[Federal Register Volume 61, Number 189 (Friday, September 27, 1996)]
[Rules and Regulations]
[Pages 50718-50720]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 96-24858]
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ENVIRONMENTAL PROTECTION AGENCY
40 CFR Part 52
[KY81-1-9638; FRL-5607-3]
Approval and Promulgation of Air Quality Implementation Plans;
The Commonwealth of Kentucky--Disapproval of the Request to Redesignate
the Kentucky Portion of the Cincinnati-Northern Kentucky Moderate Ozone
Nonattainment Area to Attainment and the Associated Maintenance Plan
AGENCY: Environmental Protection Agency (EPA).
ACTION: Final rule.
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SUMMARY: EPA is disapproving the Commonwealth of Kentucky Natural
Resources and Environmental Protection Cabinet's (Cabinet) request to
redesignate the Kentucky portion of the Cincinnati-Northern Kentucky
moderate ozone nonattainment area to attainment and the associated
maintenance plan as a revision to the state implementation plan (SIP).
The EPA determined that the area registered a violation of the ozone
national ambient air quality standard (NAAQS). As a result, the
Cincinnati-Northern Kentucky area no longer meets the statutory
criteria for redesignation to attainment of the ozone NAAQS.
EFFECTIVE DATE: September 27, 1996.
ADDRESSES: 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.
Air and Radiation Docket and Information Center (Air Docket 6102),
U.S. Environmental Protection Agency, 401 M Street, SW, Washington, DC
20460.
Environmental Protection Agency, Region 4 Air Planning Branch, 100
Alabama Street, SW, Atlanta, Georgia 30303-3104.
Division of Air Quality, Department for Environmental Protection,
Natural Resources and Environmental Protection Cabinet, 803 Schenkel
Lane, Frankfort, Kentucky 40601.
FOR FURTHER INFORMATION CONTACT: Joey LeVasseur, 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
404/562-9035. Reference file KY-081-1-9638.
SUPPLEMENTARY INFORMATION: On November 11, 1994, the Cabinet submitted
a request to EPA to redesignate the Kentucky portion of the Cincinnati-
Northern Kentucky moderate interstate ozone nonattainment area from
nonattainment to attainment. On that date, the Cabinet also submitted a
maintenance plan for the area as a revision to the Kentucky SIP.
According to section 107(d)(3)(E) of the Clean Air Act (CAA), 42
U.S.C. 7407(d)(3)(E), redesignation requests must meet five specific
criteria in order for EPA to redesignate an area from nonattainment to
attainment:
1. The Administrator determines that the area has attained the
ozone NAAQS;
2. The Administrator has fully approved the applicable
implementation plan for the area under section 110(k);
3. The Administrator determines that the improvement in air quality
is due to permanent and enforceable reductions in emissions resulting
from implementation of the applicable implementation plan and
applicable Federal air pollution control regulations and other
permanent and enforceable reductions;
4. The Administrator has fully approved a maintenance plan for the
area as meeting the requirements of section 175A; and
5. The State containing such area has met all requirements
applicable to the area under section 110 and part D.
All five criteria must be satisfied in order for EPA to redesignate
an area from nonattainment to attainment. Under the first criteria, the
Administrator of EPA is prohibited from redesignating an area to
attainment when that area has not attained the NAAQS. The CAA requires
the area to be in attainment at the time of the final action on the
redesignation. If a violation occurs prior to EPA's final action, the
area is no longer in attainment and EPA cannot redesignate the area to
attainment status.
At the time of the Commonwealth's redesignation submittal in 1994,
the Cincinnati-Northern Kentucky area appeared to have attained the
NAAQS, based on air quality data monitored from 1992 through 1994.
However, during EPA's review of the redesignation request, ambient air
quality data indicated that the area had registered a violation of the
ozone NAAQS in 1995. This ambient data has been quality assured
according to established procedures for validating such monitoring
data. The Cabinet does not contest that the area violated the NAAQS for
ozone during the 1995 ozone season. As a result, the Cincinnati-
Northern Kentucky area does not meet the statutory criteria for
redesignation to attainment of the ozone NAAQS found in section
107(d)(3)(E)(i) of the CAA.
The maintenance plan SIP revision is not approvable because its
demonstration is based on a level of ozone precursor emissions in the
ambient air thought to represent an inventory of emissions that would
provide for attainment and maintenance. That underlying basis of the
maintenance plan's demonstration is no longer valid due to the
violation of the NAAQS that occurred during the 1995 ozone season.
Request for Comments
EPA published a document on April 17, 1996, (61 FR 16738) proposing
disapproval of the maintenance plan and redesignation request and
soliciting comment on the disapproval and relevant issues. EPA received
a number of comments on the proposal. Those comments and the response
thereto are summarized below.
Comment #1--The violation of the ozone standard which occurred
subsequent to the submission of the request cannot be considered
evidence that the area did not achieve the ozone standard, by the very
definition of the standard as set forth in the Act and the regulations.
The continued designation of the area as nonattainment not only fails
to serve a useful purpose, but actually inhibits the broader view of
urban ozone pollution that will be necessary to improve air quality.
Public acceptance of control implementation may be enhanced under an
attainment area contingency plan strategy. This is an additional factor
which should not be overlooked as EPA and the states struggle to gain
public acceptance of new air quality improvement plans.
Response--The CAA authorizes EPA up to 18 months from submittal to
act on a state's request to redesignate. If a violation occurs during
the pendency of EPA's review, EPA cannot approve the request since the
area would not have remained in attainment. Since only a
[[Page 50719]]
final rulemaking can change an area's designation, the area must
continue to meet attainment criteria until the final rulemaking is
published. In addition, EPA is obligated to consider all relevant data
available to it at the time of its decision-making. This means that if
EPA has valid data indicating a violation of the ozone standard for the
Cincinnati-Northern Kentucky area prior to final rulemaking, it must
consider that data in determining whether the area is in attainment.
The CAA prohibits a redesignation to attainment if the area is not, in
fact, attaining the NAAQS at the time of final rulemaking.
The violation of the ozone standard which occurred after submittal
of the Kentucky redesignation request for the Cincinnati-Northern
Kentucky area is properly considered data on attainment status.
Therefore, EPA is disapproving the redesignation request.
Comment #2--A redesignation to attainment should not be
interpreted to mean more than the satisfaction of those provisions
mandated in the CAA for the request to be granted.
Response--EPA is not requiring more for a redesignation to
attainment than that required by the CAA. Section 107(d)(3)(E)(i) of
the CAA states, ``The Administrator may not promulgate a redesignation
of a nonattainment area (or portion thereof) to attainment unless the
Administrator determines that the area has attained the national
ambient air quality standard.'' Once the violation occurred, the
Cincinnati-Northern Kentucky area no longer met the statutory criteria
for redesignation to attainment of the ozone NAAQS. Therefore, EPA is
disapproving the redesignation request.
Comment #3--The approval of the requests will do nothing to
inhibit the immediate implementation of emission control programs
within the nonattainment area.
Response--Approving the request to redesignate the area to
attainment would not guarantee that the area would achieve the NAAQS.
Conversely, disapproving the redesignation request in no way prohibits
the implementation of emission control programs within the
nonattainment area. In fact, disapproval would require the area to meet
all the CAA measures for moderate ozone nonattainment areas.
Comment #4--The violation was due to a single exceedance that
occurred at a monitoring site in Ohio and should not affect the
redesignation of the Kentucky portion of the nonattainment area.
Response--Ozone is a pollutant that is not directly emitted, but is
formed from a photochemical reaction between volatile organic compounds
(VOCs) and oxides of nitrogen (NOX) in the presence of sunlight.
Ozone may be formed as much as 20 miles from where the VOCs and
NOX are emitted and transported even farther. This makes ozone an
area-wide problem. The ozone NAAQS is 0.12 parts per million as stated
in 40 CFR 50.9. To be considered a violation, a single monitor must
exceed this value four times in a three year period. The NAAQS was
exceeded for the fourth time in two years at the Lebanon, Ohio site in
Warren County Ohio. The fourth exceedance caused the violation,
however, two sites in Northern Kentucky also exceeded the standard in
this time period. In addition, as indicated above, the CAA states that
EPA ``may not promulgate a redesignation of a nonattainment area (or
portion thereof) to attainment unless * * * the area has'' attained the
standard. Although a violation did not occur in the Kentucky portion of
the nonattainment area, a request to redesignate a portion of an area
to attainment may not be approved if the entire area does not meet the
redesignation requirements.
Comment #5--Before the CAA Amendments of 1990, the U.S. EPA could
redesignate an area only after a request by the governor of the state
in which it was located. The 1990 amendments provided EPA with the
authority to act unilaterally to propose redesignation. This authority
will allow the federal agency to respond much more quickly if a state
is recalcitrant in implementing or enforcing contingency measures.
Response--The revised CAA does allow EPA to act more quickly to
redesignate to nonattainment, however, the Cincinnati-Northern Kentucky
area no longer meets the statutory criteria for redesignation to
attainment of the ozone NAAQS. The Agency cannot redesignate an area
that violates the standard prior to final action on a redesignation
request. Therefore, EPA is disapproving the redesignation request.
Final Action
EPA disapproves the Commonwealth's November 11, 1994 redesignation
request and maintenance plan SIP revision. The agency has reviewed this
request for revision of the Federally-approved SIP for conformance with
the provisions of the CAA. The Agency has determined that this action
does not conform with the statute as amended and should be disapproved.
This action has been classified as a Table 3 action for signature
by the Regional Administrator under the procedures published in the
Federal Register on January 19, 1989 (54 FR 2214-2225), as revised by a
July 10, 1995, memorandum from Mary Nichols, Assistant Administrator
for Air and Radiation. The Office of Management and Budget (OMB) has
exempted this regulatory action from E.O. 12866 review.
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.
Regulatory Flexibility Act
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.
EPA's denial of the State's redesignation request under section
107(d)(3)(E) does not affect any existing requirements applicable to
small entities nor does it impose new requirements. The area retains
its current designation status and will continue to be subject to the
same statutory requirements. To the extent that the area must adopt
regulations, based on its nonattainment status, EPA will review the
effect of those actions on small entities at the time the state submits
those regulations. Therefore, I certify that denial of the
redesignation request will not affect a substantial number of small
entities.
Unfunded Mandates
Under Sections 202, 203, and 205 of the Unfunded Mandates Reform
Act of 1995 (``Unfunded Mandates Act''), signed into law on March 22,
1995, EPA must undertake various actions in association with proposed
or final rules that include a Federal mandate that may result in
estimated costs of $100 million or more to the private sector, or to
State, local, or tribal governments in the aggregate.
Through submission of this state implementation plan or plan
revision, the State and any affected local or tribal governments have
elected to adopt the
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program provided for under Section 110 of the CAA. These rules may bind
State, local and tribal governments to perform certain actions and also
require the private sector to perform certain duties. EPA has examined
whether the rules being disapproved by this action would impose any new
requirements. Since such sources are already subject to these
regulations under State law, no new requirements are imposed by this
disapproval. Accordingly, no additional costs to State, local, or
tribal governments, or to the private sector, result from this action,
and therefore there will be no significant impact on a substantial
number of small entities.
Under 5 U.S.C. 801(a)(1)(A) of the Small Business Regulatory
Enforcement Fairness Act of 1996, EPA submitted a report containing
this rule and other required information to the U.S. Senate, the U.S.
House of Representatives and the Comptroller General of the General
Accounting Office prior to publication of the rule in today's Federal
Register. This rule is not a ``major rule'' as defined by 5 U.S.C.
804(2).
Under section 307(b)(1) of the Clean Air Act, petitions for
judicial review of this action must be filed in the United States Court
of Appeals for the appropriate circuit by September 27, 1996. Filing a
petition for reconsideration by the Administrator of this final rule
does not affect the finality of this rule for the purposes of judicial
review nor does it extend the time within which a petition for judicial
review may be filed, and shall not postpone the effectiveness of such
rule or action. This action may not be challenged later in proceedings
to enforce its requirements. (See section 307(b)(2).)
List of Subjects in 40 CFR Part 52
Air pollution control, Hydrocarbons, Intergovernmental relations,
Nitrogen dioxide, Ozone, Particulate matter, Reporting and
recordkeeping requirements, Sulfur oxides.
Dated: August 15, 1996.
R. F. McGhee,
Acting Regional Administrator.
Part 52 of chapter I, title 40, 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 S--Kentucky
2. Section 52.930 is amended by adding paragraph (c) to read as
follows:
Sec. 52.930 Control strategy: Ozone.
* * * * *
(c) The redesignation request submitted by the Commonwealth of
Kentucky, on November 11, 1994, for the Kentucky portion of the
Cincinnati-Northern Kentucky moderate interstate ozone nonattainment
area from nonattainment to attainment was disapproved on September 27,
1996.
[FR Doc. 96-24858 Filed 9-26-96; 8:45 am]
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