. The 
    Act forbids the USEPA to base its actions concerning SIPs on such 
    grounds. Union Electric Co. v. U.S. E.P.A., 427 U.S. 246, 256-66 
    (1976).
    
    List of Subjects in 40 CFR Part 52
    
        Environmental protection, Air pollution control, Carbon monoxide, 
    Hydrocarbons, Nitrogen dioxide, Ozone, Volatile organic compounds.
    
        Dated: June 8, 1994.
    David A. Ullrich,
    Acting Regional Administrator.
    
        Part 52, 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. 7401-7671q.
    
    Subpart P--Indiana
    
        2. Section 52.777 is amended by adding paragraph (g) to read as 
    follows:
    
    
    Sec. 52.777  Control strategy: Photochemical oxidants (hydrocarbons).
    
    * * * * *
        (g) The base year ozone precursor emission inventory requirement of 
    section 182(a)(1) of the Clean Air Act, as amended in 1990, has been 
    satisfied for the following areas: Vanderburgh County in the Evansville 
    Metropolitan Area; Marion County in the Indianapolis Metropolitan Area; 
    and St. Joseph and Elkhart Counties in the South Bend Metropolitan 
    Area.
    
    [FR Doc. 94-14892 Filed 6-17-94; 8:45 am]
    BILLING CODE 6560-50-P
    
    
    

Document Information

Effective Date:
8/19/1994
Published:
06/20/1994
Department:
Environmental Protection Agency
Entry Type:
Uncategorized Document
Action:
Final rule.
Document Number:
94-14892
Dates:
This final rule will be effective August 19, 1994 unless notice is received by July 20, 1994 that someone wishes to submit adverse comments. If the effective date of this action is delayed due to adverse comments, timely notice will be published in the Federal Register.
Pages:
0-0 (1 pages)
Docket Numbers:
Federal Register: June 20, 1994, IN37-1-6217A, IN38-1-6256A, FRL-5000-8
CFR: (1)
40 CFR 52.777