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Approval and Promulgation of Implementation Plans; Ohio
Note: EPA no longer updates this information, but it may be useful as a reference or resource.
[Federal Register: January 10, 2003 (Volume 68, Number 7)]
[Rules and Regulations]
[Page 1366-1370]
From the Federal Register Online via GPO Access [wais.access.gpo.gov]
[DOCID:fr10ja03-6]
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ENVIRONMENTAL PROTECTION AGENCY
40 CFR Part 52
[OH118-3; FRL-7436-1]
Approval and Promulgation of Implementation Plans; Ohio
AGENCY: Environmental Protection Agency.
ACTION: Final rule.
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SUMMARY: The United States Environmental Protection Agency (EPA)
approves Ohio's State Implementation Plan (SIP) revisions for New
Source Review (NSR) in nonattainment areas. Previously, EPA issued both
a direct final approval and a proposed approval of Ohio's revisions.
EPA withdrew the direct final action upon receiving adverse comments.
In this action, EPA responds to the public comments received and
announces EPA's final rulemaking action. In consideration of the
comments and the requirements of the Clean Air Act (CAA), EPA now fully
approves Ohio's nonattainment NSR program as an addition to the SIP.
Recently, EPA announced new regulations regarding changes to the
NSR Program through efforts under ``NSR Reform.'' Today's approval of
Ohio's NSR SIP submission does not address EPA's new rules but is
limited to portions of Ohio's program under prior existing rules. EPA
is taking no position today on whether Ohio will need to make changes
to its SIP to meet any new requirements that EPA may promulgate as part
of ``NSR Reform.''
DATES: This rule is effective on January 10, 2003.
ADDRESSES: Copies of the documents relevant to this action are
available for inspection during normal business hours at the following
location:
Permits and Grants Section, Air Programs Branch, (AR-18J), U.S.
Environmental Protection Agency, Region 5, 77 West Jackson Boulevard,
Chicago, Illinois, 60604.
Please contact Kaushal Gupta at (312) 886-6803 or Jorge Acevedo at
(312) 886-2263 before visiting the Region 5 office.
Written comments should be sent to: Pamela Blakley, Chief, Permits
and Grants Section (IL/IN/OH), Air Programs Branch, (AR-18J), U.S.
Environmental Protection Agency, Region 5, 77 West Jackson Boulevard,
Chicago, Illinois, 60604.
FOR FURTHER INFORMATION CONTACT: Kaushal Gupta, Environmental Engineer,
Permits and Grants Section (IL/IN/OH), Air Programs Branch, (AR-
[[Page 1367]]
18J), U.S. Environmental Protection Agency, Region 5, 77 West Jackson
Boulevard, Chicago, Illinois, 60604, (312) 886-6803. For further
information regarding OEPA's rules for public notice procedure, please
contact Jorge Acevedo, Environmental Engineer, Permits and Grants
Section (IL/IN/OH), Air Programs Branch, (AR-18J), U.S. Environmental
Protection Agency, Region 5, 77 West Jackson Boulevard, Chicago,
Illinois, 60604, (312) 886-2263.
SUPPLEMENTARY INFORMATION: This supplementary information section is
organized as follows:
A. What Is the Purpose of This Document?
B. What Is the History of OEPA's Nonattainment NSR Program?
C. Are OEPA's Nonattainment NSR Rules Now Approvable?
D. What Were the Adverse Comments, and How Does EPA Respond to Them?
E. What Is Today's Action?
A. What Is the Purpose of This Document?
This document is our approval of Ohio's nonattainment NSR SIP
revision requests dated from July 23, 1980, to August 19, 1999. On
April 22, 1996, we proposed to conditionally approve the revision
requests dated up to March 1, 1996 (61 FR 17669). Subsequently, OEPA
submitted several rule changes which met our condition for full
approval. On February 21, 2002, we issued a proposed approval (67 FR
7996) and a direct final approval (61 FR 7954) of the revision requests
dated up to August 19, 1999. On April 16, 2002, we withdrew the direct
final rule because we received adverse comments on it (67 FR 18497).
The proposed approval remained in effect. Today, we follow up the
proposed approval with full, final approval of the revision requests
dated up to August 19, 1999.
B. What Is the History of Ohio's Nonattainment NSR Program?
OEPA submitted its first NSR SIP revision request on January 31,
1972, and submitted replacement regulations on June 6, 1973. The
regulations submitted by the State provided requirements, such as best
available technology, that were meant to be uniformly applied
throughout the State.
The Clean Air Act Amendments (CAAA) of 1977 required States to go
further than uniformly applied regulations. The CAAA of 1977 provided
for the designation of areas within a State as ``attainment'' or
``nonattainment.'' An ``attainment'' area meets NAAQS for one of six
criteria pollutants: total suspended particulates, sulfur dioxide,
ozone, carbon monoxide, nitrogen dioxide and lead. A ``nonattainment''
area does not meet the NAAQS for one or more of these pollutants. The
CAAA of 1977 also required states to adopt more stringent regulations,
such as offsets and lowest achievable emission rate (LAER), for new
pollution sources in nonattainment areas.
On July 23, 1980, and September 25, 1980, OEPA submitted its NSR
plan designed to meet the nonattainment area requirements of title I,
part D of the CAA. We conditionally approved this plan on October 31,
1980, 45 FR 72119 (codification corrected on December 17, 1980, at 45
FR 82927). The conditional approval required OEPA to submit a part D
NSR plan which refined the criteria for permit issuance and assured
that the requirements of CAA sections 172 and 173 were met.
To satisfy the conditional approval, OEPA submitted a request to
incorporate revised regulations in the SIP on October 4, 1982, and
January 24, 1993. These revised regulations sought to incorporate title
40, part 51, Appendix S of the Code of Federal Regulations (CFR) as the
Ohio NSR plan. We granted only limited approval of the revised
regulations on September 8, 1993 (58 FR 47214), stating that the
regulations did not satisfy the nonattainment area planning
requirements of part D.
The CAAA of 1990 imposed further NSR requirements for nonattainment
areas. Pursuant to these latter amendments, OEPA submitted a request to
revise the entire SIP package on August 20, 1993. We proposed to
disapprove the SIP revision request on March 4, 1994, because it did
not satisfy the part D requirements of the CAA (59 FR 10349). The final
disapproval of the State request was published on September 21, 1994
(59 FR 48392).
OEPA submitted another SIP revision request on March 1, 1996. On
April 22, 1996 (61 FR 17669), we proposed to conditionally approve the
general and nonattainment provisions for the SIP. We stated that the
proposed provisions were deficient for not providing a definition for
``pollution control project,'' and that this deficiency had to be
corrected for the nonattainment provisions to be fully approved. OEPA
subsequently submitted a number of revisions to its request dated March
1, 1996, April 16, 1997, September 5, 1997, December 4, 1997, and April
21, 1998. These revisions provide general provisions (OAC 3745-31-01 to
3745-31-10) and nonattainment area provisions (OAC 3745-31-21 to 3745-
31-27).
The CAA further requires that the public be given sufficient time
to comment on a permit before the permit is issued. To meet this
requirement, OEPA submitted an August 19, 1999, request for approval of
the incorporation of Ohio Administrative Code (OAC) 3745-47-01, 3745-
47-02, 3745-47-03, 3745-05, 3745-47-07, and 3745-47-08 (D) into the
SIP. These rules provide public notice procedures for both attainment
and nonattainment construction permits.
On February 21, 2002, EPA simultaneously published a proposed
approval (67 FR 7996) and a direct final approval (61 FR 7954) of
Ohio's submitted NSR SIP revisions. In the direct final rulemaking, we
stated that if we received adverse comments by March 25, 2002, the
direct final approval would be withdrawn. We did receive adverse
comments, and therefore withdrew the rule on April 16, 2002 (
67 FR 18497). The proposed approval remained in effect. Today we are
following up on our proposed approval by addressing the adverse
comments that we received and setting forth our final approval of
Ohio's NSR rules under the Clean Air Act.
C. Are OEPA's Nonattainment NSR Rules Now Approvable?
OEPA's nonattainment NSR rules are now approvable because they
fulfill the requirement set by the April 22, 1996, conditional
approval: they provide a definition for ``pollution control project''
as required by 40 CFR 51.165(a)(1)(xxv). The submitted rules also
satisfy the minimum Federal requirements for a nonattainment NSR
program.
D. What Were the Adverse Comments, and How Does EPA Respond to Them?
Below we summarize the substantive comments pertaining to the
submitted rules, and our responses to them:
(1) Before granting final approval of any Ohio rules, EPA should
complete its review of Ohio's programs in response to the petitions for
withdrawal or revocation of OEPA's authority. That EPA's August 30,
2001, draft report of its review cited problems with OEPA's
implementation of PSD rules indicates that problems could develop in an
NSR program that takes a larger role at OEPA.
Response: USEPA is currently reviewing OEPA's implementation of the
delegated PSD program in response to a petition submitted by D. David
Altman on behalf of Ohio Citizen Action, the Ohio Environmental
Council, Rivers Unlimited, and the Ohio Sierra Club. EPA intends to
address any potential need on OEPA's part to
[[Page 1368]]
improve implementation of its PSD rules through EPA's ongoing review of
OEPA's program. See Draft Report on U.S. EPA Review of Ohio
Environmental Programs, August 30, 2001, United States Environmental
Protection Agency. Any concerns that USEPA finds as a result of this
review will be addressed through the process of the aforementioned
review.
Today's approval only addresses whether or not specific provisions
of Ohio's administrative code meet the Federal CAA criteria for an NSR
program, and does not address any issues regarding how the code is, or
will be, applied or enforced by Ohio. We believe that the submitted
rules meet the criteria for approval under the CAA and no particular
findings or conclusions pertaining to the EPA petition review should be
inferred from today's approval.
(2) The public participation process in Ohio is flawed, and should
be corrected before approval of Ohio's rules.
Response: The submitted rules comply with Federal NSR requirements
for public participation under the CAA. Any concerns, if any, that U.S.
EPA may have with Ohio's public participation process under Ohio's PSD
program will be addressed through the ongoing review of Ohio's program.
See response to comment #1.
(3) The approval should be withheld because OEPA does not have a
training program that ensures a minimum level of training and
consistency across the state, and because it currently has a very high
level of vacancies with no system in place to expeditiously fill those
vacancies.
Response: The submitted rules comply with Federal NSR requirements
under the CAA. Any concerns, if any, that U.S. EPA may have with the
level of vacancies under Ohio's PSD program will be addressed through
the ongoing review of Ohio's program. See response to comment #1.
(4) The approval would take OEPA's NSR permitting activities from
Federal scrutiny and move appeal jurisdiction from EPA to OEPA. Such
transitions remove Federal safety measures.
Response: Under the Clean Air Act, this approval will not change
our level of scrutiny of OEPA's permitting activities. We will retain
oversight over OEPA's NSR program, and will continue to require public
involvement in the program. The approval will also have no effect on
appeal jurisdiction because nonattainment-area permits can only be
appealed through the State.
(5) The approval should incorporate by reference all currently
outstanding SIP changes, rather than merely on the March 1, 1996,
revision request and several subsequent revisions.
Response: This final approval does not address SIP changes dated
after August 19, 1999, because those changes have not been subjected to
public notice. This approval only addresses the following: (1) All
nonattainment NSR SIP changes dated on or before April 21, 1998, which
were made available for public comment in the April 22, 1996, proposal
for conditional approval and the February 21, 2002, proposed approval;
(2) The August 19, 1999, SIP changes for public notice procedures
pertaining to both attainment and nonattainment-area permits, which
were made available for public comment in the February 21, 2002,
proposed approval. For SIP changes dated after August 19, 1999, we will
take a separate action to ensure that the public is given proper
opportunity to comment on those changes.
(6) In the definition for ``major stationary source,'' the
submitted rules exclude pollutants regulated under CAA section 112 for
attainment-area sources subject to 100-ton-per-year thresholds, while
Federal regulations do not provide for such an exclusion.
Response: CAA section 112 is a separate program and is not
regulated through NSR. NSR does not require the application of 100-ton-
per-year thresholds to section 112 pollutants. In fact, CAA section
112(b)(6) prohibits the application of Prevention of Significant
Deterioration (PSD) rules to the section 112 pollutants. Therefore, the
rule that is the subject of this comment, OAC 3745-31-01 (SS), is
consistent with the Federal definition.
(7) OEPA's definition for ``major stationary source'' is provided
for attainment and nonattainment areas, but not for unclassified areas.
Response: As is inferred from the equal treatment of attainment and
unclassified areas in 40 CFR 52.21(b)(14)(iii)(a), 52.21(b)(15)(i), and
52.21(i)(3), the Federal definition for ``major stationary source''
applies to unclassified areas and attainment areas equally. We
interpret the submitted OEPA rule, OAC 3745-31-01 (SS), to carry the
same inference. Therefore, ``major stationary source'' need not be
defined separately for unclassified areas.
(8) In determining whether there has been a net emissions increase,
the submitted rules limit the consideration of fugitive emissions to
those source categories having 100-ton-per-year thresholds. The Federal
regulations have no such limitation.
Response: We disagree that the Federal regulations have no such
limitation. Under 40 CFR 51.165(a)(1)(iv)(C) and 51.165(a)(4), State
rules may exempt fugitive emissions from consideration for a major
source or major modification unless the source belongs to one of the
source categories having 100-ton-per-year thresholds or the source is
subject to section 111 (New Source Performance Standards) and section
112 (National Emissions Standards for Hazardous Air Pollutants) of the
Clean Air Act. The Ohio rule, OAC 3745-31-01 (RR) is consistent with
the Federal rules.
(9) In the submitted rules, the use of alternative fuel or raw
material is exempted from the definition of ``major modification'' if
the source was capable of accommodating it before December 21, 1976. It
also exempts emission increases caused by increases in hours of
operation or production rate if those increases were not prohibited by
a Federally enforceable permit condition established after December 21,
1976. However, the Federal regulations set the critical date for both
of these exemptions at January 6, 1975, not December 21, 1976.
Response: This comment refers to the Federal PSD rules at 40 CFR
51.166(a)(2)(iii)(e)-(f), which apply the January 6, 1975 date. The PSD
rules are not relevant to today's approval, which addresses general and
nonattainment NSR provisions. The submitted rule, OAC 3745-31-
01(RR)(5)(a), applies the December 21, 1976, date required by the
nonattainment NSR rules at 51.165(a)(1)(v)(C)(5)-(6). Therefore, the
Ohio rule is consistent with the Federal rule.
(10) In the definition for ``major modification,'' the submitted
rules state that alternative fuel or raw material can be used as long
as ``the stationary source is approved to use under any permit issued
under this ruling.'' The ``ruling'' to which this sentence refers to is
unclear.
Response: We disagree that the word ``ruling'' is unclear in OAC
3745-31-01(RR)(5)(b). In the context of the definition, ``ruling''
refers to a permit issued under Ohio's SIP.
(11) The Federal definition for ``net emissions increase'' provides
that an increase or decrease in actual emissions of sulfur dioxide,
particulate matter, or nitrogen oxides which occurs before the
applicable baseline date is creditable only if it is required to be
considered in calculating the amount of maximum allowable increases
remaining available. OEPA's version of this definition, however,
restricts only the consideration of sulfur dioxide and particulate
matter (leaving out nitrogen oxides).
[[Page 1369]]
Response: This comment relates to maximum allowable increases and
baseline dates, which do not apply to the nonattainment rules we are
approving. They apply, instead, to the Ohio attainment rules which were
conditionally approved on October 10, 2001 (66 FR 51570). Offsets, not
maximum allowable increases, govern nonattainment areas.
(12) OEPA's definition for ``net emissions increase'' fails to
specify that only PM-10 emissions can be used to evaluate the net
increases for PM-10.
Response: We believe that it is inherent in this rule, OAC 3745-31-
01(YY), that only PM-10 emissions can be used to evaluate net PM-10
increases. Ohio's rules distinctly set out the definitions and
measuring procedures of particulate matter and PM-10 at OAC 3745-17.
(The rules use the term ``total suspended particulates'' for PM-10.)
The distinctions drawn in those rules apply to the definition of ``net
emissions increase.'' Therefore, we do not believe that the definition
needs further clarification.
(13) OEPA's definition for ``emissions unit'' is made unclear by
the sentence ``This term does not include operations or activities that
emit air pollutants regulated under State law but are not regulated
under the Clean Air Act.''
Response: We disagree that the definition for ``emissions unit'' is
unclear at OAC 3745-31-01(AA). Under the submitted rule, any operation
or activity that emits air pollutants regulated under the CAA is an
``emissions unit.'' The clarifying sentence serves to distinguish CAA-
regulated emissions units from those regulated only under State laws.
(14) The Federal definition of Best Available Control Technology
specifically includes ``fuel cleaning or treatment or innovative fuel
combustion techniques,'' but OEPA's definition lists only ``fuel
combustion techniques.''
Response: We interpret Best Available Control Technology (BACT)
requirements to apply to any aspect of fuel combustion, cleaning, or
treatment that affects emissions, and do not feel that the clause
``including fuel combustion techniques'' at OAC 3745-31-01(M) excludes
any aspect of BACT. The clause does not preclude technologies beyond
fuel combustion techniques because it is not all-inclusive. Therefore,
the submitted rule is not limiting.
(15) The Federal definition of ``clean coal technology'' restricts
it to the generation of electricity or process steam. Ohio's definition
includes, in addition, ``industrial products,'' which is an expansion
beyond the Federal standard.
Response: We do not anticipate that Ohio's definition at OAC 3745-
31-01(O) will be applied to any product or process that the Federal
definition was not intended to cover. Nevertheless, we will advise OEPA
to change its definition to match the Federal definition. We do not
feel that the minor difference between the definitions warrants
disapproval.
E. What Is Today's Action?
In this rule, EPA approves OEPA's requests for additions and
revisions to OAC 3745-31-21 to 3745-31-27 submitted on March 1, 1996,
April 16, 1997, September 5, 1997, December 4, 1997, and April 21,
1998. EPA also approves OEPA's August 19, 1999, request for additions
to OAC 3745-47-01, 3745-47-02, 3745-47-03, 3745-05, 3745-47-07, and
3745-47-08 (D). EPA will take action on any subsequently submitted
revision requests at a later time.
Today's action will take effect immediately upon publication as
provided for by the good cause exemption of section 553 (d)(1) of the
Administrative Procedure Act. This approval is a substantive rule that
relieves a restriction on Ohio: sanctions would be imposed on Ohio if
the SIP continued to lack nonattainment NSR provisions.
Recently, EPA announced new regulations regarding changes to the
New Source Review Program through efforts under ``New Source Review
Reform''. See http://www.epa.gov/nsr/. Today's approval of Ohio's NSR
SIP submission does not address EPA's new rules but is limited to
portions of Ohio's program under prior existing rules. EPA is taking no
position today on whether Ohio will need to make changes to its SIP to
meet any new requirements that EPA may promulgate as part of New Source
Review Reform.
F. Regulatory Assessment Requirements
Under Executive Order 12866 (58 FR 51735, October 4, 1993), this
action is not a ``significant regulatory action'' and therefore is not
subject to review by the Office of Management and Budget. For this
reason, this action is also not subject to Executive Order 13211,
``Actions Concerning Regulations That Significantly Affect Energy
Supply, Distribution, or Use'' (66 FR 28355, May 22, 2001). This action
merely approves state law as meeting Federal requirements and imposes
no additional requirements beyond those imposed by state law.
Accordingly, the Administrator certifies that this rule will not have a
significant economic impact on a substantial number of small entities
under the Regulatory Flexibility Act (5 U.S.C. 601 et seq.). Because
this rule approves pre-existing requirements under state law and does
not impose any additional enforceable duty beyond that required by
state law, it does not contain any unfunded mandate or significantly or
uniquely affect small governments, as described in the Unfunded
Mandates Reform Act of 1995 (Pub. L. 104-4).
This rule also does not have tribal implications because it will
not have a substantial direct effect on one or more Indian tribes, on
the relationship between the Federal government and Indian tribes, or
on the distribution of power and responsibilities between the Federal
government and Indian tribes, as specified by Executive Order 13175 (65
FR 67249, November 9, 2000). This action also does not have Federalism
implications because it does not have substantial direct effects on the
States, on the relationship between the national government and the
States, or on the distribution of power and responsibilities among the
various levels of government, as specified in Executive Order 13132 (64
FR 43255, August 10, 1999). This action merely approves a state rule
implementing a Federal standard, and does not alter the relationship or
the distribution of power and responsibilities established in the Clean
Air Act. This rule also is not subject to Executive Order 13045
``Protection of Children from Environmental Health Risks and Safety
Risks'' (62 FR 19885, April 23, 1997), because it is not economically
significant.
In reviewing SIP submissions, EPA's role is to approve state
choices, provided that they meet the criteria of the Clean Air Act. In
this context, in the absence of a prior existing requirement for the
State to use voluntary consensus standards (VCS), EPA has no authority
to disapprove a SIP submission for failure to use VCS. It would thus be
inconsistent with applicable law for EPA, when it reviews a SIP
submission, to use VCS in place of a SIP submission that otherwise
satisfies the provisions of the Clean Air Act. Thus, the requirements
of section 12(d) of the National Technology Transfer and Advancement
Act of 1995 (15 U.S.C. 272 note) do not apply. This rule does not
impose an information collection burden under the provisions of the
Paperwork Reduction Act of 1995 (44 U.S.C. 3501 et seq.).
The Congressional Review Act, 5 U.S.C. 801 et seq., as added by the
Small Business Regulatory Enforcement
[[Page 1370]]
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 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 action 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 March 11, 2003. 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
Environmental protection, Air pollution control, Carbon monoxide,
Incorporation by reference, Intergovernmental relations, Lead, Nitrogen
dioxide, Ozone, Particulate matter, Reporting and recordkeeping
requirements, Sulfur oxides, Volatile organic compounds.
Dated: December 23, 2002.
David A. Ullrich,
Acting Regional Administrator, Region 5.
For the reasons stated in the preamble, 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--et seq.
Subpart KK--Ohio
2. Section 52.1870 is amended by adding (c)(126) to read as
follows:
Sec. 52.1870 Identification of plan.
* * * * *
(c) * * *
(126) On March 1, 1996, and several subsequent dates, Ohio
submitted revisions to its Permit to Install rules as a revision to the
State implementation plan.
(i) Incorporation by reference.
(A) Ohio Administrative Code (OAC) Rule 3745-31-21, effective April
27, 1998; OAC Rules 3745-31-22 through 3745-31-27, effective April 12,
1996; OAC Rules 3745-47-01, 3745-47-2, and 3745-47-03, effective June
30, 1981; OAC Rule 3745-47-05, effective June 30, 1981; OAC Rule 3745-
47-07, effective June 30, 1981; and OAC Rule 3745-47-08(D), effective
August 10, 1999.
[FR Doc. 03-336 Filed 1-9-03; 8:45 am]
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