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Approval and Promulgation of Implementation Plans; State of Missouri

Note: EPA no longer updates this information, but it may be useful as a reference or resource.

 [Federal Register: March 18, 1996 (Volume 61, Number 53)]
[Proposed Rules]
[Page 10968-10976]
From the Federal Register Online via GPO Access [wais.access.gpo.gov]




ENVIRONMENTAL PROTECTION AGENCY
40 CFR Part 52
[MO 002-1002(b); FRL-5442-4]
 
Approval and Promulgation of Implementation Plans; State of 
Missouri

AGENCY: Environmental Protection Agency (EPA).
ACTION: Proposed rule.




SUMMARY: The EPA proposes a limited approval and limited disapproval of 
the State Implementation Plan (SIP) submitted by the state of Missouri 
to meet the 15Rate-of-Progress Plan (15Plan) (ROPP) requirements of 
section 182(b)(1)(A) of the Clean Air Act (CAA), as amended (the Act). 
The EPA is proposing a limited approval because the 15Plan, submitted 
by Missouri, will result in significant emission reductions from the 
1990 baseline and, thus, will improve air quality. Simultaneously, the 
EPA is proposing a limited disapproval of the 15Plan because it fails 
to demonstrate sufficient reductions of volatile organic compounds 
(VOC) to meet the 15ROPP requirements. The EPA is proposing a limited 
disapproval of the 15Plan to the extent that the emission reductions 
associated with Missouri's enhanced I/M program cannot be achieved.
    The EPA is also proposing approval of specific control measures in 
the 15Plan because these rules will strengthen the SIP. However, the 
EPA is proposing conditional approval of the control measure for the 
control of emissions from municipal solid waste landfills and for the 
control of emissions from solvent cleanup operations. A final action on 
these control measures will incorporate these rules into the Federally 
approved SIP.

    The EPA is proposing full approval of Missouri's 1990 Base Year 
Inventory. The inventory was submitted by the state to fulfill the 
requirements of section 182(b) of the Act.

DATES: Comments must be received on or before April 17, 1996.

ADDRESSES: Comments may be mailed to Royan W. Teter, Environmental 
Protection Agency, Air Planning and Development Branch, 726 Minnesota 
Avenue, Kansas City, Kansas 66101.

FOR FURTHER INFORMATION CONTACT: Royan Teter at (913) 551-7609 or Wayne 
Leidwanger at (913) 551-7607.

SUPPLEMENTARY INFORMATION:

I. Background

    The St. Louis area was designated nonattainment for ozone in 1978. 
On November 6, 1991, the EPA promulgated a rule which classified the 
St. Louis area as a moderate ozone nonattainment area based on its 
design value of 0.138 ppm. The nonattainment area consists of Madison, 
Monroe, and St. Claire counties in Illinois; and Franklin, Jefferson, 
St. Charles, and St. Louis counties and St. Louis City in Missouri.
    Section 182(b) of the Act requires that each state in which all or 
part of a moderate nonattainment area is located, submit, by November 
15, 1992, a comprehensive, accurate, current inventory of actual 
emissions from all sources, as described in section 172(c)(3) and 
182(a)(1), in accordance with guidance provided by the Administrator. 
This inventory is for calendar year 1990 and is designated the base 
year inventory. The inventory should include both anthropogenic and 
biogenic sources of VOCs, nitrogen oxides (NO<INF>X), and carbon 
monoxide (CO), and must address actual emissions of these pollutants in 
the nonattainment area during peak ozone season. The inventory should 
include all point and area sources, as well as all highway and 
nonhighway mobile sources.

    In addition, section 182(b)(1)(A) of the Act requires ozone 
nonattainment area classifications of moderate and above to develop 
plans to reduce VOC emissions by 15 percent from the 1990 baseline. The 
plans were to be submitted by November 15, 1993, and the reductions are 
required to be achieved within six years of enactment or November 15, 
1996. The Act also set limitations on the creditability of certain 
types of reductions. Specifically, a state cannot take credit for 
reductions achieved by Federal Motor Vehicle Control Program (FMVCP) 
measures (new car emission standards) promulgated prior to 1990, or for 
reductions resulting from requirements to lower the Reid Vapor Pressure 
(RVP) of gasoline promulgated prior to 1990 or required under section 
211(h) of the Act, which restricts gasoline RVP. Furthermore, the Act 
does not allow credit for corrections to vehicle I/M Programs or 
corrections to Reasonably Available Control Technology (RACT) rules as 
these programs were required prior to 1990.
    In today's action, the EPA proposes to fully approve the plan 
element relating to the emission inventory. With regard to the 15
Plan, the EPA proposes a limited approval and limited disapproval. The 
EPA also proposes to conditionally approve the 15Plan as it relates 
to the reduction credit claimed for the state's municipal solid waste 
landfill rule.

II. Review of State Submittal

A. 1990 Base Year Emissions Inventory (EI)

    As noted above, the CAA requires the submission of a comprehensive 
EI for areas classified as nonattainment for ozone. The regulatory 
significance of these inventories is established in section 182(b)(1) 
of the Act. These inventories, termed ``base year'' inventories, 
provide a baseline from which reasonable further progress towards 
meeting necessary emissions reductions is measured, and provide the 
foundation for the development of control strategies for attainment of 
the National Ambient Air Quality Standards (NAAQS).

[[Page 10969]]

    

  1.  Inventory Development
    
    The EPA issued guidance documents on emissions inventory 
development were provided to all agencies involved in EI development 
for the St. Louis ozone nonattainment area. A review of the inventory 
indicates that it was developed consistent with the criteria set forth 
in the guidance.
    
    A detailed description of the development process for each portion 
of Missouri's 1990 base year emission inventory can be found in the 
EPA's technical support document (TSD). Region VII received a revised 
draft 1990 base year inventory from Missouri on February 12, 1993. EPA 
Region VII, EPA's Office of Air Quality Planning and Standards (OAQPS) 
Emissions Inventory Branch (EIB), EPA's Office of Mobile Sources, and 
contractors reviewed the inventory. Comments were sent to the state, 
and a public hearing on the draft inventory, as well as the draft 15
Plan, was held before the Missouri Air Conservation Commission (MACC) 
on January 27, 1994 and was adopted by the MACC on February 24, 1994.
    The EPA received another draft revision of the base year inventory, 
in conjunction with another draft of Missouri's 15Plan, on November 
1, 1994. This inventory revision was adopted by the MACC, after proper 
notice and public hearing, on January 12, 1995. Missouri's final 1990 
baseline emissions inventory was submitted to the EPA on January 20, 
1995, in conjunction with Missouri's 15ROPP. The EPA issued a finding 
of completeness with respect to these submissions on July 13, 1995.

  2.  Review Criteria
    
    The EPA is proposing to approve Missouri's 1990 base year emission 
inventory based on a Levels I, II, and III review process. The 
inventory was reviewed in accordance with requirements specified in a 
document entitled ``Quality Review Guidelines for 1990 Base Year 
Emission Inventories,'' OAQPS, Research Triangle Park , North Carolina, 
August 1992, which details the Level I and II review procedures. Level 
III review procedures are specified in a memorandum dated October 7, 
1992, from J. David Mobley, EIB Chief, to Air Branch Chiefs, Region IX, 
entitled ``Final Emission Inventory Level III Acceptance Criteria,'' 
and revised in a memorandum from John S. Seitz, OAQPS Director, to 
Regional Air Division Directors, Region I-X, entitled ``Emission 
Inventory Issues,'' June 24, 1993.
    
    The Level I and II review process is used to determine that all 
components of the base year inventory are present. The review also 
evaluates the level of supporting documentation provided by the state, 
and assesses whether the emissions were developed according to current 
EPA guidance. Level I and II criteria must be passed before the Level 
III final criteria can be considered. Missouri's submittal of the 1990 
base year EI passed the Level I and II criteria.
    The Level III review process consists of an evaluation of the EI in 
terms of ten criteria. For a base year EI to be acceptable, it must 
pass all of the acceptance criteria. A summary of the EPA's Level III 
review of Missouri's 1990 base year EI is given below:

      

    1.  An approved Inventory Preparation Plan (IPP) must be provided, 
and the quality assurance procedures identified in the IPP must be 
performed and its implementation documented. Missouri submitted, and 
the EPA approved, an IPP for the St. Louis nonattainment area.

    2.  Adequate documentation must be provided to enable the reviewer 
to determine the emission estimation procedures and the data sources 
used to develop the inventory. The final inventory report for St. Louis 
contains adequate documentation to determine the estimation procedures 
and data sources used to develop the inventory.

    3.  The point source inventory must be complete. Evidence suggests 
that the inventory is comprehensive and includes all relevant sources 
within the nonattainment area.
      

    4.  Point source emissions must have been prepared or calculated 
according to the current EPA guidance. Missouri's 1990 base year 
emissions inventory indicates that the point source calculations were 
performed in accord with current EPA guidance.

    5.  The area source inventory must be complete. A review of the 
source categories included in Missouri's base year inventory reveals 
that Missouri included the appropriate source categories.

    6.  The area source emissions must have been prepared or calculated 
according to the current EPA guidance. The documentation for the area 
sources portion of Missouri's inventory contains example calculations 
which are consistent with the relevant EPA guidance.

    7.  Biogenic emissions must have been prepared according to current 
EPA guidance. The biogenic emissions were calculated using the EPA PCBEIS 
model.
      

    8.  The method used to develop vehicle-miles-traveled (VMT) 
estimates (e.g., Highway Performance Monitoring System or a network 
transportation planning model) must follow the EPA guidance. The EastWest 
Gateway Coordinating Council (EWGCC) is the metropolitan planning 
organization responsible for developing VMT estimates for the St. Louis 
nonattainment area. On May 5, 1993, the Missouri Highway and 
Transportation Department (MHTD) requested Federal Highway 
Administration (FHWA) approval of the EWGCC's use of the MINUTP travel 
demand model as a basis for Missouri's SIP. FHWA concurred on the use 
of MINUTP for the St. Louis SIP in a June 7, 1993, letter to MHTD 
citing several criteria to be met. EWGCC met the FHWA criteria in three 
reports which are included in the SIP documentation pertaining to the 
mobile sources inventory. The EPA concurs that the method used to 
develop VMT estimates was adequately described and documented.

    9.  The appropriate version of the MOBILE model must be correctly 
used to produce emission factors for each of the vehicle classes. The 
most current version of the EPA's MOBILE model, MOBILE5a, was correctly 
used to calculate on-road emission factors for the St. Louis 
nonattainment area.
      

    10.  Nonroad mobile emissions must be prepared according to current 
EPA guidance for all of the source categories. The nonroad mobile 
emission estimates were correctly prepared according to current EPA 
guidance.
      
    Based on the EPA's Level III review, Missouri has satisfied all of 
the requirements for purposes of providing a comprehensive, accurate, 
and current inventory of actual emissions in the ozone nonattainment 
area. For documentation of the EPA's evaluation, including details of 
the review procedure, the reader is referred to the EPA's TSD.


    11.  Proposed Action
      
    The state has submitted a complete inventory containing point, 
area, biogenic, on-road, and nonroad mobile source data, and 
accompanying documentation. The EPA is proposing full approval of the 
1990 base year ozone emission inventory submitted to the EPA for the 
St. Louis moderate ozone nonattainment area. The following table 
summarizes the 1990 base year inventory for the St. Louis nonattainment 
area and boundary point sources within 25 miles.

[[Page 10970]]
                                   1990 St. Louis Ozone SIP Inventory Summary
                                      [Tons per ozone season weekday (TPD)]
                                                                   VOC emissions   NO<INF>X emissions   CO emissions

 
 

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