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[Federal Register: March 17, 1999 (Volume 64, Number 51)]
[[Page 13070]] ======================================================================= -----------------------------------------------------------------------
ENVIRONMENTAL PROTECTION AGENCY
Approval and Promulgation of Implementations; Ohio; Designation of Areas for Air Quality Planning Purposes; Ohio
AGENCY: Environmental Protection Agency (EPA).
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SUMMARY: EPA is approving two redesignation requests submitted by the
State of Ohio. This action, which was requested on October 26, 1995,
redesignates Lake and Jefferson Counties to attainment of National
Ambient Air Quality Standard (NAAQS) for sulfur dioxide
(SO DATES: This ``direct final'' rule is effective on May 17, 1999, unless EPA receives adverse written comments by April 16, 1999. If an adverse written comment is received, EPA will publish a timely withdrawal of the rule in the Federal Register and inform the public that rule will not take effect. ADDRESSES: Written comments should be sent to: J. Elmer Bortzer, Chief, Regulation Development Section. Air Program Branch (AR-18J), Environmental Protection Agency, 77 West Jackson Boulevard, Chicago, Illinois 60604. Copies of the revision request are available for inspection at the following address: Environmental Protection Agency, Region 5, Air and Radiation Division, 77 West Jackson Boulevard, Chicago, Illinois 60604. (It is recommended that you telephone Phuong Nguyen at (312) 886-6708 before visiting the Region 5 office.) FOR FURTHER INFORMATION CONTACT: Phuong Nguyen at (312) 886-6701. SUPPLEMENTARY INFORMATION: I. Background
The NAAQS for SO
EPA promulgated the FIP regulations in 1976. These regulations
required significant emission reductions at specific facilities
throughout the State in order to attain and maintain the NAAQS for
SO
On October 26, 1995, Governor Voinovich requested that EPA move
forward with redesignation to attainment for all remaining
SO The criteria for redesignation to attainment are given in section 107 (d)(3)(E) of the Clean Air Act (Act). Of particular note is section 107 (d)(3)(E)(ii), requiring that EPA has fully approved the applicable plan. These criteria will be discussed in more detail below. The sulfur dioxide nonattainment area in Lake County is described as the cities of Eastlake, Lakeline, Mentor (north of US 20 and west of SR 306), Timberlake and Willoughby (north of US 20). The only major sulfur dioxide source located within this area is the Eastlake Plant. The State adopted emission limits for sources at this facility are equivalent to those found in the FIP. Compliance with these limits was determined by examining information submitted in the facility's Title V permit application. The Ohio Rubber Company plant and Painesville Municipal Plant are located in the sulfur dioxide attainment portion of Lake county, and emissions of these sources are not expected to have a significant impact on air quality in the nonattainment portion of the county. The sulfur dioxide nonattainment area in Jefferson county is described as the cities of Steubenville and Mingo Junction, and the townships of Steubenville, Island Creek, Cross Creek, Knox and Wells. The largest sulfur dioxide sources located within this area are the American Electric Power, Cardinal Power Plant and Tidd Plant, both in Brilliant; The First Energy, W.H. Sammis Plant in Stratton; The First Energy, Toronto Plant, in Toronto; The Wheeling-Pittsburgh Steel, Steubenville South Plant, in Mingo Junction; and the Wheeling- Pittsburgh Steel, Steubenville North Plant, in Steubenville. The state emission limits for sources at these facilities were approved by EPA as part of the State Implementation Plan (SIP), effective January 27, 1981. Revised limits for these sources were approved on December 9, 1996. Compliance with these limits was determined by examining information submitted in the sources' title V permit applications. [[Page 13071]] II. SIP Approval On August 20, 1998, Ohio submitted material including State adopted limits for sources in Lake County. The State requested approval of SIP limits for the First Energy Eastlake Plant and the Ohio Rubber Plant in place of federally promulgated FIP limits. Guidance relevant to the request at issue is provided in a September 28, 1994 memorandum from the Director, Air Quality Management Division, Office of Air Quality Planning and Standards, EPA, to the Director, Air and Radiation Division, Region 5, entitled, ``Response to Request for Guidance on Issues with Ohio Sulfur Dioxide Federal Implementation Plan''. This memo set forth three criteria to be met for the approval of State limits that are equivalent to existing FIP limits without new modeling. Under the first two criteria, there must be no known inadequacy in the original attainment demonstration. Under the third criteria, the State limits must reflect no relaxation of existing emission limits. All three of these criteria are met by the State promulgated SIP limits. Therefore, the revised limits can be considered to be adequate to assure attainment without further modeling. Consequently, EPA approves adopted revisions to rule OAC 3745-18-49(G) (the emission limitations for the First Energy, Eastlake plant) and rule OAC 3745-18-49(H) (the emission limitations for the Ohio Rubber Company plant). These emission limits are equivalent to the FIP limits for Lake County. As a result of the limits just discussed, attainment in Lake County is assured on the basis of State-adopted, EPA-approved limits. Consequently, there is no further need for a federally promulgated limit, and the corresponding FIP limits for these sources in Lake County can be rescinded. III. Maintenance Plan Approval Ohio's attainment plan for sulfur dioxide provides for attainment even with major sources emitting their maximum allowable emissions. Therefore, maintenance is provided by assuring that minor source impacts do not increase significantly. The principal minor sources are distant point sources and diesel vehicles. Title IV reductions and the required national conversion to low sulfur diesel fuel were the identified maintenance provisions contained in the approved redesignation for Washington and Morgan counties in 1994 (59 FR 48403). These reductions will also be realized in the other nonattainment counties; therefore, this maintenance plan can also be applied for these counties. These reductions in minor source emissions, in combination with the limits on major source emissions, are expected to provide for continued attainment in Jefferson and Lake Counties. Therefore, EPA approves the maintenance plan for these two counties. IV. Redesignation Evaluation Criteria Section 107(d)(3)(E) of the Act, as amended in 1990, establishes requirements to be met before an area may be redesignated from nonattainment to attainment. The criteria used to review redesignation requests are derived from the Act. An area can be redesignated to attainment if the following conditions are met: (A) The area has attained the applicable NAAQS; (B) The area has a fully approved SIP under section 110(k) of the Act; (C) The EPA has determined that the improvement in air quality in the area is due to permanent and enforceable emission reductions; (D) EPA has determined that the maintenance plan for the area has met all of the requirements of the section 175A of the Act; and, (E) The state has met all requirements applicable to the area under section 110 and part D of the Act. A. Demonstrated Attainment of the NAAQS
As explained in an April 21, 1983, memorandum ``Section 107
Designation Policy Summary'' from the Director of the Office of Air
Quality Planning and Standards, eight consecutive quarters of data
showing SO
Dispersion modeling is commonly used to demonstrate attainment of
the SO These approvals were based on modeling showing that compliance with the submitted limits would assure attainment of the standards. Therefore, an important part of Ohio's August 20, 1998 submittal was evidence that sources are complying with applicable limits. This evidence is in the form of certifications of compliance by the affected sources, pursuant to certification requirements of Title V. Based on this evidence, EPA concludes that emissions are sufficiently low as to assure attainment throughout the areas currently designated nonattainment. B. Fully Approved SIP
The SIP for the area at issue must be fully approved under section
110(k) of the Act and must satisfy all requirements that apply to the
area. EPA's guidance for implementing section 110 of the Act is
discussed in the General Preamble to Title I (44 FR 20372, April 14,
1979, and 57 FR 13498, April 16, 1992). The SO C. Permanent and Enforceable Reductions in Emissions
Lake and Jefferson Counties' attainment of the SO [[Page 13072]] which rendered them federally enforceable. The regulations are permanent, and any future revisions to the rules must be submitted to and approved by EPA.
The major emissions of SO D. Fully Approved Maintenance Plan As discussed above, EPA has concluded that the combination of limitations on maximum allowable emissions from major point sources and implementation of programs that will yield reductions in minor source emissions will assure maintenance of the standards. E. Part D and Other Section 110 Requirements
EPA approved the SO V. Final Rulemaking Action
EPA has completed an analysis of the SIP revision request based on
a review of material presented, and has determined that the revisions
for the First Energy Eastlake plant and Ohio Rubber Company Plant are
approvable. In addition, EPA is also approving the SO EPA is publishing this action without prior proposal because EPA views this as a noncontroversial revision and anticipates no adverse comments. However, in a separate document in this Federal Register publication, EPA is proposing to approve the State Plan should adverse written comments be filed. This action will be effective without further notice unless EPA receives relevant adverse written comment by April 16, 1999. Should EPA receive such comments, it will publish a final rule informing the public that this action will not take effect. Any parties interested in commenting on this action should do so at this time. If no such comments are received, the public is advised that this action will be effective on May 17, 1999. VI. Administration Requirements A. Executive Order 12866 The office of Management and Budget (OMB) has exempted this regulatory action from Executive Order (E.O.) 12866, entitled ``Regulatory Planing and Review.'' B. Executive Order 12875: Enhancing Intergovernmental Partnerships Under E.O. 12875, EPA may not issue a regulation that is not required by statute and that creates a mandate upon a state, local or tribal government, unless the Federal government provides the funds necessary to pay the direct compliance cost incurred by those governments. If the mandate is unfunded , EPA must provide to the OMB a description of the extent of EPA's prior consultation with representatives of affected State, local and tribal governments, the nature of their concerns, copies of any written communications from the governments, and a statement supporting the need to issue the regulation. In addition, E.O. 12875 requires EPA to develop an effective process permitting elective official and other representatives of State, local and tribal governments ``to provide meaningful and timely input in the development of regulatory proposals containing significant unfunded mandates.'' Today's rule does not create a mandate on State, local or tribal governments. The rule does not imposes any enforceable duties on these entities. Accordingly, the requirements of section 1(a) of E.O. 12875 do not apply to this rule. C. Executive Order 13084: Consultation and Coordination With Indian Tribal Governments Under E.O. 13084, EPA may not issue a regulation that is not required by statute, that significantly or uniquely affects the communities of Indian tribal governments, and that imposes substantial direct compliance costs on these communities, unless the Federal government provides the funds necessary to pay the direct compliance costs incurred by the tribal governments. If the mandate is unfunded, EPA must provide to the OMB in a separately identified section of the preamble to the rule, a description of the extent of EPA's prior consultation with representatives of affected tribal governments, a summary of the nature of their concerns, and a statement supporting the need to issue the regulation. In addition, E.O. 13084 requires EPA to develop an effective process permitting elected and other representatives of Indian tribal governments ``to provide meaningful and timely input in the development of regulatory policies on matters that significantly or uniquely affect their communities.'' Today's rule does not significantly or uniquely affect the communities of Indian tribal governments. Accordingly, the requirements of section 3(b) of E.O. 13084 do not apply to this rule. D. Executive Order 13045 Protection of Children from Environmental Health Risks and Safety Risks (62 FR 19885, April 23, 1997), applies to any rule that: (1) is determined to be ``economically significant'' as defined under E.O. 12866, and (2) concerns an environmental health or safety risk that EPA has reason to believe may have a disproportionate effect on children. If the regulatory action meets both criteria, the Agency must evaluate the environmental health or safety effects of the planned rule on children, and explain why the planned regulation is preferable to other potentially effective and reasonably feasible alternative considered by the Agency. EPA interprets E.O. 13045 as applying only to those regulatory actions that are based on health or safety risks, such that the analysis required under section 5-501 of the Order has the potential to influence the regulation. This action is not subject to E.O. 13045 because it approves a state rule implementing a previously promulgated health or safety-based Federal standard, and preserves the existing level of pollution control for the affected areas. [[Page 13073]] E. Regulatory Flexibility Act The Regulatory Flexibility Act (RFA) generally requires an agency to conduct a regulatory flexibility analysis of any rule subject to notice and comment rulemaking requirements unless the agency certifies that the rule will not have a significant economic impact on a substantial number of small entities. Small entities include small businesses, small not-for-profit enterprises, and small governmental jurisdictions. This final rule will not have a significant impact on a substantial number of small entities because plan approvals under section 110 do not create any new requirements but simply approve requirements that the State is already imposing. Therefore, because the federal approval does not create any new requirements, I certify that this action will not have a significant economic impact on a substantial number of small entities. Moreover, due to the nature of the Federal-state relationship under the CAA preparation of a flexibility analysis would constitute Federal inquiry into the economic reasonableness of state action. The CAA forbids EPA to base its actions on such grounds. Union Electric Co., v. U.S. EPA, 427 U.S. 246, 255-66 (1976); 42 U.S.C. 7410(a)(2). F. Unfunded Mandates Under section 202 of the Unfunded Mandates Reform Act of 1995 (``Unfunded Mandates Act''), signed into law on March 22, 1995, EPA must prepare a budgetary impact statement to accompany any proposed or final rule that includes a Federal mandate that may result in estimated annual cost to State, local, or tribal governments in the aggregate; or to private sector, of $100 million or more. Under Section 205, EPA must select the most cost-effective and least burdensome alternative that achieves the objectives of the rule and is consistent with statutory requirements. Section 203 requires EPA to establish a plan for informing and advising any small governments that may be significantly or uniquely impacted by the rule. The EPA has determined that the approval action promulgated does not include a Federal mandate that may result in estimated annual cost of $100 million or more to either State, local, or tribal governments in the aggregate, or to the private sector. This Federal action approves pre-existing requirements under State or local law, and imposes no new requirements. Accordingly, no additional costs to State, local, or tribal governments, or to the private sector, result from this action. G. Submission to Congress and the Comptroller General The Congressional Review Act, 5 U.S.C. 801 et seq., as added by the Small Business Regulatory Enforcement Fairness Act of 1996, generally provides that before a rule may take effect, the agency promulgating the rule must submit a rule report, which includes a copy of the rule, to each house of the Congress and to the Comptroller General of the United States. EPA will submit a report containing this rule and other required information to the U.S. Senate, the U.S. House of Representatives, and the Comptroller General of the United States prior to the publication of the rule in the Federal Register. A major rule cannot take effect until 60 days after it is published in the Federal Register. This rule is not a ``major rule'' as defined by 5 U.S.C. 804(2). H. Petitions for Judicial Review Under section 307(b)(1) of the CAA, petitions for judicial review of this action must be filed in the United States Court of Appeals for the appropriate circuit by May 17, 1999. Filing a petition for reconsideration by the administrator of this final rule does not affect the finality of this rule for the purposes of judicial review nor does it extend the time within which a petition for judicial review may be filed, and shall not postpone the effectiveness of such rule or action. This action may not be challenged later in proceedings to enforce its requirements. (See section 307(b)(2).) List of Subjects 40 CFR Part 52 Environmental protection, Air pollution control, Incorporation by reference, Intergovernmental relations, Reporting and recordkeeping requirements, Sulfur dioxide. 40 CFR Part 81 Air pollution control, National parks, Wilderness areas. Dated: February 26, 1999. Jo Lynn Traub, Acting Regional Administrator, Region 5. For the reasons stated in the preamble, chapter I, title 40 of the Code of Federal Regulations is amended as follows: PART 52--[AMENDED] 1. The authority citation for part 52 continues to read as follows: Authority: 42 U.S.C. 7401 et seq. 2. Section 52.1870 is amended by adding (c)(118) to read as follows: Sec. 52.1870 Identification of plan. * * * * * (c) * * * (118) On October 26, 1995, and August 20, 1998, Ohio submitted material including State adopted limits for Lake County, and requested approval of limits for the Ohio First Energy Eastlake Plant and the Ohio Rubber Company Plant. (i) Incorporation by reference (A) Rule 3745-18-49 (G) and (H) of the Ohio Administrative Code, effective May 11, 1987. 3. Section 52.1881 is amended by revising paragraphs (a)(4) and (a)(8) and adding paragraph (a)(13) to read as follows: Sec. 52.1881 Control strategy; Sulfur oxide (sulfur dioxide). (a) * * * (4) Approval-EPA approves the sulfur dioxide emission limits for the following counties: Adams County (except Dayton Power & Light- Stuart), Allen County (except Cairo Chemical), Ashland County, Ashtabula County, Athens County, Auglaize County, Belmont County, Brown County, Carroll County, Champaign County, Clark County, Clermont County, (except Cincinnati Gas & Electric-Beckjord), Clinton County, Columbiana County, Coshocton County, (except Columbus & Southern Ohio Electric-Conesville), Crawford County, Darke County, Defiance County, Delaware County, Erie County, Fairfield County, Fayette County, Fulton County, Gallia County (except Ohio Valley Electric Company-Kyger Creek and Ohio Power-Gavin), Geauga County, Greene County, Guernsey County, Hamilton County, Hancock County, Hardin County, Harrison County, Henry County, Highland County, Hocking County, Holmes County, Huron County, Jackson County, Jefferson County, Knox County, Lake County (except Painesville Municipal Plant boiler number 5) , Lawrence County (except Allied Chemical-South Point), Licking County, Logan County, Lorain County (except Ohio Edison-Edgewater, Cleveland Electric Illuminating- Avon Lake, U.S. Steel-Lorain, and B.F. Goodrich), Lucas County (except Gulf Oil Company, Coulton Chemical Company, Phillips Chemical Company and Sun Oil Company), Madison County, Marion County, Medina County, Meigs County, Mercer County, Miami County, Monroe County, Morgan County, Montgomery County (except Bergstrom Paper, Miami Paper, Bergstrom Paper, Morrow County, Muskingum County, Noble County, Ottawa County, Paulding County, Perry County, Pickaway [[Page 13074]] County, Pike County (except Portsmouth Gaseous Diffusion Plant), Portage County, Preble County, Putnam County, Richland County, Ross County (except Mead Corporation), Sandusky County (except Martin Marietta Chemicals), Scioto County, Seneca County, Shelby County, Trumbull County, Tuscarawas County, Union County, Van Wert County, Vinton County, Warren County, Washington County (except Shell Chemical), Wayne County, Williams County, Wood County (except Libbey- Owens-Ford Plants Nos. 4 and 8 and No. 6), and Wyandot County. * * * * * (8) No Action-EPA is neither approving nor disapproving the emission limitations for the following counties on sources pending further review: Adams County (Dayton Power & Light-Stuart), Allen County (Cairo Chemical), Butler County, Clermont County (Cincinnati Gas & Electric-Beckjord), Coshocton County (Columbus & Southern Ohio Electric-Conesville), Cuyahoga County, Franklin County, Gallia County (Ohio Valley Electric Company-Kyger Creek, and Ohio Power-Gavin), Lake County (Painesville Municipal Plant boiler number 5), Lawrence County (Allied Chemical-South Point), Lorain County (Ohio Edison-Edgewater Plant, Cleveland Electric Illuminating Avon Lake, U.S. Steel-Lorain, and B.F. Goodrich), Lucas County (Gulf Oil Company, Coulton Chemical Company, Phillips Chemical Company and Sun Oil Company), Mahoning County, Montgomery County (Bergstrom Paper and Miami Paper), Pike County (Portsmouth Gaseous Diffusion Plant), Stark County, Washington County (Shell Chemical Company), and Wood County (Libbey-Owens-Ford Plants Nos. 4 and 8 and No. 6). * * * * * (13) In a letter dated October 26, 1995, Ohio submitted a maintenance plan for sulfur dioxide in Lake and Jefferson Counties. * * * * * PART 81--[AMENDED] 1. The authority citation for part 81 continues to read as follows: Authority: 42 U.S.C. 7401 et seq. Subpart K K--Ohio
2. In Sec. 81.336 the table entitled ``Ohio SO Sec. 81.336 Ohio. * * * * * |
Ohio--SO2
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Does not Does not
meet meet Cannot be Better than
Designated area primary secondary classified national
standards standards standards
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Athens County........................................... ............ ............ ............ X
Clermont County......................................... ............ ............ ............ X
Columbiana County....................................... ............ ............ ............ X
Coshocton County:
Franklin Township................................... X1
The remainder of Coshocton County................... ............ ............ ............ X1
Cuyahoga County:
The Cities of Bay Village, Westlake, North Olmsted, ............ ............ ............ X
Olmsted Falls, Rock River, Fairview Park, Berea,
Middleburg Hts., Strongsville, North Royalton,
Broadview Hts., Brecksville and the Townships of
Olmsted and Riveredge..............................
The remainder of Cuyahoga County.................... X
Gallia County:
Addison Township.................................... ............ X1
The remainder of Gallia County...................... ............ ............ ............ X1
Greene County........................................... ............ ............ ............ X
Hamilton County:
The City of Cincinnati bounded on the west by 175 ............ ............ ............ X1
and U.S. Route 127, and on the south by the Ohio
and Little Miami Rivers; the Cities of Norwood,
Fairfax, Silverton, Golf Manor, Amberly, Deer Park,
Arlington Heights, Elwood Place, and St. Bernard...
The remainder of Hamilton County.................... ............ ............ ............ X1
Jefferson County:
Cities of Steubenville & Mingo Junction, Townships ............ ............ ............ X
of Steubenville, Island Creek, Cross Creek, Knox
and Wells..........................................
The remainder of Jefferson County................... ............ ............ ............ X1
Lake County:
The Cities of Eastlake, Timberlake, Lakeline, ............ ............ ............ X
Willoughby (north of U.S. 20), and Mentor (north of
U.S. 20 west of S.R. 306)..........................
The remainder of Lake County........................ ............ ............ ............ X
Lorain County:
Area bounded on the north by the Norfolk and Western X
Railroad Tracks, on the east by State Route 301
(Abbe Road), on the south by State Route 254, and
on the west by Oberlin Road........................
The remainder of Lorain County...................... ............ ............ ............ X
Lucas County:
The area east of Rte. 23 & west of eastern boundary X1
of Oregon Township.................................
The remainder of Lucas County....................... ............ ............ ............ X1
Mahoning County......................................... ............ ............ ............ X
Montgomery County....................................... ............ ............ ............ X
Morgan County........................................... ............ ............ ............ X
Center Township..................................... ............ ............ ............ X1
The remainder of Morgan County...................... ............ ............ ............ X1
Summit County:
[[Page 13075]]
Area bounded by the following lines--North-- ............ ............ ............ X
Interstate 76, East--Route 93, South--Vanderhoof
Road, West--Summit County Line.....................
Area bounded by the following lines--North--Bath 2 2 2 2
Road (48 east to Route 8, Route 8 north to Barlow
Road, Barlow Road east to county line, East--Summit/
Portage County line, South Interstate 76 to Route
93, Route 93 south to Route 619, Route 619 east to
County line, West-Summit/Medina County line........
Entire area northwest of the following line Route 80 ............ ............ ............ X3
east to Route 91, Route 91 north to the County line
The remainder of Summit County...................... ............ ............ ............ X4
Trumbull County......................................... ............ ............ ............ X
Washington County....................................... ............ ............ ............ X
Waterford Township.................................. ............ ............ ............ X
The remainder of Washington County.................. ............ ............ ............ X
All other counties in the State of Ohio................. ............ ............ ............ X1
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\1\ EPA designation replaces State designation.
\2\ This area remains undesignated at this time as a result of a court remand in PPG Industries, Inc. vs.
Costle, 630 F.2d 462 (6th Cir. 1980).
\3\ This area was affected by the Sixth Circuit Court remand but has since been designated.
\4\ The area was not affected by the court remand in PPG Industries, Inc. vs. Costle, 630 F.2d 462 (6th Cir.
1980).
[FR Doc. 99-6256 Filed 3-16-99; 8:45 am]
BILLING CODE 6560-50-P
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