[Federal Register Volume 59, Number 120 (Thursday, June 23, 1994)]
[Unknown Section]
[Page 0]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 94-15311]


[[Page Unknown]]

[Federal Register: June 23, 1994]


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ENVIRONMENTAL PROTECTION AGENCY
40 CFR Part 52

[WY2-1-6365; FRL-5003-4]

 

Supplemental Notice to the Proposed Approval and Promulgation of 
State Implementation Plans; Wyoming; Revision to Section 3 Particulates

AGENCY: Environmental Protection Agency (EPA).

ACTION: Proposed rule.

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SUMMARY: In this action, EPA is proposing approval of the revision made 
to Section 3, Particulates of the Wyoming Air Quality Standards and 
Regulations (WAQSR) of the Wyoming State Implementation Plan (SIP). The 
action makes the revision a part of the Federally approved SIP.

DATES: Comments on this document must be received on or before July 25, 
1994.

ADDRESSES: Written comments should be addressed to: Douglas M. Skie, 
Chief, Air Programs Branch, Environmental Protection Agency, Region 
VIII, 999 18th Street, suite 500, Denver, Colorado 80202-2466.
    Copies of the applicable documentation are available for public 
inspection during normal business hours at the following locations: 
Environmental Protection Agency, Region VIII, Air Programs Branch, 999 
18th Street, 6th floor, South Tower, Denver, Colorado, 80202-2466; and 
the Air Quality Division, Department of Environmental Quality, 
Herschler Building, 4th floor, 122 West 25th Street, Cheyenne, Wyoming, 
82002.

FOR FURTHER INFORMATION CONTACT: Sara Summers, Environmental Protection 
Agency, Region VIII, Air Programs Branch, 999 18th Street, suite 500, 
Denver, Colorado, 80202-2466, (303) 293-0966.

SUPPLEMENTARY INFORMATION:

A. Overview

    On August 26, 1992, EPA proposed to approve a revision to Section 
3, Particulates, of the Wyoming Air Quality Standards and Regulations 
(WAQSR) of the Wyoming SIP. The revision to Section 3, which adds 
subsection (d), defines ``ambient air'' for surface coal mines located 
in Wyoming's Powder River Basin (PRB). The details of this proposed 
rule can be found at 57 FR 38641-38650.
    Since publication of the proposed action, EPA has reevaluated the 
need to conduct the 30-year ``life-of-mine'' modeling as outlined in 
the proposed action. As a result, a Memorandum of Agreement (MOA) was 
written between Dennis Hemmer, Director of the Wyoming DEQ and Patricia 
D. Hull, Director of the EPA Region VIII, Air, Radiation and Toxics 
Division, describing procedures to be followed by the State of Wyoming 
and EPA in protecting the PM10 NAAQS in the Powder River Basin. 
The approach outlined in the MOA is based upon continued ambient air 
quality monitoring, rather than the implementation of the 30-year life-
of-mine modeling study. A detailed discussion of the MOA is provided 
below. Since EPA has changed the basis for approving the revisions to 
the State's definition of ambient air, EPA is re-proposing approval of 
these revisions.

B. Memorandum of Agreement

1. Compliance

    The signed MOA between EPA and DEQ was submitted to the DEQ on 
January 24, 1994. A review of the PM10 ambient monitoring data 
from the Powder River Basin, and the actions by the DEQ and the Wyoming 
coal companies to maintain an adequate ambient monitoring network, 
support EPA's view that these actions have proven successful in 
maintaining the PM10 NAAQS in the region. Other factors that were 
taken into account were: (1) The fact that the DEQ included in all the 
mines' permits explicit requirements to implement best available work 
practices (BAWP); (2) that the DEQ is using necessary enforcement to 
ensure that BAWP are and will continue to be implemented; and (3) that 
the probability of future PM10 NAAQS violations in the area is 
small.
    For these reasons, EPA believes it is appropriate to continue 
ambient monitoring in place of a 30-year life-of-mine study, provided 
there are no violations of the PM10 NAAQS. The ambient monitoring 
network proposed by DEQ, and submitted to EPA in June, 1992, remains in 
effect. If a PM10 exceedence is monitored, then one of the 
following two procedures would become effective:
    a. In the event of an exceedence of the PM10 NAAQS or 
Prevention of Significant Deterioration (PSD) increment in the Powder 
River Basin, the State expeditiously uses all necessary compliance 
tools, including enforcement of BAWP requirements in the State permits, 
to eliminate the likelihood of future exceedences of the PM10 
NAAQS or PSD increment caused by the contributing source(s).
    b. If, in the opinion of EPA, the State does not initiate timely 
and appropriate action to address these exceedences, or if timely State 
action does not effectively resolve the issue of exceedences (i.e., a 
violation of the PM10 NAAQS occurs following the timely and 
successful completion of any corrective action required by the State), 
EPA will reevaluate the need for the State to implement a 30-year life-
of-mine study.

2. Conditions Agreed to in the MOA by the State of Wyoming

    By signing the MOA, the State of Wyoming agreed to:
    a. Conduct ambient air monitoring, including overseeing the mines' 
ambient monitoring networks, entering the data into the Aerometric 
Information and Retrieval System (AIRS) database, ensuring attainment 
of the primary and secondary NAAQS for PM10 based upon 40 CFR 
50.6, requiring the minimum frequency of sampling for PM10 based 
on 40 CFR 58.13, and basing violations upon the calculation in 40 CFR 
part 50, appendix K.
    b. Provide EPA with a summary of BAWP for each mine, verification 
that the mines are employing BAWP, and a copy of the Wyoming State 
regulation which provides the State with the authority to enforce BAWP.
    On December 2, 1993 the State of Wyoming, DEQ, submitted copies of 
the regulations requested: the authority to require and enforce BAWP by 
State regulation is contained in Sec. 35-11-801(a) of the Wyoming 
Statutes Ann. (W.S.A.) Section 21(c)(v) of the WAQSR addresses Best 
Available Control Technology measures for mining operations.
    c. Provide EPA with a written opinion from the State's Attorney 
General that the State has the authority to take enforcement action 
against mines based upon violations of the PM10 NAAQS. A letter 
from the Wyoming Attorney General's office set forth the enforcement 
authority of the State of Wyoming, as required by the MOA. The letter 
referred to the general enforcement provision of the state statute 
Sec. 35-11-201, W.S.A., and to section 3(a) of the WAQSR, which 
establishes the ambient standards for particulate matter and includes 
the calculation used for demonstration of attainment from 40 CFR Part 
50, Appendix K. The submittal also included a reference to Sec. 35-11-
701, W.S.A., which allows the Director of DEQ to issue a Notice of 
Violation; a reference to W.S. Sec. 35-11-901(a) which provides for 
civil penalties and injunctive relief against ``any person who violates 
. . . any regulation [or] standard;'' and reference to Sec. 35-11-
901(j), W.S.A., which discusses criminal penalties.

3. PSD Increments

    The issue of particulate matter increment consumption has been 
temporarily resolved by the establishment of a new Powder River Basin 
Section 107 baseline area. This designation effectively ``untriggers'' 
the minor source baseline date in the Powder River Basin 107 area, and 
thus, emissions from coal mines and other minor sources are no longer 
consuming particulate matter increment. Dispersion modeling of coal 
mines for tracking PSD increment may be required at some time in the 
future, if a new or modified major stationary source again triggers the 
minor source baseline date in the Powder River Basin, or by January 1, 
1996 (as provided by the State's definition of ``minor source baseline 
date''), whichever comes first.

C. Response To Comments

    The public was given 30 days to comment on the August 26, 1992 
proposed rule. Comments were received from the State of Wyoming and the 
Wyoming Mining Association. The original written comments can be found 
in the docket to this action. EPA's responses to the relevant comments 
are found below.
    Comment 1: The State expressed its concern with the ambiguity of 
the term ``initial final `ambient air' SIP action'' found in the final 
activity of the Section C--EPA Action, pg. 38649--Table summarizing 
proposed conditions of approval and milestones.
    Response: EPA reviewed the State's concern and agrees with the 
ambiguity. However, since, as explained this notice, EPA is no longer 
requiring the 30-year life-of-mine modeling study, the ambiguity in the 
summary table has been resolved.
    Comment 2: The Wyoming Mining Association expressed its concern 
that the improvements to the monitoring network for the PRB would be 
installed without recognizing the physical surface constraints of the 
terrain.
    Response: Following discussions between the EPA and the State of 
Wyoming's Department of Environmental Quality relating to monitoring in 
the PRB, the State proposed revisions to the PRB monitoring network. 
The monitoring changes, agreed to by EPA, consider surface limitations. 
Additionally, the State has agreed to notify Region VIII when siting a 
monitor.
    Comment 3: The Wyoming Mining Association argued that EPA should 
drop the requirement that ``Wyoming perform a 30-year modeling study--
based upon long term models and contingent upon the development of 
accurate emission factors--after the issuance of EPA procedures and 
discussions on such procedures in order to demonstrate attainment of 
the PM-10 NAAQS or, if applicable, PSD increments, over the permitted 
life of the surface coal mines in the PRB.''
    Response: EPA has responded to this comment, as discussed above in 
Section B: Memorandum of Agreement.

I. Proposed Action

    The purpose of this action is to repropose approval of the State's 
revision to Section 3, Particulates, of the WASQR. Subsequent to the 
original proposal of August 26, 1992, EPA has re-evaluated and modified 
the basis for its proposed approval of the State's SIP submittal. 
Additional information can be found in the August 26, 1992 Federal 
Register Notice and the corresponding technical support document, and 
also in the January 1994 MOA between EPA and DEQ.
    The Agency has reviewed this request for revision of the Federally 
approved SIP for conformance with the provisions of the Amendments 
enacted on November 15, 1990, and has determined that this action 
conforms with those requirements.
    Nothing in this action should be construed as permitting or 
allowing or establishing a precedent for any future request for 
revision to any State implementation plan. Each request for revision to 
any State implementation plan shall be considered separately in light 
of specific technical, economic, and environmental factors and in 
relation to relevant statutory and regulatory requirements.

II. Executive Order (EO) 12866

    This action has been classified as a Table 2 action by the Regional 
Administrator under the procedures published in the Federal Register on 
January 19, 1989 (54 FR 2214-2225), as revised by an October 4, 1993, 
memorandum from Michael Shapiro, Acting Assistant Administrator for Air 
and Radiation. A future notice will inform the general public of these 
tables. On January 6, 1989, the Office of Management and Budget (OMB) 
waived Table 2 and Table 3 SIP revisions from the requirement of 
section 3 of Executive Order 12291 for a period of two years. The U.S. 
EPA has submitted a request for a permanent waiver for Table 2 and 
Table 3 SIP revisions. The OMB has agreed to continue the waiver until 
such a time as it rules on U.S. EPA's request. This request continues 
in effect under Executive Order 12866 which superseded Executive Order 
12291 on September 30, 1993. OMB has exempted this regulatory action 
from E.O. 12866 review.

III. Regulatory Flexibility

    Under the Regulatory Flexibility Act, 5 U.S.C. Section 600 et seq., 
EPA must prepare a regulatory flexibility analysis addressing the 
impact of any proposed or final rule on small entities. 5 U.S.C. 
sections 603 and 604. Alternatively EPA may certify 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 government entities with jurisdiction over population 
of less than 50,000.
    SIP approvals under section 110 and subchapter I, Part D of the 
Clean Air Act do not create any new requirements, but simply approve 
requirements that the State is already imposing. Therefore, because the 
Federal SIP-approval does not impose any new requirements, I certify 
that it does not have a significant impact on small entities affected. 
Moreover, due to the nature of the Federal-State relationship under the 
Act, preparation of a regulatory flexibility analysis would constitute 
federal inquiry into the economic reasonableness of State action. The 
Clean Air Act forbids EPA to base its action concerning SIP's on such 
grounds. Union Electric Co. v. U.S. E.P.A., 427 U.S. 246, 256-66 (S.Ct. 
1976); 42 U.S.C. 7410(a)(2).

List of Subjects in 40 CFR Part 52

    Environmental protection, Air pollution control, Intergovernment 
relations, Particulate matter, Reporting and recordkeeping 
requirements.

    Authority: 42 U.S.C. 7401-7671q.

    Dated: June 1, 1994.
Nola Y. Cooke,
Acting Regional Administrator.
[FR Doc. 94-15311 Filed 6-22-94; 8:45 am]
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