’WPC€" "ł~2ķÖ£?„¶fÅRk¹wNøæē{©`\n”č–æd–ņÆZÅ/šEYunÕ£WDw©HŽŪ°=ŗŃU ¼Ÿą.)j#Ž£$%²±˜ŁŻ–r2PZSßXhCؘ@üēķąŠ» ‰ź„+@“ż‹ß P ‰Nw [„V|Œå¬ ķrÖ¦².ĀLefŻķ.£›Jp{ę4+³~ :¾ń-UIȀõ±bg„Żą“„1K‹ČfģŻ#©™°’÷ÉęØ~ၽE8B£č©BcŌ# ®~Œ‘$s¢ž­§AŪÜ.f9X¶Īųن:›£½Øåcež;Óø‚ƒÆnĀ%L„śßf%{CkłėM31“śąÅe8›CJršĕ|’>Ėd’±]©ā¾.‚ćĀpØßŚ]jį [čJ%ĘU½˜ ļk3t\aNpSQ+Ķ+6Ÿ¤ī-ńķ°ņE÷`ŠbÆ@'ķWĒ-]ÜEcĮŸEĶø+“*īõaė‰S®hĻec°ŸŚö‹üŽf3Zķ×¾»į…7Eōķ”y; § k6č ]i ‘D³‰ м ·=ȳѳ—”ų„, ^ĮGŁ&ꬤ¦“7Óź}š±ķ7é8ŗdäs Łu’Æ>—Ļ"æ× w#Į‚UNC %‘ 0:— U@Ń ^  w 4! 5 D mF N] U@_ UNŸ U>ķ 0w+ W¢ 0Nł 1uG 72¼zīī”hhhhhhhhhhhf a               0cĖ‚ 0ŠM 0 × 0“w 0Ē+ 0Ūņ 0ļĶ\¼ 1‰!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!! B”!”!”!”!”!”!”!”!”!”!”!”!”!”!”!”!”!”!”!”!”!”!”!”!”!”! 0~¾! 0D<"˜Lexmark Z45 (Copy 1)PX,..,PX0(ÖĆ9 Z‹6Times New Roman RegularX(üœ$””ŌUSUS.,Ō(ČhH  Z(Times New Roman Āfo.s 2V.£Ė˜T§ 3|x’U‹’ĄĄĄ(ĄŹO Z‹(Times New Roman (ÖĆ9 Z ‹6Times New Roman Regularō\  `&Times New Roman(Oé;$µµą0  ąŌ2#ŌŚ  ŚaŚ  Ś.Ō3  Ōą0` (#(#ą MŻ ƒuÄ($ŻŌUSUS.,Ōą  ąņņŚ  Ś1Ś  ŚóóŻ  ŻŌ_ŌThis€commenter€also€recommended€that€the€category€names€for€the€classification€schemeŠ ° Š(in€subpart€2)€should€be€reflective€of€the€public€health€significance€of€the€ozone€problem.€€EPAŠ œģ Šdoes€not€believe€that€the€classification€scheme€should€be€the€primary€way€of€informing€the€publicŠ ˆŲ Šof€the€quality€of€the€air€in€a€particular€area,€and€that€there€are€other€mechanisms€for€doing€thatŠ tÄ Šsuch€as€the€air€quality€index€(Ō_ŌAQIŌ_Ō)€program€or€the€general€requirement€for€public€notificationŠ `° Šunder€section€127€of€the€CAA.€€As€an€illustration,€even€€CAA€section€107€requires€designation€asŠ L œ Šnonattainment€nearby€clean€air€areas€that€contribute€to€another€areaššs€nonattainment.€€In€theseŠ 8 ˆ Šcases,€the€nonattainment€designation€for€the€contributing€part€of€the€area€would€not€be€anŠ $ t Šaccurate€characterization€of€the€quality€of€the€air€for€public€information€purposes€for€that€part€ofŠ  ` Šthe€nonattainment€area,€so€any€classification€of€that€area€would€also€not€accurately€characterizeŠ ü L   Šthe€health€problem€for€that€part€of€the€nonattainment€area.(ĶO$——Ō’ŌņņóóŌ’Ō3#37=CIQYag­­1.a.i.(1)(a)(i)1)a)i) pŻ ƒuÄ($ŻŌUSUS.,Ōą  ąņņŚ  Ś2Ś  ŚóóŻ  ŻŌ_ŌFor€instance,€a€best„fit€curve€could€be€established€between€1„hour€and€8„hour€ozoneŠ ° Šlevels€based€on€historical€air€quality€data€through€a€variety€of€means.€€Even€a€cursoryŠ œģ Šexamination€of€the€1„hour€and€8„hour€design€values€for€each€county,€or€each€hypotheticalŠ ˆŲ Šnonattainment€area€shows€a€rather€large€scatter€(large€standard€deviation).€€In€other€words,€areasŠ tÄ Šwith€the€same€1„hour€design€values€may€have€a€range€of€8„hour€design€values.€€Rather€than€usingŠ `° Šthe€areaššs€design€values,€one€could€try€to€establish€a€relationship€between€daily€maximum€1„hourŠ L œ Švalues€with€daily€maximum€8„hour€values€on€a€county€or€monitor€basis.€€Even€if€these€valuesŠ 8 ˆ Šwere€ranked€and€paired€by€ranking€(i.e.,€the€highest€1„hour€value€with€the€highest€8„hour€value,Š $ t Šetc.)€the€degree€of€scatter€would€be€less,€but€would€still€not€reflect€how€the€data€actually€occur€inŠ  ` Šreality. —Ż ƒuÄ($ŻŌUSUS.,Ōą  ąņņŚ  Ś4Ś  ŚóóŻ  ŻŌ_Ō40€Ō_ŌCFRŌ_Ō€51.151€sets€forth€the€significant€harm€levels€for€certain€criteria€pollutants.€€TheŠ ° Šlevel€for€ozone€is€1,200€micrograms€per€cubic€meter€(Ō_ŌššgŌ_Ō/Ō_Ōmņņ3Ō_Ōóó)€or€0.06€ppm,€2„hour€average.€€ųTABLE A(;3£$““Ō2#ŌŚ  Ś0Ś  Ś.Ō3  Ōą0  ą ĮŻ ƒuÄ($ŻŌUSUS.,Ōą  ąņņŚ  Ś3Ś  ŚóóŻ  ŻŌ_ŌThe€current€rule€on€the€Ō_ŌAQIŌ_Ō€was€published€August€4,€1999€(64€FR€Ō‡XōōXXXŌ42530Ō#†XōōXXXōōÅ#Ō).€€The€rule€isŠ ° ŠŌ_ŌcodifedŌ_Ō€at€40€Ō_ŌCFRŌ_Ō€58.50.€€Additional€information€on€the€Ō_ŌAQIŌ_Ō€is€found€at€Š œģ ŠŌ4‚;Ż °ŌŻ‚ĶOŻŌ’ŌņņŻ  ŻŌ5  Ōhttp://www.epa.gov/airnow/aqibroch/aqi.html#5Ō6ķŌŻ‚ĶOƒŻóóŌ’ŌŻ  ŻŌ7Ż Ģ/Ō€.(b·¤$¶¶ą0  ąą0` (#(#ąŌ2#ŌŚ  ŚŚ  Ś.Ō3  Ōą0ø ` (#` (#ą(xir$··ą0  ąą0` (#(#ąą0ø ` (#` (#ąŌ2#Ō(Ś  Ś0Ś  Ś)Ō3  Ōą0ø (#ø (#ą(ŒÜ$øøą0  ąą0` (#(#ąą0ø ` (#` (#ąą0ø (#ø (#ąŌ2#Ō(Ś  ŚaŚ  Ś)Ō3  Ōą0h(#(#ą(ŸF$¹¹ą0  ąą0` (#(#ąą0ø ` (#` (#ąą0ø (#ø (#ąą0h(#(#ąŌ2#Ō(Ś  ŚŚ  Ś)Ō3  Ōą0Ąh(#h(#ą(³Ąō$ŗŗą0  ąą0` (#(#ąą0ø ` (#` (#ąą0ø (#ø (#ąą0h(#(#ąą0Ąh(#h(#ąŌ2#ŌŚ  Ś0Ś  Ś)Ō3  Ōą0Ą(#Ą(#ą(ǵ{$»»ą0  ąą0` (#(#ąą0ø ` (#` (#ąą0ø (#ø (#ąą0h(#(#ąą0Ąh(#h(#ąą0Ą(#Ą(#ąŌ2#ŌŚ  ŚaŚ  Ś)Ō3  Ōą0p(#(#ąhttp://www.epa.gov/airnow/aqibroch/aqi.html#5156789:xGģGaeimquy}Bullet ListBullets List d(.(3Ä($¤¤Ż ƒüœ!ŻŌUSUS.,ŌŻ  Żą  ąņņŚ  Ś0Ś  Śóó(#Ć$ņņŚ  Ś0Ś  ŚóóŻ ƒüœ!ŻŌUSUS.,ŌŻ  ŻŌ_Ōņ ņŃ8€ōōXdģdČ8ŃŃ  ŃĢÓÓAdditional€Options€Considered€forŠ œģ Š€š šŌ‡XōōXXXŌProposed€Rule€to€Implement€the€8„Hour€Ozone€National€Ambient€Air€Quality€Standard.šš€Š ˆŲ ŠĢU.S.€Environmental€Protection€AgencyŠ `° ŠOffice€of€Air€Quality€Planning€and€StandardsŠ L œ ŠResearch€Triangle€Park,€NCŠ 8 ˆ ŠŌ#†XōōXXXōōŃ#ŌÓ†ÓŃ  ŃÓ  ÓMarch€2003ó óŠ  $ tŌ ŠÓEÓņ ņINTRODUCTIONó óŠ ° ŠĢŌ‡XōōXXXōōŌIn€a€separate€notice€of€proposed€rulemaking,€EPA€is€proposing€two€discrete€alternativeŠ ˆŲ Šframeworks€to€implement€the€8„hour€ozone€national€ambient€air€quality€standard€(NAAQS€orŠ tÄ Šstandard).€€The€EPA€is€proposing€this€rule€so€that€States€may€know€which€statutory€requirementsŠ `° Šapply€for€purposes€of€developing€State€implementation€plans€(SIPs)€under€the€Clean€Air€ActŠ L œ Š(CAA€or€Act)€to€implement€the€8„hour€ozone€NAAQS.€The€intended€effect€of€this€rule€is€toŠ 8 ˆ Šprovide€certainty€to€States€regarding€their€planning€obligations€such€that€States€may€begin€SIPŠ $ t Šdevelopment€upon€designation€and€classification€for€the€8„hour€standard.€€Ō#†XōōXXXōōÆ#ŌŠ  ` ŠĢŌ‡XōōXXXōōŌFollowing€are€the€principles€that€guided€EPA€in€the€development€of€these€proposed€frameworksŠ č 8  Što€implement€the€8„hour€ozone€standard:€1)€In€order€to€protect€public€health,€provide€incentivesŠ Ō$  Šfor€expeditious€attainment€of€the€8„hour€ozone€standard€and€avoid€incentives€for€delay;€2)Š Ą  ŠProvide€reasonable€but€expeditious€attainment€deadlines;€3)€Have€a€basic,€straightforwardŠ ¬ü  Šstructure€that€can€be€communicated€easily;€4)€Provide€flexibility€to€States€and€EPA€onŠ ˜č  Šimplementation€approaches€and€control€measures€while€ensuring€that€the€implementationŠ „Ō  Šstrategy€is€supported€by€the€CAA;€5)€Emphasize€national€and€regional€measures€to€help€areasŠ pĄ Šcome€into€attainment€and,€where€possible,€reduce€the€need€for€those€local€controls€that€are€moreŠ \¬ Šexpensive€than€national€and€regional€measures;€and€6)€Provide€a€smooth€transition€fromŠ H˜ Šimplementation€of€the€1„hour€ozone€NAAQS€to€8„hour€ozone€NAAQS€implementation.Ō#†XōōXXXōōķ#ŌŠ 4„ ŠĢŌ‡XōōXXXōōŌAs€noted€in€that€proposal,€EPA€originally€intended€to€implement€the€8„hour€ozone€standard€in€aŠ  \ Šmore€flexible€approach€under€subpart€1€of€part€D,€TitleI€of€the€CAA.€€This€would€have€allowedŠ ųH Šareas€more€flexibility€to€determine€whether€to€regulate€NOņņxóó,€VOC€or€both€to€address€ozoneŠ ä4 Šnonattainment.Š Š  ŠĢAs€also€noted€in€that€proposal,€however,€the€Supreme€Court€determined€that€an€approach€thatŠ Øų Šignored€subpart€2€was€unreasonable.€€In€structuring€a€proposed€implementation€rule,€EPA€hasŠ ”ä Štried€to€stay€as€close€as€possible€to€the€principles€noted€above,€particularly€with€regard€to€seekingŠ €Š Šflexible€ways€for€States€to€address€their€8„hour€ozone€problems€by€avoiding€mandatory€measuresŠ l¼ Šthat€may€be€unreasonable€for€an€area.€€EPA€has€spent€a€large€amount€of€time€investigatingŠ X Ø Špossible€legal€theories€and€policy€options€to€find€flexibility€within€the€Supreme€Courtššs€decision.€Š D!” ŠEPA€has€also€had€the€benefit€of€ideas€and€recommendations€from€many€interested€stakeholders,Š 0"€  Šwho€also€have€spent€much€time€developing€their€own€theories€and€ideas.€€Based€on€these€efforts,Š #l! ŠEPA€believes€that€it€has€developed€options€for€an€implementation€program€that€is€workable€underŠ $X" Šthe€constraints€of€the€CAA.€€Nonetheless,€EPA€recognizes€that€those€constraints€will€still€requireŠ ō$D # Ša€number€of€areas€to€adopt€certain€control€measures€that€may€not€be€as€effective€as€others€inŠ ą%0!$ Šachieving€the€8„hour€ozone€standard.€€In€the€proposed€rule,€EPA€is€soliciting€any€further€ideas€forŠ Ģ&"% Šaddressing€this€situation.Š ø'#& ŠĢTo€describe€EPAššs€proposed€frameworks€for€implementing€the€8„hour€ozone€standard,€it€wasŠ )ą$( Šnecessary€to€examine€all€the€components€or€elements€of€the€process€used€to€implement€theŠ |*Ģ%) Šstandard.€€Therefore,€the€issues€and€options€that€EPA€is€proposing€that€deal€with€the€aspects€ofŠ h+ø&* Špreparing€SIPs€for€the€standard€are€presented€individually€in€the€proposed€rulemaking.€€In€the€€Š ° Šproposal,€EPA€is€soliciting€comments€on€the€approach€for€each€of€the€elements€and€on€twoŠ œģ Šdistinct€frameworks€that€combine€options€from€each€of€the€implementation€elements.Š ˆŲ ŠĢThe€proposed€rulemaking€describes€only€those€options€or€approaches€EPA€is€proposing.€€Ō_ŌTheŠ `° ŠEPAŌ_Ō€considered€a€number€of€other€options€and€approaches€for€some€of€the€implementationŠ L œ Šelements,€some€of€which€were€suggested€in€oral€or€written€comments€at€the€public€meetings€EPAŠ 8 ˆ Šheld€on€implementing€the€8„hour€standard,€or€in€written€comment,€or€other€stakeholder€meetingsŠ $ t Šor€conversations.€€These€other€options€that€EPA€considered€but€that€are€not€being€proposed€areŠ  ` Šdescribed€in€this€document,€which€is€being€made€available€in€the€docket€for€the€rulemaking.Š ü L  ŠŌ#†XōōXXXōō{ #ŌĢņ ņISSUE:€€How€will€EPA€reconcile€Ō_ŌSubpartsŌ_Ō€1€and€2?€€How€will€EPA€classify€nonattainmentŠ Ō$  Šareas€for€the€8„hour€standard?€What€attainment€dates€would€apply?ó óŠ Ą  ŠĢņņOther€Options€EPA€consideredóóŠ ˜č  ŠĢAt€the€three€public€meetings€EPA€held€in€March€and€April€of€2002,€EPA€presented€fourŠ pĄ Šclassification€options.€€As€a€result€of€the€feedback€we€received€at€those€meetings€and€in€writtenŠ \¬ Šcomments,€and€after€further€deliberation,€our€proposal€above€includes€two€of€the€four€publicŠ H˜ Šmeeting€options,€and€we€have€combined€the€concept€of€one€of€the€other€four€into€the€incentiveŠ 4„ Šfeature€proposed€above.€Ōf  ŌŌg Ō€Under€the€one€option€not€being€proposed€at€all,€EPA€would€have€usedŠ  p Šan€areaššs€most€recent€1„hour€ozone€design€value€at€the€time€of€designation€to€establish€the€areaššsŠ  \ Šclassification€for€the€8„hour€NAAQS.€€While€this€option€would€have€allowed€for€use€of€theŠ ųH Šclassification€table€as€set€forth€in€section€181,€EPA€concluded€(and€many€members€of€the€publicŠ ä4 Šagreed)€that€this€approach€was€not€representative€of€each€areaššs€8„hour€ozone€problem.Š Š  ŠĢAt€the€public€meetings€and€in€written€comments,€several€other€options€were€suggested,€whichŠ Øų ŠEPA€considered€in€formulating€this€proposal;€these€are€discussed€below.Š ”ä ŠĢņņClassification€based€on€the€most€recent€1„hour€ozone€design€value.óó€ņ ņó óŌ!‡ XōōXXXōō!Ō€This€option€wouldŠ l¼ Šimplement€subpart€2€classification€provision€in€table€1€as€written,€using€an€areaššs€current€1„hourŠ X Ø Šozone€design€values€rather€than€their€8„hour€design€values.€€Under€this€option,€some€areas€(i.e.,Š D!” Šthose€whose€1„hour€design€values€were€.121€ppm€or€greater)€would€be€classified€under€subpart€2.€Š 0"€  ŠHowever,€more€than€half€the€hypothetical€nonattainment€areas€would€be€covered€under€subpart€1,Š #l! Šsince€their€design€values€fall€below€.121€ppm,€the€minimum€value€in€table1.€€This€option€wouldŠ $X" Šprovide€flexibility€in€implementation€for€those€areas€covered€under€subpart1.€€An€areaššs€1„hourŠ ō$D # Šdesign€value,€however,€may€not€reflect€the€areaššs€8„hour€Oņņ3óó€problem€and€would€produce€someŠ ą%0!$ Šinequities€(e.g.,€Ō_ŌaNŌ_Ō€area€covered€under€subpart€1€may€have€a€higher€8„hr€ozone€design€value€thanŠ Ģ&"% Šanother€area€that€is€marginal€or€even€moderate€and€covered€under€subpart€2).€€Ō#†XōōXX Xōō‹#ŌThis€optionŠ ø'#& Šreceived€mostly€adverse€comment€at€the€public€meetings€due€to€the€fact€that€1„hour€design€valuesŠ ¤(ō#' Šdo€not€reflect€8„hour€ozone€problems€in€many€cases.Š )ą$( Šā āŠ |*Ģ%) ŠņņImplement€the€8„hour€standard€in€a€sequential€manneróó.€€Under€this€option,€areas€that€are€currentlyŠ ° Šā ādesignated€nonattainment€under€the€1„hour€standard€would€continue€to€implement€their€SIPŠ œģ Šunder€subpart€2€until€they€reached€a€certain€trigger.€€Two€potential€triggers€were€suggestedš!šeitherŠ ˆŲ Šattainment€of€the€1„hour€standard€or€implementation€by€the€area€of€all€measures€under€subpart€2.€Š tÄ ŠOnly€after€the€appropriate€trigger€would€the€area€be€classified€for€the€8„hour€standard€and€subjectŠ `° Što€planning€obligations€for€the€8„hour€standard.€€All€areas€would€be€classified€under€subpart€1€forŠ L œ Šthe€8„hour€standard,€although€the€š štextually€applicablešš€subpart€2€requirements€would€continueŠ 8 ˆ Što€apply€for€the€implementation€of€the€8„hour€standard.€€(A€commenter€provided€an€example€ofŠ $ t Šš štextually€applicablešš€subpart€2€requirements:€€those€requirements€that€have€not€been€exhaustedŠ  ` Šand€can€be€applied€without€rewriting€them€to€make€them€comport€with€a€revised€standard,€suchŠ ü L  Šas€the€requirements€for€ozone€transport€under€section€184.)€€EPA€believes€that€the€CAA€asŠ č 8  Šinterpreted€by€the€Supreme€Court,€does€not€permit€such€an€interpretation.€€Under€section€107€ofŠ Ō$  Šthe€CAA€(and€under€other€statutory€amendments€and€provisions),€EPA€is€given€a€limited€amountŠ Ą  Šof€time€to€designate€nonattainment€areas€under€the€8„hour€ozone€standard.€€Once€an€area€isŠ ¬ü  Šdesignated€nonattainment€under€the€8„hour€standard,€subpart€1€provides€areas€with€a€limitedŠ ˜č  Šamount€of€time€to€develop€and€submit€an€implementation€plan.€€The€option€proposed€by€theŠ „Ō  Šcommenter€fails€to€account€for€this€timing.€€Moreover,€the€Supreme€Court€clearly€stated€that€itŠ pĄ Šinterprets€subpart€2€to€provide€classifications€for€areas€designated€nonattainment€for€the€8„hourŠ \¬ ŠNAAQS.€€Under€this€approach,€no€areas€would€be€classified€subpart€2€for€the€8„hour€NAAQS.Š H˜ ŠĢņņClassify€all€areas€under€subpart€2€and€place€a€higher€percentage€of€8„hour€ozone€nonattainmentŠ  p Šareas€into€higher€classifications€to€reflect€the€fact€that€the€8„hour€standard€is€more€stringent€thanŠ  \ Šthe€1„hour€standard.óó€€The€commenter€did€not€suggest€a€mechanism€for€determining€which€areasŠ ųH Šwould€fall€into€each€classification.€€One€of€the€options€being€proposed€(Option€1)€would€place€allŠ ä4 Š8„hour€ozone€NAAQS€nonattainment€areas€in€subpart€2€based€on€the€percentage€an€areaššs€designŠ Š  Švalue€is€above€the€standard€(the€same€percentages€used€in€the€section€181€table€for€the€1„hourŠ ¼  Šdesign€values€in€relation€to€the€1„hour€standard).€€EPA€does€not€believe€that€it€is€appropriate€toŠ Øų Šplace€areas€in€higher€classifications€simply€to€reflect€the€fact€that€the€8„hour€standard€is€moreŠ ”ä Šstringent.€€Rather,€as€Congress€did€in€1990,€EPA€believes€it€is€more€appropriate€to€classify€areasŠ €Š Šbased€on€the€difficulty€of€that€area€to€attain€the€NAAQS€and€the€time€it€takes€to€attain,€asŠ l¼ Šindicated€in€a€relative€sense€by€the€areaššs€design€value.€€Thus,€if€an€area€should€be€able€to€adoptŠ X Ø Šcontrols€to€attain€within€6€years€after€designation,€it€should€not€be€classified€as€severe.Ō_Ō׃ׯ ƒv#ĆŻņņŚ  Ś1Ś  ŚóóŻ  Ż×  ×Ō_ŌŠ D!” ЇAnother€commenter€suggested€an€approach€that€would€have€a€similar€result€š!š€revise€table€1€toŠ ° Šreflect€the€spread€of€8„hour€design€values€that€exist€at€the€time€of€designations€andŠ œģ Šclassifications.€€In€other€words,€table€1€reflected€the€spread€of€1„hour€ozone€design€values€forŠ ˆŲ Šnonattainment€areas€at€the€time€the€Amendments€were€enacted€š!šfrom€just€above€0.12€ppm€toŠ tÄ Šwell€above€0.280€ppm.€€In€2000,€the€Ō_ŌnonattainingŌ_Ō€8„hour€ozone€design€values€range€from€aboveŠ `° Š0.08€ppm€to€0.146€ppm.€For€the€reasons€provided€above,€EPA€does€not€believe€that€this€approachŠ L œ Šreflects€the€level€of€control€needed€for€areas€to€attain€the€8„hour€NAAQS€nor€the€time€it€will€takeŠ 8 ˆ Šthe€areas€to€attain€the€standard.€€Looking€back€at€the€8„hour€design€values€that€existed€at€the€timeŠ $ t ŠEPA€originally€classified€areas€under€the€1990€Ō_ŌCAAAŌ_Ō,€the€8„hour€design€values€ranged€to€0.205Š  ` Šppm€for€the€period€1986„1988€and€0.192€ppm€for€the€period€1987€to1989.€€(Therefore,€forŠ ü L  Šexample,€there€would€have€been€one€area€classified€extreme€if€the€8„hour€standard€existed€at€thatŠ č 8  Štime.)Š Ō$  ŠĢņņOnly€Areas€Currently€Subject€to€Subpart€2€Would€Be€Classified€Under€Subpart€2óó.€€AnotherŠ ¬ü  Šcommenter€suggested€that€only€areas€that€are€currently€designated€nonattainment€for€the€1„hourŠ ˜č  Šozone€NAAQS€be€subject€to€subpart€2€and€all€other€š šnewšš€areas€be€subject€only€to€subpart€1.€€InŠ „Ō  Špractice,€this€approach€would€produce€similar,€though€not€identical,€results€to€EPAššs€option€2€inŠ pĄ Šwhich€EPA€will€rely€on€an€areaššs€most€recent€design€value€for€the€1„hour€standard€in€determiningŠ \¬ Šwhether€it€should€be€subject€to€subpart€1€or€subpart€2.€€We€believe€that€the€Option€2€provides€aŠ H˜ Šmore€balanced€method€for€determining€which€areas€are€subject€to€the€planning€requirements€ofŠ 4„ Šsubpart€2€because€it€considers€actual€air€quality€data€rather€than€simply€looking€to€see€whether€anŠ  p Šarea€is€currently€under€the€subpart€2€scheme€or€not.Š  \ ŠĢņņDistribute€Areas€in€the€Subpart€2€Classification€Based€on€Distribution€In€1990óó.€€One€commenterŠ ä4 Šsuggested€that€we€use€the€same€distribution€of€areas€in€each€classification€that€existed€for€theŠ Š  Šdesignations€and€classifications€that€occurred€immediately€after€the€1990€CAA€Amendments.€€Š ¼  ŠUnder€this€option,€for€example,€if€10€percent€of€the€areas€designated€nonattainment€wereŠ Øų Šclassified€as€severe„15€in1990,€then€10€percent€of€the€current€nonattainment€areas€would€beŠ ”ä Šplaced€in€that€classification.€€We€do€not€believe€that€this€comports€with€Congressional€intent.€Š €Š ŠWe€find€no€evidence€that€Congress€intended€to€include€a€specific€percentage€of€areas€in€each€ofŠ l¼ Šthe€5€subpart€2€classifications€following€the€1990€Amendments.€€Rather,€we€believe€CongressŠ X Ø Šlooked€closely€at€the€air€quality€in€the€areas,€determined€which€areas€would€need€more€controls€š!šŠ D!” Šand€ths€more€time€š!š€to€reach€attainment,€and€grouped€the€areas€accordingly.€€Thus,€CongressŠ 0"€  Šrequired€areas€that€needed€more€time€to€attain€to€adopt€more€stringent€controls.€€Similarly,€EPAŠ #l! Šbelieves€it€is€appropriate€to€link€the€classifications€to€how€far€above€the€standard€an€areaššs€designŠ $X" Švalue€is.€€As€a€general€rule,€EPA€believes€this€is€the€best€indication€of€the€level€of€control€thatŠ ō$D # Šwill€be€needed€to€bring€an€area€into€attainment€and€the€time€it€will€take€such€area€to€attain€theŠ ą%0!$ Šstandard.€€Moreover,€if€a€State€believes€that€an€area€will€need€more€time€to€attain€because€theŠ Ģ&"% Šclassification€does€not€accurately€reflect€the€areaššs€ozone€problem,€the€State€can€request€EPA€toŠ ø'#& Šgive€that€area€a€higher€classification.€Š ¤(ō#' ŠŠ )ą$( ŠņņŌ& œ ŌOther€methods€for€translating€section€181's€Table€1€from€1„hour€to€8„hour€ozone€design€valuesóó:Š ° ŠĢOther€translations€were€considered€but€in€EPAššs€opinion€do€not€have€the€same€degree€ofŠ ˆŲ Šconsonance€with€the€intent€of€Congress€when€it€enacted€subpart€2.€€€EPA€is€therefore€notŠ tÄ Šproposing€these€per€se,€but€in€the€notice€of€proposed€rulemaking,€EPA€is€Ō'œ°ŠBŌsoliciting€comment€onŠ `° Šthe€merits€of€them.€€If€there€is€sufficient€interest€in€any€of€these€translations,€EPA€will€considerŠ L œ Špublishing€a€supplemental€proposal€on€them.Š 8 ˆ ŠĢš!šņņEstablishing€a€relationship€between€the€1„hour€and€8„hour€monitored€values€or€design€valuesŠ  ` Šbased€on€measured€air€quality€data:óóŠ ü L  Šņ ņó óĢAny€attempt€to€derive€a€scientific€relationship€between€1„hour€values€and€8„hour€values€wouldŠ Ō$  Šresult€in€a€relationship€that€does€not€fit€all€situations.׃ׯ ƒv#ĆŻņņŚ  Ś2Ś  ŚóóŻ  Ż×  ׊ Ą  ŠĢThe€other€problem€with€trying€to€establish€a€relationship€between€monitored€1„hour€and€8„hourŠ ˜č  Šozone€levels€for€purposes€of€translating€the€classification€table€is€that€what€might€be€a€better€fitŠ „Ō  Šfor€one€area€may€not€be€as€good€a€fit€for€other€areas.€€Also,€EPA€does€not€believe€that€CongressŠ pĄ Šintended€different€threshold€schemes€to€apply€for€different€areas.€€However,€using€a€relationshipŠ \¬ Šderived€from€data€for€the€entire€country€would€also€likely€have€more€scatter€than€data€derived€forŠ H˜ Šindividual€areas.Š 4„ ŠĢIn€addition,€the€effect€of€using€a€relationship€between€historical€1„hour€and€8„hour€ozone€data€toŠ  \ Šestablish€the€translation€of€table€1€would€likely€result€in€a€larger€number€of€areas€in€the€higherŠ ųH Šsubpart€2€classifications,€which€would€further€limit€an€areaššs€flexibility€in€crafting€controlŠ ä4 Šmeasures€appropriate€to€the€areaššs€problems.Š Š  ŠĢEPA€therefore€believes€there€is€no€obvious€š šcorrectšš€technical€method€for€performing€theŠ Øų Štranslation.€€Thus,€EPA€believes€it€is€best€to€rely€on€what€appeared€to€be€Congressššs€intent€inŠ ”ä Šdeveloping€a€proper€translation€for€purposes€of€applying€section€181's€Table€1€to€the€8„hourŠ €Š Šozone€standard.€€EPA€solicits€comment,€however,€on€other€ways€of€interpreting€CongressionalŠ l¼ Šā āintent€and€on€the€methods€described€in€this€proposal.€€It€should€be€noted€that€the€translation€beingŠ X Ø Šproposed€(based€on€the€percentages€above€the€standard)€does€establish€a€ņņde€factoóó€relationshipŠ ° Šbetween€1„hour€values€and€the€8„hour€values€that€is€not€based€on€measured€air€quality€values.Š œģ Šā āĢš!šņņConstruct€a€revised€classification€table€(Table€1€of€subpart€2)€based€on€the€8„hour€ozone€valuesŠ tÄ Šused€in€EPAššs€Air€Quality€Index€(Ō_ŌAQIŌ_Ō).óó€ņ ņ€€ó óThe€Ō_ŌAQIŌ_ŌŌ_Ō׃4ׯ ƒv#ĆŻņņŚ  Ś3Ś  ŚóóŻ  Ż×  ×Ō_Ō€levels€are€designed€to€trigger€immediateŠ `° Šactions€that€will€keep€an€area€from€reaching€short„term€levels€that€approach€the€level€consideredŠ P   Što€cause€significant€harm€to€the€health€of€persons.Ō_Ō׃Tׯ ƒv#ĆŻņņŚ  Ś4Ś  ŚóóŻ  Ż×  ×Ō_Ō€€The€levels€in€the€Ō_ŌAQIŌ_Ō€are€as€follows:Š < Œ ŠŌ‡XōōXXXōōŌĢŌ*’ƒ"[#ddd Xdd Xdd X°(#°(#’ŌŌ,rdd ŌŌ,¦dd ŌŌ,` dd ŌŌ+  ŌŠ  d d ŠŌ_ŌAQIŌ_Ō€ValueŠ  x Č  ŠCategoryŠ  x Č  Š8„hr€(or€1„hr)€O3Š x Č  Šconcentration€(ppm)Š  d “  Š0€to€50Š  ä4  ŠGoodŠ  ä4  Š€up€to€0.064Š  ä4  Š51€to€100Š  d“  ŠModerateŠ  d“  Š0.065€up€to€0.084Š  d“  Š101€to€150Š  ä4  ŠUnhealthy€for€Sensitive€GroupsŠ  ä4  Š0.085€up€to€0.104Š  ä4  Š151€to€200Š  d“ ŠUnhealthyŠ  d“ Š0.105€up€to€0.124Š  d“ Š201€to€300Š  ä4 ŠVery€unhealthyŠ  ä4 Š0.125€up€to€0.374Š  ä4 Š301€to€500Š  d“ ŠHazardousŠ  d“ Š0.0405€up€to€0.604€(1„hr)Š d“  ŠŌ#†XōōXXXōōwQ#ŌĢThese€levels€were€not€designed€to€classify€areas€for€purposes€of€developing€longer€range€plansŠ l¼ Šfor€achieving€the€ozone€NAAQS.€€For€one€thing,€the€values€provide€are€not€design€values€(i.e.,Š XØ  Šthey€are€not€designed€to€show€a€direct€relationship€between€the€air€quality€of€an€area€in€relation€toŠ D”! Šthe€standard€itself,€which€is€based€upon€data€over€a€3„year€period),€but€are€short„term€exposureŠ 0€" Švalues€(either€single€8„hour€or€single€1„hour€concentrations),€intended€to€provide€thresholds€on€aŠ l# Šrealtime€basis€for€health€advisories€to€the€general€public€or€rapid€control€action€by€the€airŠ X$ Špollution€control€agency.€€Therefore€EPA€does€not€consider€them€appropriate€for€the€€purpose€ofŠ ōD% Šclassifying€areas€to€establish€longer„range€emission€control€programs€and€establish€attainmentŠ ą0& Šdates.Š Ģ' ŠĢĢĢņ ņISSUE:€€How€will€EPA€transition€from€the€1„hour€to€the€8„hour€standard?ó óŠ |#Ģ+ ŠŠ h$ø, ŠņņOther€Options€EPA€consideredóóŠ ° ŠĢEPA€considered€Ō_Ōan€Ō_ŌŌ_ŌŌ_ŌŌ_ŌoptionŌ_Ō€in€which€ņņóóEPA€would€revoke€the€1„hour€ozone€standard€at€the€timeŠ ˆŲ ŠEPA€finds€the€areaššs€motor€vehicle€emissions€budget€under€the€8„hour€standard€to€be€adequate.€Š tÄ ŠEPAššs€transportation€conformity€rules€allow€EPA€to€find€a€nonattainment€areaššs€€emissionsŠ `° Šbudget€adequate€before€actually€approving€the€attainment€demonstration€and/or€reasonableŠ L œ Šfurther€progress€provisions€of€the€SIP€on€which€the€budget€is€based.€€Of€course,€EPA€can€onlyŠ 8 ˆ Šfind€a€budget€adequate€if€it€has€a€reasonable€expectation€that€the€attainment€demonstration€and/orŠ $ t Šreasonable€further€progress€provision€is€adequate.€€This€approach€would€result€in€revocation€ofŠ  ` Šthe€1„hour€standard€sometime€after€the€timing€in€the€first€option€described€above€as€the€adequacyŠ ü L  Šprocess€occurs€only€after€the€area€has€submitted€a€SIP€as€required€in€response€to€its€designationŠ č 8  Šand€classification.€€Conformity€would€apply€under€both€standards€from€1€year€following€theŠ Ō$  Šeffective€date€of€the€nonattainment€designation€for€the€8„hour€standard€and€until€a€conformityŠ Ą  Šbudget€for€the€8„hour€ozone€attainment€demonstration€and/or€reasonable€further€progressŠ ¬ü  Šprovision€is€determined€adequate.€€At€the€time€of€the€adequacy€determination,€EPA€would€revokeŠ ˜č  Šthe€1„hour€standard.Š „Ō  ŠĢThis€approach€raises€a€practical€concern€about€implementing€both€standards€simultaneously.€€ForŠ \¬ Šinstance,€transportation€conformity€would€apply€for€both€standards€for€some€period€of€time.€Š H˜ ŠUntil€a€new€budget€is€established€under€the€8„hour€standard,€the€area€would€have€to€meet€notŠ 4„ Šonly€the€current€budget€for€the€1„hour€SIP,€but€also€either€pass€the€build/no„build€or€the€no„Š  p Šgreater„than€baseline€conformity€test,€which€generally€may€be€more€difficult€for€an€area€to€meet.€Š  \ ŠAlso,€for€8„hour€ozone€nonattainment€areas€that€are€larger€than€š!š€but€encompass€š!š€1„hour€ozoneŠ ųH Šnonattainment€areas,€the€transportation€conformity€requirements€would€likely€have€to€be€metŠ ä4 Šindividually€for€both€standardsš!šfor€the€8„hour€standard€in€the€larger€area€and€for€the€1„hourŠ Š  Šstandard€in€the€area€that€comprised€the€1„hour€ozone€nonattainment€area;€this€would€addŠ ¼  Šcomplexity€to€the€process.Š Øų ŠĢBecause€of€this€practical€concern,€Ō_ŌEPA€is€not€proposing€the€above€approach.€€Ō_ŌŌ_ŌAŌ_Ō€number€ofŠ €Š Šcommenters€at€EPAššs€public€meetings€and€in€written€comments€favored€this€approach.€Š l¼ ŠĢIn€addition,€EPA€presented€other€options€at€the€public€meetings€and€received€suggestions€forŠ D!” Šadditional€options,€but€did€not€believe€these€would€ensure€a€smooth€transition€from€the€1„hourŠ 0"€  Šstandard€to€the€8„hour€ozone€standard,€particularly€in€light€of€concerns€about€conformity.€€Š #l! ŠĢӁ€ <156789:(Gģx3ÓŻ"‚13£"ŻŻ  ŻŻ‚13£ĻgŻŌ2GģŌššŌ3  Ōą0  ąŻ  ŻAn€option€whereby€EPA€would€revoke€the€1„hour€standard€at€the€time€of€8„hour€Oņņ3óóŠ ō$D # Šattainment/nonattainment€designation€would€ensure€a€quick€transition€to€the€8„hourŠ ą%0!$ Šstandard,€but€there€would€be€a€gap€in€conformity€coverage€during€the€1„year€grace€periodŠ Ģ&"% Šafter€designation€of€the€8„hour€ozone€standard.Żƒ13£Ļgüg݌Šø'#&(#(# ŠŒŻ  ŻŻ"‚13£"ŻŻ  ŻŻ‚13£ņiŻŌ2GģŌššŌ3  Ōą0  ąŻ  ŻAn€option€whereby€EPA€would€revoke€the€1„hour€standard€Ō_Ōfor€all€purposes€atŌ_Ō€the€timeŠ ¤(ō#' ŠEPA€determines€that€the€area€meets€the€1„hour€Oņņ3óó€NAAQS€(after€8„hour€Oņņ3óó€designation).€Š )ą$( ŠThis€approach€also€would€create€a€situation€under€which€conformity€would€apply€to€bothŠ |*Ģ%) Šstandards€for€€Ō_Ōareas€that€remain€covered€by€the€1„hour€standard€after€the€first€yearŠ h+ø&* Šfollowing€nonattainment€designations€under€the€8„hour€standard.€ņ ņņņóóó ó€Ō_Ō€As€noted€in€theŠ ° Šproposal,€however,€EPA€is€also€soliciting€comment€on€this€approach,€even€though€we€areŠ œģ Šnot€proposing€it.Ō_ŌŌ_ŌŌ_ŌŻƒ13£ņij݌ŠˆŲ(#(# ŠŒŻ  ŻŻ"‚13£"ŻŻ  ŻŻ‚13£¹mŻŌ2GģŌššŌ3  Ōą0  ąŻ  ŻAn€option€whereby€EPA€would€revoke€the€1„hour€standard€at€the€time€of€approval€of€8„Š tÄ Šhour€Oņņ3óó€SIPs€(for€8„hour€Oņņ3óó€nonattainment€areas),€which€would€ensure€that€attainmentŠ `° Šplans€and€control€measures€would€be€in€place€under€the€8„hour€standard€before€the€1„hourŠ L œ Šstandard€is€revoked.€€EPA€believes€this€option€is€unreasonable€because€it€would€result€inŠ 8 ˆ Šconformity€and€new€source€review€applying€simultaneously€for€both€standards€for€aŠ $ t Šnumber€of€years€as€SIPs€generally€would€be€due€around€three€years€following€designationŠ  ` Šand€EPA€approval€could€take€up€to€18€months.Żƒ13£¹męm݌Šü L (#(# ŠŒŻ  ŻŻ"‚13£"ŻŻ  ŻŻ‚13£&qŻŌ2GģŌššŌ3  Ōą0  ąŻ  ŻAn€option€whereby€EPA€would€revoke€the€1„hour€ozone€standard€at€the€time€the€StateŠ č 8  ŠSIP€rules€are€enforceable€at€the€State€level€with€some€preliminary€assessment€by€EPA€thatŠ Ō$  Šthe€SIP€is€Ō_ŌapprovableŌ_Ō.€€While,€compared€with€the€previous€option,€this€option€wouldŠ Ą  Šreduce€the€amount€of€time€that€conformity€and€Ō_ŌNSRŌ_Ō€would€apply€simultaneously€for€theŠ ¬ü  Štwo€standards,€EPA€believes€that€it€is€unreasonable€for€the€same€reason.€Ōf  ŌŌg Ōą x ąŻƒ13£&qSq݌Š˜č (#(# ŠŒŻ  ŻŌ_ŌĢņ ņISSUE:€€Should€prescribed€requirements€of€Subpart€2€apply€in€all€8„hour€nonattainmentŠ pĄ Šareas€classified€under€subpart€2,€or€is€there€flexibility€to€apply€equivalent€measures,€orŠ \¬ Šdrop€some€requirements€altogether€if€in€certain€narrowly€defined€circumstances€they€areŠ H˜ Šdetermined€to€be€inappropriate?€ņņó óŠ 4„ ŠóóĢņņóóEPA€considered€the€following€options€and€obtained€input€on€them€at€the€three€public€meetings.Š  \ ŠĢņņOption€1.óó€€Assume€no€changes€can€be€made€to€the€statutory€requirements€of€subpart€2.Š ä4 ŠĢņņOption€2.óó€€Identify€a€legal€justification€to€allow€areas€covered€under€subpart€2€to€substituteŠ ¼  Šmeasures€that€will€provide€equivalent€ozone€reductions.Š Øų ŠĢņņOption€3.óó€€Identify€a€legal€justification€to€allow€EPA€to€determine€on€a€case„by„case€basis€whichŠ €Š Šof€the€mandatory€control€measures€under€subpart€2€can€be€waived€by€the€State€in€preparation€ofŠ l¼ Šits€attainment€demonstration.€€The€area€would€still€have€to€provide€controls€sufficient€to€attainŠ X Ø Šthe€standard€by€the€attainment€date€for€its€classification.Š D!” ŠĢņņOption€4.óó€€Review€each€of€the€individual€control€requirements€in€subpart€2€to€determine€what,€ifŠ #l! Šany€flexibility€may€be€provided€for€that€specific€requirement€(e.g.,€can€the€15€percent€VOCŠ $X" Šreduction€requirement€be€deemed€to€have€been€met€for€areas€that€have€already€achieved€a€15Š ō$D # Špercent€reduction€in€VOC€reductions€for€the€1„hour€standard?€€For€serious€and€above€areas,€canŠ ą%0!$ ŠEPA€determine€that€onboard€vapor€recovery€is€in€widespread€use€and€thus,€under€sectionŠ Ģ&"% Š202(a)(6)€revise€or€waive€the€stage€II€requirement€for€those€areas?)Š ø'#& ŠĢŃ  ŃIn€the€notice€of€proposed€rulemaking,€EPA€is€proposing€that€subpart€2€requirements€would€applyŠ )ą$( Što€all€areas€covered€under€subpart€2€consistent€with€the€areaššs€classification.€€In€that€respectŠ |*Ģ%) ŠEPAššs€proposal€is€similar€to€the€former€Option€1€described€above.€€EPA€is€proposing€also€toŠ h+ø&* Šconsiderņņóó€€allowing€case„by„case€waivers€of€specific€subpart€2€requirements€when€sufficientŠ T,¤'+ Ševidence€is€presented€that€absurd€results€that€would€occur€through€compliance€with€the€specificŠ @-(, Šsubpart€2€requirement.€€In€that€respect,€EPAššs€proposal€is€similar€to€the€former€options€2€and€3Š ° Šabove.Š œģ ŠĢWith€regard€to€Option€4,€EPA€has€considered€whether€the€15€percent€rate€of€progressŠ tÄ Šrequirement€for€VOC€emission€reductions€for€the€first€6€years€after€a€nonattainment€designationŠ `° Šcould€be€interpreted€to€require€only€3€percent€reduction€per€year€of€either€VOC€or€NOņņxóó€or€both€€ifŠ L œ Šthe€area€had€already€accomplished€such€reductions€for€the€period€1990€to€1996.€€EPA€isŠ 8 ˆ Šproposing€this€option€in€the€section€on€reasonable€further€progress.€€The€EPA€is€still€evaluatingŠ $ t Šwhether€the€stage€II€vapor€recovery€provisions€in€the€Clean€Air€Act€(sections€182(b)(3)€(whichŠ  ` Šapplies€to€serious€and€above€nonattainment€areas)€and€184€(b)(2)€(which€applies€to€the€OzoneŠ ü L  ŠTransport€Region)€can€be€waived€or€revised€to€account€for€the€increasing€use€over€time€ofŠ č 8  Šonboard€refueling€vapor€recovery€(ORVR)€systems.Š Ō$  ŠĢĢņ ņISSUE:€€How€will€EPA€address€transport€of€ground„level€ozone€and€its€precursors€whenŠ ˜č  Šimplementing€the€8„hour€ozone€standard?ó óŠ „Ō  ŠĢEPA€had€considered€alternative€options€for€several€issues€related€to€transport.Š \¬ ŠĢņņIssue:€€Who€should€conduct€€the€analysis€to€evaluate€the€extent,€causes€and€solution€to€transportŠ 4„ Šof€ground„level€ozone€and€its€precursors?óóŠ  p ŠĢą  ąOne€option€that€EPA€considered€is€a€combination€of€EPA€and€State€activities.€€EPAŠ ųH Šwould€perform€regional€scale€modeling€to€evaluate€the€impacts€of€regional€transport€and€identify€Š ä4 Šmeasures€(e.g,.€state„level€emission€caps€or€other€requirements)€€sufficient€to€eliminate€a€Stateššs€Š Š  Šsignificant€contribution€to€areas€in€downwind€States€(as€in€option€1).€€As€part€of€this€analysis,Š ¼  ŠEPA€would€make€a€determination€as€to€whether€these€steps€resolve€the€transport€problem.€€If€not,Š Øų Šthe€EPA€would€identify€areas€for€which€additional€analyses,€which€may€include€photochemicalŠ ”ä Šgrid€modeling,€will€be€needed€as€part€of€the€Stateššs€attainment€demonstration€SIP.€€EPA€wouldŠ €Š Šissue€technical€guidance€on€analytical€techniques€and€analyses€still€needed€to€address€theŠ l¼ Šremaining€portion€of€the€transport€problem.€€These€analyses€would€include€assessment€of€theŠ X Ø ŠStatesšš€emissions€impacts€on€areas€in€downwind€States€and€could€include€identification€ofŠ D!” Šadditional€control€measures€needed€to€eliminate€the€significant€contributions€to€areas€inŠ 0"€  Šdownwind€States.€€EPA€guidance€will€provide€a€description€of€the€role€of€transport,€how€ozone€isŠ #l! Šformed€in€the€atmosphere,€chemistry,€mixing€turbulence€and€transport,€models€to€reviewŠ $X" Štransport,€and€guidance€describing€ways€to€evaluate€transport€and€address€downwind€influenceŠ ō$D # Šon€downwind€areas.€€This€option€may€require€States€to€work€together€as€described€in€the€sectionsŠ ą%0!$ Šon€attainment€demonstrations.€In€developing€an€attainment€SIP€for€their€local€area,€states€wouldŠ Ģ&"% Šbe€allowed€to€rely€on€anticipated€upwind€reductions€€to€be€achieved€by€measures€based€on€the€Š ø'#& Šregional€scale€modeling.€€Because€states€are€working€together,€they€should€agree€on€both€the€needŠ ¤(ō#' Šfor€upwind€emission€reductions€and€on€adopting€controls€in€sufficient€time€for€the€downwindŠ )ą$( Šareas€to€meet€their€attainment€dates.€Š |*Ģ%) ŠŌ_ŌŠ h+ø&* Šą  ąAnother€option€that€EPA€considered€but€is€not€proposing€is€that€States€would,€either€aloneŠ ° Šor€by€forming€multi„state€groups,€perform€the€regional€scale€modeling€to€assess€each€StateššsŠ œģ Šcontribution€to€other€areas€and€identify€equitable€control€measures€throughout€the€region€thatŠ ˆŲ Šeliminate€their€significant€contribution.€€In€developing€an€attainment€SIP€for€their€local€area,Š tÄ Šstates€would€be€allowed€to€rely€on€anticipated€upwind€reductions€to€be€achieved€by€measuresŠ `° Šbased€on€the€€regional€scale€modeling.Š L œ ŠĢThe€EPA€did€not€propose€either€of€these€options€for€several€reasons.€€One€reason€is€that€theŠ $ t Šsignificant€amount€of€time€it€would€take€for€States€to€organize€and€perform€the€necessaryŠ  ` Šmodeling€would€likely€preclude€having€usable€results€in€the€Ō_ŌtimeframesŌ_Ō€needed.€€Another€reasonŠ ü L  Šis€the€fact€that€there€would€likely€be€significant€differences€from€region€to€region€in€assessmentŠ č 8  Šof€transport€and€the€manner€in€which€it€would€be€addressed.€€EPA€believes€that€the€approachŠ Ō$  Šdiscussed€in€the€proposed€Ō_ŌrulemakingŌ_Ō€would€be€more€effective€in€addressing€transport.Š Ą  ŠĢņņIssue:€€Can€the€Ō_ŌnonattainmentŌ_Ō€designation€process€be€used€to€address€transport?óóŠ ˜č  ŠĢą  ąEPA€has€considered,€but€is€not€proposing,€€an€option€that€would€€rely€solely€on€the€airŠ pĄ Šquality€designations€process€in€section€107€of€the€CAA€to€address€regional€transport.€€ForŠ \¬ Šexample,€some€Ō_ŌcommentersŌ_Ō€suggested€at€the€public€meeting€that€EPA€could€designate€largeŠ H˜ Šenough€Ō_ŌnonattainmentŌ_Ō€areas€to€include€both€the€violating€and€contributing€areas€and€coordinateŠ 4„ Šattainment€dates€within€the€area€such€that€the€upwind€contributing€and€downwind€Ō_ŌnonattainmentŌ_ŌŠ  p Šareas€reflect€the€same€attainment€date.€€This€approach€could€result€in€very€large€Ō_ŌnonattainmentŌ_ŌŠ  \ Šareas.€€The€EPA€is€not€proposing€this€option€for€several€reasons.€€First,€EPA€believes€that€thisŠ ųH Šapproach€does€not€square€with€the€definition€of€a€Ō_ŌnonattainmentŌ_Ō€area€in€section€107(d)(1)(A)Š ä4 Šwhich€provides€for€including€š šnearbyšš€areas€that€contribute€to€Ō_ŌnonattainmentŌ_Ō.€€The€EPA€does€notŠ Š  Šbelieve€that€this€provision€was€intended€to€address€long„range€transport.€€Second,€as€a€policyŠ ¼  Šmatter,€EPA€believes€it€would€not€be€productive€to€subject€broad€areas€of€the€country€toŠ Øų ŠŌ_ŌnonattainmentŌ_Ō€programs€such€as€new€source€review€and€conformity.€€Š ”ä ŠĢą  ąFor€similar€reasons,€EPA€also€is€not€considering€establishing€new€ozone€transport€regionsŠ l¼ Šas€provided€under€section€126(a).€€While€some€Ō_ŌcommentersŌ_Ō€suggested€this€approach€at€the€publicŠ X Ø Šmeeting,€other€participants€strongly€opposed€the€approach.Š D!” ŠŃ  ŃĢĢņ ņISSUE:€€What€requirements€for€reasonable€further€progress€(Ō_ŌRFPŌ_Ō)€should€apply€under€theŠ $X" Š8„hour€ozone€standard?ó óŠ ō$D # ŠĢThe€EPA€considered,€but€is€not€proposing,€alternative€options€for€several€of€the€Ō_ŌRFPŌ_Ō€issues€asŠ Ģ&"% Šfollows:Š ø'#& ŠĢņņFor€subpart€2€areas,€should€the€initial€15€percentŌf  ŌŌg Ō€Ō_ŌRFPŌ_Ō€requirement€be€limited€to€VOC€emissions?óóŠ )ą$( ŠĢņņOther€options€that€EPA€consideredóóŠ h+ø&* Šā ā€Ōf  ŌŌg ŌŠ T,¤'+ ŠŌf  ŌŌg ŌA€number€of€Ō_ŌcommentersŌ_Ō€wanted€EPA€to€provide€a€more€flexible€approach€for€Ō_ŌRFPŌ_ŌŌf  ŌŌg ŌŌf  ŌŌg Ō.€€OneŠ ° Šā ārecommendation€was€toŌf  ŌŌg Ō€allow€more€NOx€emission€reductions€to€be€substituted€for€VOCŠ œģ Šemission€reductions€for€the€15€percent€requirement.€€Another€recommendation€was€to€allow€areasŠ ˆŲ Što€reduce€emissions€of€whatever€precursor€(i.e.,€VOC€and/or€NOX)€and€by€whatever€amount€isŠ tÄ Šnecessary€to€reach€attainment€by€attainment€date.€Ōf  ŌŌg ŌŌf  ŌŌg Ō€In€other€words,€the€Ō_ŌcommenterŌ_Ō€was€suggestingŠ `° Šthat€EPA€not€apply€the€Ō_ŌROPŌ_Ō€provisions€in€section€182€and€not€prescribe€what€Ō_ŌRFPŌ_Ō€means€underŠ L œ Šsubpart€1.€€EPA€has€not€been€able€to€identify€a€legal€rationale€to€accommodate€suchŠ 8 ˆ Šrecommendations€in€light€of€statutory€requirements.€Š $ t ŠĢņņWhat€baseline€year€should€be€required€for€the€emissionŌf  ŌŌg Ō€inventory€for€the€Ō_ŌRFPŌ_Ō€requirementŠ ü L  ŠóóĢŌf  ŌŌg ŌņņOther€Options€EPA€consideredóóŠ Ō$  ŠĢEPA€presented€other€options€for€the€baseline€year€at€the€public€meetings.€€Ōf  ŌŌg ŌŌf  ŌŌg ŌŌf  ŌŌg ŌOne€option€would€beŠ ¬ü  Što€use€1990š!šthe€year€specified€in€the€CAA.€€Those€present€at€the€public€meetings€had€Ōf  ŌŌg Ōa€mixedŠ ˜č  Šresponse€Ōf  ŌŌg ŌŌf  ŌŌg Ōregarding€the€use€ofŌf  ŌŌg Ō€1990€as€the€baseline€year€of€emission€inventory.€€Use€of€1990€asŠ „Ō  Šthe€baseline€would€allow€States€to€take€credit€for€measures€they€adopt€and€implement€after€1990.€Š pĄ ŠHowever,€1990€would€be€an€older€inventory€and€does€not€reflect€current€circumstances.€Š \¬ ŠMoreover,€there€are€newer,€more€refined€tools€and€techniques€used€to€determine€inventories.€Š H˜ ŠSome€Ō_ŌcommentersŌ_Ō€have€indicated€thatŌf  Ō€Ōg ŌŌf  ŌŌg ŌdevelopingŌf  ŌŌg Ō€a€good€1990€base€year€inventory€would€beŠ 4„ Štechnically€difficult€for€those€areas€that€were€not€Ō_ŌnonattainmentŌ_Ō€for€the€1„hour€standard€and€thusŠ  p Šhad€not€developed€inventories€for€that€year.€€€Others€€indicated€it€would€be€possible€for€someŠ  \ Šareas€to€develop€a€good€1990Ōf  ŌŌg ŌŌf  ŌŌg Ō€emissions€inventoryŌf  ŌŌg Ō.Ōf  Ō€€Also€suggestions€were€made€to€consider€useŠ ųH Šof€some€other€year,€e.g.,€1999€since€it€is€a€relatively€recent€year€with€an€updated€quality„assuredŠ ä4 Šemission€inventory.Ōg ŌŌf  ŌŌg Ō€€EPA€rejected€these€other€options€because€the€2002€base€year€appeared€to€beŠ Š  Šthe€most€appropriate€year€in€light€of€anticipated€availability€of€current€information€at€the€timeŠ ¼  ŠStates€will€be€preparing€the€Ō_ŌRFPŌ_Ō€provisions€of€their€implementation€plans.Š Øų ŠĢņņHow€should€the€Ō_ŌRFPŌ_Ō€requirements€be€implemented€for€areas€designated€for€the€8„hour€ozoneŠ €Š Šstandard€that€entirely€or€in€part€encompass€an€area€that€was€designated€Ō_ŌnonattainmentŌ_Ō€for€the€1„Š l¼ Šhour€ozone€standardóó?Š X Ø ŠĢņņOther€Options€EPA€consideredóóŠ 0"€  ŠĢŌ‡XōōXXXōōŌThe€other€option€EPA€considered€was€to€develop€a€new€baseline€and€new€Ō_ŌRFPŌ_Ō€emissionŠ $X" Šreduction€targets€for€the€entire€area,€but€in€addition€retain€current€Ō_ŌRFPŌ_Ō€for€the€1„hour€ozoneŠ ō$D # ŠŌ_ŌNAAQSŌ_Ō.Š ą%0!$ Šą  ąThis€option€would€allow€the€entire€area€to€make€progress€toward€attainment€of€the€8„hourŠ Ģ&"% Šozone€Ō_ŌNAAQSŌ_Ō€while€preserving€the€adopted€Ō_ŌROPŌ_Ō€plan€for€the€current€1„hour€standardŠ ø'#& ŠŌ_ŌnonattainmentŌ_Ō€area.€€It€would€establish€two€Ō_ŌROPŌ_Ō€targets„š!šone€for€the€area€that€was€subject€to€theŠ ¤(ō#' Š1„hour€standard€and€one€for€the€entire€8„hour€ozone€Ō_ŌnonattainmentŌ_Ō€area.Ō#†XōōXXXōō’«#Ō€€This€option€was€notŠ )ą$( Šselected€since€it€appeared€unnecessary€to€ensure€progress€toward€attainment.Š |*Ģ%) ŠŠ h+ø&* ЇņņOther€Issue€EPA€ConsideredóóŠ ° ŠĢņņShould€EPA€use€the€Ō_ŌRFPŌ_Ō€requirement€to€address€an€upwind€Stateššs€responsibility€under€sectionŠ ˆŲ Š110(a)(2)(D),€which€requires€that€the€SIP€provide€for€preventing€a€significant€contribution€to€aŠ tÄ Šdownwind€jurisdictionššs€Ō_ŌnonattainmentŌ_Ō€situation?óóŠ `° ŠĢą  ąOne€of€the€problems€identified€by€Ō_ŌcommentersŌ_Ō€is€that€transport€of€ozone€and€itsŠ 8 ˆ Šprecursors€from€emission€sources€in€one€or€more€Ō_ŌnonattainmentŌ_Ō€areas€in€an€upwind€State€mayŠ $ t Šprevent€an€area€in€a€downwind€State€from€attaining€the€standard€by€its€attainment€date€unless€theŠ  ` Šupwind€area€has€the€same€or€an€earlier€attainment€date.€€The€EPAššs€proposed€approach€forŠ ü L  Šaddressing€long-range€transport€of€ozone€and€its€precursors€is€described€in€the€notice€of€proposedŠ č 8  ŠŌ_ŌrulemakingŌ_Ō.Š Ō$  Šą  ąUnder€the€subpart€2€classification€and€attainment€date€structure,€a€sourceššs€emissionsŠ Ą  Šfrom€a€Ō_ŌnonattainmentŌ_Ō€area€with€a€particular€classification€and€attainment€date€may€contribute€toŠ ¬ü  ŠŌ_ŌnonattainmentŌ_Ō€in€a€downwind€area€with€a€lower€classification€and€therefore€an€earlier€attainmentŠ ˜č  Šdate.€€The€downwind€area€(for€example,€a€marginal€area)€may€not€be€able€to€reach€attainment€byŠ „Ō  Šits€mandated€attainment€date€until€the€upwind€area€(for€example,€a€moderate€or€above€area)Š pĄ Šachieves€most€or€all€of€its€emissions€reductions,€which€it€would€normally€not€achieve€until€closeŠ \¬ Što€its€attainment€date.€€One€comment€letter€from€a€State€air€pollution€control€agency€suggestedŠ H˜ Šthat€EPA€rely€on€the€Ō_ŌRFPŌ_Ō€requirement€to€ensure€early€reductions€in€areas€in€upwind€States.€Š 4„ ŠBased€on€this€idea,€EPA€considered€an€approach€under€which€the€area€in€an€upwind€State€withŠ  p Šthe€later€attainment€date€would€be€required€to€achieve€greater€emissions€reductions€for€its€Ō_ŌRFPŌ_ŌŠ  \ Šplan€from€sources€that€contribute€to€Ō_ŌnonattainmentŌ_Ō€in€the€downwind€Stateššs€area€on€a€tighterŠ ųH Šschedule€(namely€by€the€Ō_ŌnonattainmentŌ_Ō€date€of€the€downwind€Stateššs€area)€than€that€required€forŠ ä4 Šreductions€from€other€sources€needed€to€attain€the€standard€within€the€upwind€area€by€theŠ Š  Šattainment€date€of€the€upwind€Stateššs€area.€€This€additional€Ō_ŌRFPŌ_Ō€constraint€would€therefore€assistŠ ¼  Šthe€downwind€Stateššs€area€in€attaining€the€standard€by€its€attainment€date€even€if€it€were€subjectŠ Øų Što€transport€from€an€upwind€Stateššs€Ō_ŌnonattainmentŌ_Ō€area.€€This€approach€would€apply€toŠ ”ä ŠŌ_ŌnonattainmentŌ_Ō€areas€in€upwind€States€that€EPA€identifies€under€section€110(a)(2)(D)€asŠ €Š Šcontributing€significantly€to€Ō_ŌnonattainmentŌ_Ō€or€interfering€with€maintenance€in€another€State.€€OfŠ l¼ Šcourse,€this€proposed€Ō_ŌRFPŌ_Ō€constraint€would€likely€not€be€sufficient€to€wholly€address€significantŠ X Ø Šinterstate€transport;€EPAššs€approach€for€addressing€this€is€discussed€elsewhere€in€this€notice€ofŠ D!” Šproposed€Ō_ŌrulemakingŌ_Ō.Š 0"€  Šą  ąThis€approach€could€partially€addresses€the€problem€of€mismatched€attainment€dates€inŠ #l! Šareas€affected€by€transport€and€therefore€proposes€it€for€comment.Š $X" Šą  ąThe€EPA€decided€not€to€propose€this€option€at€this€time€because€we€could€not€identify€aŠ ō$D # Špossible€legal€rationales€supporting€this€option.€Š ą%0!$ ŠĢŌ‡ XōōXXXōōŌņ ņISSUE:€€Will€EPA€be€contemplating€Ōf  ŌŌf  ŌŌf  ŌŌg ŌŌg ŌŌg ŌŌf  ŌŌg ŌŌf  ŌŌg ŌŌf  ŌŌg Ōincentives€for€areas€that€want€to€take€early€action€forŠ ø'#& Šreducing€ozone€under€the€8„hour€standard?Ōf  ŌŌg ŌŌf  ŌŌg ŌŌf  ŌŌg Ō€Ō#†XōōXX Xōō$Į#Ōó óŠ ¤(ō#' Šā āŠ )ą$( ŠŌ_Ōą  ąEPA€considered€a€transitional€classification€as€a€means€for€encouraging€States€to€takeŠ ° Šearly€action€for€implementing€the€8„hour€ozone€NAAQS.€€EPA€does€not€consider€this€approachŠ œģ Što€be€feasible.Ōf  ŌŌg ŌŠ ˆŲ Šā āĢŌf  ŌŌg Ōą  ąŌ‡XōōXXXōōŌOn€July€16,€1997,€the€President€issued€a€directive€to€EPA€on€the€implementation€of€theŠ `° Šrevised€air€quality€standards€for€ozone€and€PM.€€Ō#†XōōXXXōōPÄ#ŌŌf  ŌŌf  ŌŌf  ŌŌg ŌŌg ŌŌg ŌŌf  ŌŌg ŌŌf  ŌŌg ŌOn€November€17,€1998,Ō‡XōōXXXōōŌ€EPA€Ōf  ŌŌg ŌŌf  ŌŌg Ōissued€draftŌf  ŌŌg ŌŠ L œ ŠguidanceŌ#†XōōXXXōō¬Å#ŌŌ‡XōōXXXōōŌ€for€implementing€the€revised€ozone€and€PM€NAAQS€and€the€regional€haze€programŠ 8 ˆ Šconsistent€with€the€Ōf  ŌŌg ŌŌf  ŌŌg ŌClean€Air€ActŌf  ŌŌg Ō€and€the€Presidentššs€Directive€(Ō#†XōōXXXōō[Ę#ŌŌf  ŌŌf  ŌŌf  ŌŌg ŌŌg ŌŌg ŌŌf  ŌŌg ŌŌf  ŌŌg Ōš šImplementation€of€Revised€AirŠ $ t ŠQuality€Standards€for€Ozone€and€Particulate€Matter,šš€62€FR€38421,€Ōf  ŌŌg Ōņ ņņņó óóóŌf  ŌŌg ŌJuly€18,€1997Ōf  ŌŌg Ōņņņ ņóóó óŌf  ŌŌg Ō).€€Ō‡XōōXXXōōŌŌf  ŌŌg ŌŌf  ŌŌg ŌConsistentŠ  ` Šwith€tŌf  ŌŌg Ōhe€Presidential€DirectiveŌf  ŌŌg ŌŌf  ŌŌg Ō,€the€draft€guidance€providedŌf  ŌŌg Ō€for€the€creation€of€a€transitionalŠ ü L  Šclassification€for€certain€areas.Ō#†XōōXXXōōäČ#Ō€Ō‡XōōXXXōōŌ€This€classification€was€Ōf  ŌŌf  ŌŌf  ŌŌg ŌŌg ŌŌg ŌŌf  ŌŌg ŌŌf  ŌŌg Ōintended€to€be€madeŌ#†XōōXXXōōYŹ#ŌŌ‡XōōXXXōōŌ€available€only€toŠ č 8  Šareas€with€air€quality€meeting€Ōf  ŌŌg ŌŌf  ŌŌg Ōthe1„hourŌf  ŌŌg Ō€ozone€standard,€but€not€meeting€the€more€stringent€8„Š Ō$  Šhour€ozone€standardŌ#†XōōXXXōō0Ė#Ō.€€Ō‡XōōXXXōōŌAt€that€time,€the€transitional€classification€was€the€primary€element€ofŠ Ą  ŠEPAššs€flexible€implementation€approach€for€ozone.€€This€classification€encouraged€cleaner€airŠ ¬ü  Šsooner,€responded€to€the€fact€that€ozone€is€a€regional€as€well€as€a€local€problem,€and€eliminatedŠ ˜č  Šunnecessary€planning€and€regulatory€burdens€for€State€and€local€governments.Ō#†XōōXXXōōaĢ#ԀР„Ō  ŠĢą  ąSince€the€November€17,€1998,€guidance€was€Ōf  ŌŌg ŌŌf  ŌŌg ŌissuedŌf  ŌŌg Ō,€however,€the€legislative€authorityŠ \¬ ŠŌf  ŌŌf  ŌŌg ŌŌf  ŌŌg ŌthatŌf  ŌŌg ŌŌf  ŌŌg Ō€EPA€proposed€to€use€as€the€basis€for€Ōf  ŌŌf  ŌŌf  ŌŌg ŌŌg Ō€Ōg ŌŌf  ŌŌg ŌŌf  ŌŌg Ōimplementing€the€8„hour€standard€was€challenged,Š H˜ Šcalling€into€question€the€legality€of€the€transitional€classification€as€a€means€of€providing€flexibleŠ 4„ Šimplementation€Ōf  ŌŌf  ŌŌf  ŌŌg ŌŌg ŌŌg ŌŌf  ŌŌg ŌŌf  ŌŌg Ōfor€areas€covered€under€subpart€2,€Part€D,€Title€I€of€the€CAA.€€(The€legislativeŠ  p Šauthority€for€the€nonattainment€area€provisions€is€found€in€the€Part€D,€Title€I€of€the€CAA.€Š  \ ŠSubpart€1€contains€general€requirements€for€SIPs€for€all€nonattainment€areas;€subpart€2€providesŠ ųH Šmore€specific€requirements€for€ozone.)€Ōf  ŌŌf  ŌŌf  ŌŌg ŌŌg ŌŌg ŌŌf  ŌŌg ŌŌf  ŌŌg Ō€Ōf  ŌŌg ŌIn€February€2001,€the€Supreme€Court€Ōf  ŌŌg ŌŌf  ŌŌg Ōfound€EPAššsŠ ä4 Šimplementation€approach€unreasonable,€concludingŌf  ŌŌg Ō€that€EPA€could€not€ignore€subpart€2€whenŠ Š  Šimplementing€the€8„hour€standard.€€€ņņŌ‡ XōōXXXōōŌWhitman€v.€American€Trucking€Assoc.óó,€121€S.Ct.€903.Ō#†XōōXX Xōō9Ō#Ō€Ōf  ŌŌg ŌŠ ¼  ŠĢą  ąThe€Ōf  ŌŌg ŌŌf  ŌŌg ŌClear€SkiesŌf  ŌŌg Ō€legislation€introduced€in€Ōf  ŌŌg ŌŌf  ŌŌg ŌJulyŌf  ŌŌg Ō€2002€provides€for€a€transitional€designationŠ ”ä Šfor€certain€areas€that€would€allow€flexibility€in€implementing€the€8„hour€ozone€NAAQS.€€€Ōf  ŌŌg ŌŌf  ŌŌg ŌThisŠ €Š Šapproach€is€discussed€elsewhere€in€this€notice.