[Federal Register Volume 60, Number 131 (Monday, July 10, 1995)]
[Proposed Rules]
[Pages 35535-35538]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 95-16832]
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ENVIRONMENTAL PROTECTION AGENCY
40 CFR Part 52
[OH80-1-6979; FRL-5256-2]
Approval and Promulgation of Implementation Plans; Ohio
AGENCY: United States Environmental Protection Agency (USEPA).
ACTION: Proposed rule.
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SUMMARY: The USEPA is proposing to approve Ohio's 1990 base-year ozone
precursor emissions inventories for the Canton, Cleveland, Cincinnati
and Youngstown ozone nonattainment areas as revisions to the ozone
portion of the Ohio State Implementation Plan (SIP). The emissions
inventories were submitted to satisfy a Federal requirement that States
containing ozone nonattainment areas submit inventories of actual ozone
precursor emissions for the year 1990. The Ohio ozone nonattainment
areas covered by this rulemaking are Canton (Stark County); Cincinnati
(Butler, Clermont, Hamilton and Warren Counties); Cleveland (Ashtabula,
Cuyahoga, Geauga, Lake, Lorain, Medina, Portage and Summit Counties);
and Youngstown (Mahoning and Trumbull Counties). Initial notification
of such approval would be by letter to the State of Ohio.
DATES: Comments on this action must be received by August 9, 1995.
ADDRESSES: Written comments should be mailed to: William L. MacDowell,
Chief, Regulation Development Section, Air Enforcement Branch (AE-17J),
USEPA, Region 5, 77 West Jackson Boulevard, Chicago, Illinois 60604.
Copies of the State submittal and USEPA's analysis of it are
available for inspection at: Regulation Development Section, Air
Enforcement Branch (AE-17J), USEPA, Region 5, 77 West Jackson
Boulevard, Chicago, Illinois 60604.
FOR FURTHER INFORMATION CONTACT: Richard Schleyer, Environmental
Engineer, Regulation Development Section, Air Enforcement Branch (AE-
17J), USEPA, Region 5, 77 West Jackson Boulevard, Chicago, Illinois
60604, (312) 353-5089.
SUPPLEMENTARY INFORMATION:
I. Background
Section 182(a)(1) of the Clean Air Act Amendments of 1990 (Act)
requires States with ozone nonattainment areas to submit a
comprehensive, accurate and current inventory of actual ozone precursor
emissions (which includes volatile organic compounds (VOC), nitrogen
oxides (NOX), and carbon monoxide (CO)) for each ozone
nonattainment area by November 15, 1992. This inventory must include
anthropogenic base-year (1990) emissions from stationary point, area,
non-road mobile, and on-road mobile sources, as well as biogenic
(naturally occurring) sources in all ozone nonattainment areas. The
emissions inventory must be based on conditions that exist during the
peak ozone season (generally the period when peak hourly ozone
concentrations occur in excess of the primary ozone National Ambient
Air Quality Standard--NAAQS). Ohio's annual ozone season is from April
01 to October 31 of each year.
II. Criteria for Evaluating Ozone Emissions Inventories
Guidance for preparing and reviewing the emission inventories is
provided in the following USEPA guidance documents or memoranda:
``State Implementation Plans; General Preamble for the Implementation
of Title I of the Act,'' (Preamble) as published in the April 16, 1992
Federal Register (57 FR 13498); ``Emission Inventory Requirements for
Ozone State Implementation Plans,'' (EPA-450/4-91-010) dated March
1991; a memorandum from John Calcagni, Director, Air Quality Management
Division, OAQPS, entitled ``Public Hearing Requirements for the 1990
Base-Year Emissions Inventories for Ozone and Carbon Monoxide
Nonattainment Areas,'' dated September 29, 1992; ``Procedures for the
Preparation of Emissions Inventories for Carbon Monoxide and Precursors
of Ozone, Volumes I and II,'' (EPA-450/4-91-016 and EPA-450/4-91-014)
(Procedures; Volumes I and II) dated May 1991; ``Procedures for
Emissions Inventories Preparation, Volume IV: Mobile Sources,'' (EPA-
450/4-81-026d) (Procedures; Volume IV) dated 1992; and ``Supplement C
to Compilation of Air Pollutant Emission Factors, Volume I: Stationary
Point and Area Sources,'' (AP-42) dated September 1990.
As a primary tool for the review of the quality of emission
inventories, the USEPA has also developed three levels (I, II, and III)
of emission inventories checklists. The Level I and II checklists are
used to determine that all required components of the base-year
emission inventory and associated documentation are present. These
reviews also evaluate the level of quality of the associated
documentation and the data provided by the State and assess whether the
emission estimates were developed according to the USEPA guidance. The
Level III review evaluates crucial aspects and the overall
acceptability of the emission inventory submittal. Failure to meet one
of the ten critical aspects would lead to disapproval of the emissions
inventory submittal.
Detailed Level I and II review procedures can be found in the USEPA
guidance document entitled ``Quality Review Guidelines for 1990 Base
Year Emissions Inventories,'' (Quality Review) (EPA-454/R-92-007) dated
August 1992. Level III criteria were attached to a memorandum from John
S. Seitz, Director, Office of Air Quality Planning and Standards,
entitled ``Emission Inventory Issue,'' dated June 24, 1993. The Level
I, II, and III checklists used in reviewing this emissions inventory
submittal are attached to two USEPA technical support documents dated
June 23, 1995.
III. State Submittal
On March 15, 1994, the Ohio Environmental Protection Agency (OEPA)
submitted a revision to the ozone portion of Ohio's SIP which consisted
of the 1990 base-year ozone emissions inventory for the following ozone
nonattainment areas in Ohio: Canton, Cincinnati, Cleveland, Columbus,
Dayton, Toledo and Youngstown. The USEPA has completed its review of
the emissions inventories submitted for the Canton (which includes
Stark County), Cincinnati (which includes Butler, Clermont, Hamilton
and Warren Counties), Cleveland (Ashtabula, Cuyahoga, Geauga, Lake,
Lorain, Medina, Portage and Summit Counties) and Youngstown (which
includes Mahoning and Trumbull Counties) ozone nonattainment areas. The
1990 base-year emissions inventories submitted for all other areas are
addressed in separate rulemakings.
Inventory Preparation Plan/Quality Assurance Plan
All States were required to submit an Inventory Preparation Plan
(IPP) to USEPA for review and approval by October 1, 1991. The IPP
documents the
[[Page 35536]]
procedures utilized in the development of an emissions inventory and
contains the quality assurance and quality control plan (QA/QC). On
March 19, 1992, the State of Ohio submitted a final ozone emissions
IPP. On April 15, 1992, USEPA informed the State that the IPP was not
approvable at the time. Subsequently, USEPA has worked with the State
to correct deficiencies in the IPP. With the March 1994 SIP revision
request, the State submitted documentation of how the emissions
inventory was prepared, as well as a quality assurance report for the
point, area, and mobile source portions of the emissions inventory. The
USEPA finds that this documentation and quality assurance report are
acceptable to meet the requirements of an IPP.
Point Source Emissions Inventory
For each nonattainment area, the State submitted a point source
emissions inventory of all facilities that emit at least 10 tons per
year (tpy) of VOC, or 100 tpy NOX or CO. The State also included
sources that emit 100 tpy of VOC, CO, or NOX located in a 25-mile
boundary surrounding each nonattainment area. The point source
emissions inventory contains general facility information, number of
sources, production schedules and related emissions for each source,
emissions limitation, control efficiency and rule effectiveness (RE),
as applicable, and total emissions on an annual and daily ozone season
basis.
The following methods were employed by the State to identify
sources to be included in the 1990 base-year emissions inventory: the
1989 records for plants in the Emissions Inventory System (EIS) were
checked and plants meeting the VOC, CO or NOX criteria were
revised with 1990 emissions data; the air permit records were reviewed
for plants that are candidates for inclusion in the point source
inventory; and current industrial directories and the Toxic Release
Information System (TRIS) database were checked for additional point
source emissions. For facilities in the point source inventory, the
State acquired the emissions data by means of the following: mail
surveys; plant inspections; telephone calls; and air permit files.
The USEPA reviewed the point source emissions data by cross
referencing the point source inventory to the following sources:
USEPA's guidance document entitled ``Major CO, NO2, and VOC
Sources in the 25-Mile Boundary Around Ozone Nonattainment Areas,
Volume I: Classified Ozone Nonattainment Areas,'' (EPA-450/4-92-005a)
February 1992; a 1990 TRIS Retrieval; and a 1990 Aerometric Information
Retrieval Systems (AIRS) Facility Subsystem--Emission to Compliance
Comparison Report.
Where a source was governed by a regulation or a control device,
the emissions limit was stated. An RE factor was then applied in the
determination of emissions. In accordance with USEPA guidance, a
standard RE factor of 80 percent was utilized, unless otherwise
justified.
Area Source Emissions Inventory
Area source emissions were calculated using State-specific data as
well as USEPA guidance documents and technical memoranda developed for
various categories. The State utilized emission factors from
Procedures; Volumes I and IV, and AP-42 and provided necessary
documentation. The following area source categories were included in
the emissions inventory: gasoline loading and distribution, dry
cleaning, degreasing, architectural surface coatings, traffic markings,
automobile refinishing, graphic arts, cutback asphalt, pesticide
application, commercial/consumer solvents, bakeries, waste management
practices (landfills), leaking underground storage tanks, incineration
of solid waste, stationary fossil fuel combustion, and fires
(structural, open burn, etc.). Vehicle refueling emissions were
included as part of the mobile source emissions inventory.
The area source inventory was reviewed utilizing USEPA's guidance
documents, and the Level I and II checklists, to ensure that all source
categories and their related emissions (and emission factors) were
included in the area source emissions inventory. Seasonal adjustments,
rule effectiveness, and rule penetration factors were applied as
indicated in the State submittal.
On-Road Mobile Source Emissions Inventory
Development of Emission Factors
In the development of the mobile source emissions inventory, the
State utilized USEPA's mobile source emissions model, Mobile 5a, for
the determination of emissions factors for eight vehicle types and
twelve roadway types. Hard-copy documentation of the input and output
files are provided in the State's submittal. Where available, the
State-specific inputs were utilized in the development of the input
files for Mobile 5a.
Development of Vehicle Miles Travelled (VMT)
Canton, Cleveland and Youngstown Areas: The 1990 VMT for each
roadway type was developed by the Ohio Department of Transportation
(ODOT). ODOT maintains data on each section of highway in the State of
Ohio. VMT were developed by the State Road Inventory System and
reported through the Highway Performance Monitoring System (HPMS) to
the Federal Highway Administration (FHWA).
Each roadway section daily VMT (dVMT) is computed as the annual
average daily traffic (AADT) for that section times the length of the
section. The county dVMT is the sum of the dVMT for each highway
functional classifications in the county. The total dVMTs are then
summed as a statewide total. The statewide totals are then compared by
functional class to the 1990 HPMS submittal. For those classifications
where traffic counts are available for all or nearly all their
sections, the totals were essentially the same. For those with more
off-systems roads, the resulting totals were larger than the HPMS's
submittal value (as expected). Correction factors were computed from
the two sets of totals and applied to the individual cells.
ODOT used permanent and portable vehicle classification equipment
to develop the vehicle mix by functional classification of highway.
Traficomp III vehicle classification equipment are used to support the
HPMS data collection effort. A software program called OHIO CONVERT
formats vehicle classification data into the FHWA Vehicle
Classification categories.
Cincinnati-Hamilton Interstate Nonattainment Area: For the
Cincinnati-Hamilton Interstate area, the Ohio-Kentucky-Indiana Regional
Council of Governments (OKI) was responsible for the development of the
mobile source emissions inventory. OKI developed this inventory for the
Ohio and Kentucky portions of the interstate nonattainment area. OKI
utilized the OKI Travel Demand Model to estimate the traffic volume on
each roadway segment and an OKI utility program to which calculates the
loaded speed, VMT and emissions for each roadway segment.
The OKI travel demand model is a computerized travel demand
forecasting model for the entire interstate nonattainment area. The
model uses a four phase sequential travel demand forecasting process of
trip generation, distribution modal choice and assignment. The OKI
Travel Demand Model is composed of TRANPLAN
[[Page 35537]]
programs and Fortran programs written by OKI.
The model takes zonal demographic data and the transportation
network as inputs and produces estimated traffic volumes on each
roadway segment in the network. Traffic zones are the analysis units in
the model. The OKI region is divided into 909 zones. The output of the
model is a loaded highway network which contains information for each
link such as initial speed, capacity, distance, functional class
district number area type and forecasted traffic.
The USEPA has reviewed the mobile source emissions inventory
utilizing the checklist contained in the Quality Review guidance
document. This was used to ensure that recommended procedures were
followed in the development of the mobile source portion of the
emissions inventory.
Off-Road Mobile Source Emissions Inventory
Canton, Cincinnati and Youngstown Areas: The State developed
emissions estimates for the following off-road categories according to
USEPA guidance: aircraft, railroad locomotives, recreational boating,
off road motorcycles, agricultural equipment, construction equipment,
industrial equipment, and lawn and garden equipment. Documentation was
provided as to the sources of emissions factors utilized and were
submitted in the area source emissions inventory portion of the
submittal.
Cleveland Area: The State utilized emissions estimates for non-road
emissions developed by the Office of Mobile Sources (OMS-USEPA) in
October 1992, in accordance with USEPA requirements for the Cleveland/
Akron off-road mobile source emissions inventory. These OMS emissions
estimates are provided for off-road diesel engines, as well as two-
stroke and four-stroke gasoline engines, including off-road
motorcycles, construction equipment, farm equipment, lawn and garden
equipment, industrial equipment, and recreational vessels. In addition,
the State included in the off-road mobile source inventory emissions
from aircraft, railroads, and commercial vessels, which are not
included in the OMS data. These estimates were developed using
emissions factors from AP-42 and activity factors gathered from various
sources.
The off-road mobile source inventory was reviewed utilizing the
Level I and II checklists and USEPA's guidance documents to ensure that
all source categories and their related emissions factors were included
in the off-road mobile source emissions inventory.
Biogenic Emissions Inventory
The State of Ohio developed the naturally occurring (or biogenic)
emissions for the Canton, Cincinnati, Cleveland and Youngstown areas
according to a USEPA's guidance document entitled ``User's Guide to the
Personal Computer Version of the Biogenic Emissions Inventory System
(PC-BEIS),'' (EPA-450/4-91-017) dated July 1991. Meteorological data
utilized in PC-BEIS was collected in accordance with USEPA guidance.
The ten warmest days from the period between 1988 to 1990 with the
highest hourly peak ozone concentrations in each ozone nonattainment
areas was collected and reviewed. As required by USEPA guidance, the
fourth highest daily maximum ozone concentration for each nonattainment
area was selected and utilized in the model. The State provided hard
copy documentation as to the meteorological inputs utilized and PC-BEIS
output files for the biogenic emissions inventory for the Canton,
Cincinnati, Cleveland and Youngstown nonattainment areas.
IV. Approval of the Emissions Inventories
In a letter addressed to Robert Hodanbosi, Chief, Division of Air
Pollution Control, OEPA, dated March 23, 1995, USEPA provided comments
on the 1990 base-year ozone emissions inventories submitted for the
Canton, Cincinnati, Cleveland and Youngstown areas. These comments
addressed corrections that would be needed before the inventories could
be finally approved.
In a letter addressed to William MacDowell, Chief, Regulation
Development Section, dated June 8, 1995, the State of Ohio provided a
response to comments on the area, on-road and off-road mobile, and
biogenic source emissions. The USEPA has reviewed these responses and
finds that the State has satisfied the Agency's comments and that the
emissions inventory for the area, on-road mobile, non-road mobile, and
biogenic sources is approvable.
However, the State has not responded to the point source emissions
inventory comments (these comments addressed possible facilities that
may be required to be included in the point source emissions
inventory). The State is currently making determinations regarding such
facilities, and once completed, will submit the revised point source
inventory to be included as part of this SIP revision. Please note that
the State has satisfied the procedural requirements for the development
of the point source emissions inventory. Therefore, in anticipation of
the corrections, USEPA is proposing to approve the State's point source
emissions inventory. No further action will occur on this SIP revision
until the State submits (and USEPA completes) its review of the
response to the point source emissions comments.
V. Summary of Ozone Emissions Inventory
The following summary indicates the emissions inventories for an
average ozone summer weekday for the Canton, Cincinnati, Cleveland and
Youngstown ozone nonattainment areas. Please note that the point source
emissions estimates stated may be revised (please refer to ``Approval
of the Emissions Inventories'' section above). The emissions are stated
in tons per ozone season weekday:
Canton Ozone Nonattainment Area
[Tons per day]
------------------------------------------------------------------------
Source type VOC CO NOX
------------------------------------------------------------------------
Point sources................................ 12.36 6.51 40.11
Area sources................................. 18.93 1.54 0.98
On-road mobile sources....................... 31.66 188.59 16.24
Off-road mobile sources...................... 23.72 63.00 15.89
Biogenic sources............................. 36.66 ....... .......
--------------------------
Totals................................. 123.33 259.64 73.22
------------------------------------------------------------------------
Cincinnati Ozone Nonattainment Area
[Tons per day]
------------------------------------------------------------------------
Source type VOC CO NOX
------------------------------------------------------------------------
Point sources.............................. 70.93 88.67 280.00
Area sources............................... 64.48 5.41 2.29
On-road mobile sources..................... 125.84 793.16 130.68
Off-road mobile sources.................... 37.37 274.57 34.45
Biogenic sources........................... 109.04 ......... .......
----------------------------
Totals............................... 407.66 1161.81 447.42
------------------------------------------------------------------------
[[Page 35538]]
Cleveland/Akron Ozone Nonattainment Area
[Tons per day]
------------------------------------------------------------------------
Source type VOC CO NOX
------------------------------------------------------------------------
Point sources.......................... 80.24 707.32 244.77
Area sources........................... 120.86 12.64 9.54
On-road mobile sources................. 248.37 1,402.01 176.58
Off-road mobile sources................ 80.19 808.32 70.92
Biogenic sources....................... 195.32 ......... .........
--------------------------------
Totals........................... 724.98 2,930.29 501.81
------------------------------------------------------------------------
Youngstown Ozone Nonattainment Area
[Tons per day]
------------------------------------------------------------------------
Source type VOC CO NOX
------------------------------------------------------------------------
Point sources................................ 16.33 18.74 23.25
Area sources................................. 27.80 13.02 7.00
On-road mobile sources....................... 48.97 293.54 29.87
Off-road mobile sources...................... 13.48 87.88 10.98
Biogenic sources............................. 50.26 ....... .......
--------------------------
Totals................................. 156.84 413.18 71.10
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VI. Proposed Rulemaking Action and Solicitation of Public Comment
Public comments are solicited on USEPA's proposed rulemaking
action. Public comments must be received by August 9, 1995. Notice of
final action on the requested approval of the emissions inventories
will be provided to the State of Ohio by letter, and a subsequent
notice of such action will be published in the Federal Register.
Subsequent to the submittal of acceptable point source corrections,
USEPA will issue a letter to the State of Ohio providing notice of
USEPA's final action on the requested approval of the inventories. The
effective date of these SIP revisions shall be the date that the letter
notice is issued. Interested parties wishing to comment on these SIP
revisions, or on USEPA's approval by means of the letter notice
procedure, must submit written comments by August 9, 1995. USEPA plans
to announce such final action in the Federal Register within 30 days of
its effective date.
VII. Proposed Action
The USEPA is proposing to approve, with ``letter notice'' of any
final action, Ohio's 1990 base-year ozone precursor emissions
inventories for the Canton (Stark County); Cincinnati (Butler,
Clermont, Hamilton and Warren Counties); Cleveland (Ashtabula,
Cuyahoga, Geauga, Lake, Lorain, Medina, Portage and Summit Counties);
and Youngstown (Mahoning and Trumbull Counties) ozone nonattainment
areas.
Please note that no further action will occur on this SIP revision
until the State submits (and USEPA completes its review) on the
response to the point source emissions inventory comments.
VIII. General Provisions
Nothing in this action should be construed as permitting, 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.
This action has been classified as a Table 3 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. The Office of Management and Budget has exempted
this regulatory action from Executive Order 12866 review.
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 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.
List of Subjects in 40 CFR Part 52
Air pollution control, Carbon monoxide, Intergovernmental
relations, Nitrogen dioxide, Ozone, Reporting and recordkeeping
requirements, Volatile organic compounds.
Authority: 42 U.S.C. 7401-7671(q).
Dated: June 28, 1995.
David A. Ullrich,
Acting Regional Administrator.
[FR Doc. 95-16832 Filed 7-7-95; 8:45 am]
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