[Federal Register Volume 59, Number 142 (Tuesday, July 26, 1994)]
[Unknown Section]
[Page 0]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 94-17604]


[[Page Unknown]]

[Federal Register: July 26, 1994]


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ENVIRONMENTAL PROTECTION AGENCY
40 CFR Part 52

[MI28-01-6328a-FRL-5014-9]

 

Approval and Promulgation of Implementation Plan; Michigan

AGENCY: United States Environmental Protection Agency (USEPA).

ACTION: Final rule.

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SUMMARY: The United States Environmental Protection Agency is approving 
Michigan's 1990 base year ozone (O3) emission inventory for the 
Grand Rapids and Muskegon nonattainment areas (NAAs) submitted as a 
revision to the Michigan State Implementation Plan (SIP) for O3. 
Michigan's O3 NAAs are the counties of Muskegon, and the two 
county Grand Rapids area (which are the counties of Kent and Ottawa). 
The inventory was submitted by the State of Michigan to satisfy a 
requirement that those States containing O3 nonattainment areas 
(NAAs) classified as marginal to extreme to submit inventories of 
actual O3 season and emissions from all sources in accordance with 
USEPA guidance.
    The rationale for the approval is set forth in this final rule; 
additional information is available at the address indicated below in 
the supporting Technical Support Document (TSD).

DATES: This final rule will be effective September 26, 1994 unless 
notice is received by August 25, 1994 that someone wishes to submit 
adverse comments. If the effective date is delayed, timely notice will 
be published in the Federal Register.

ADDRESSES: Copies of the SIP revision and USEPA's analyses are 
available for inspection at the following address: (It is recommended 
that you telephone Jeanette Marrero at (312) 886-6543 before visiting 
the Region 5 Office).

United States Environmental Protection Agency, Region 5, Air and 
Radiation Division, 77 West Jackson Boulevard, Chicago, Illinois 60604.

    Written comments can be mailed to Carlton T. Nash, Chief, 
Regulation Development Section, Air Toxics and Radiation Branch (AT-
18J), United States Environmental Protection Agency, Region 5, Air and 
Radiation Division, 77 West Jackson Boulevard, Chicago, Illinois 60604.

FOR FURTHER INFORMATION CONTACT: Jeanette Marrero, (312) 886-6543.

SUPPLEMENTARY INFORMATION:

I. Background

    Under the Clean Air Act as amended (including 1990 Amendments) (the 
Act), States have the responsibility to inventory emissions 
contributing to the National Ambient Air Quality Standards (NAAQS) 
nonattainment, to track these emissions over time, and to ensure that 
control strategies are being implemented that reduce emissions and move 
areas towards attainment. Section 182(b) of the Act, 42 U.S.C. 
7511a(b)(1), requires O3 NAAs designated as moderate, serious, 
severe, and extreme to submit a plan within 3 years after 1990 to 
reduce VOC emissions by 15 percent within 6 years after 1990. The 
baseline level of emissions, from which the 15 percent reduction is 
calculated, is determined by adjusting the base year inventory to 
exclude biogenic emissions and to exclude certain emission reductions 
not creditable towards the 15 percent. The 1990 base year emissions 
inventory is the primary inventory from which the periodic inventory, 
the Reasonable Further Progress projection inventory, and the modeling 
inventory are derived. See General Preamble to title I, 57 FR 13502 
(April 16, 1992). Further information on these inventories and their 
purpose can be found in the ``Emission Inventory Requirements for Ozone 
State Implementation Plans,'' United States Environmental Protection 
Agency, Office of Air Quality Planning and Standards (OAQPS), Research 
Triangle Park, North Carolina (March 1991).
    The air quality planning requirements for marginal to extreme 
O3 NAAs are set out in section 182(a)-(e) of the Act. The General 
Preamble to Title I of the Act describes the basis for reviewing SIP 
revisions submitted under Title I of the Act, including requirements 
for the preparation of the 1990 base year inventory. See 57 FR 13502 
(April 16, 1992) and 57 FR 18070 (April 28, 1992). A more detailed 
discussion of the interpretations of Title I of the Act, as well as 
detailed policy guidance on the development of the emission inventory 
is contained in the General Preamble. See 57 FR 18070, Appendix B 
(April 28, 1992).
    Those States containing O3 NAAs classified as marginal to 
extreme are required under section 182(a)(1) of the Act to submit a 
final, comprehensive, accurate, and current inventory of actual O3 
season and weekday emissions from all sources within 2 years of 
enactment (November 15, 1992). The inventory must include both 
anthropogenic (man-made) and biogenic (natural) sources of volatile 
organic compounds (VOCs), nitrogen oxides (NOX), and carbon 
monoxide (CO). The inventory is to address actual VOCs, NOX, and 
CO emissions for the area during peak O3 season, which is 
generally comprised of the summer months. All stationary point and area 
sources, as well as highway mobile sources within the nonattainment 
area, are to be included in the compilation. Available guidance for 
preparing emission inventories is provided in the General Preamble. See 
57 FR 13498 (April 16, 1992).

Summary of the SIP Revision and Criteria in This Notice Action

A. Procedural Background

    USEPA must determine whether a submittal is complete and therefore 
warrants further USEPA review and action. See section 110(k)(1) and 57 
FR
13565 (April 16, 1992). USEPA's completeness criteria for SIP 
submittals are set out at 40 CFR Part 51, Appendix V (1991), as amended 
by 57 FR 42216 (August 26, 1991). USEPA attempts to make completeness 
determinations within 60 days of receiving a submission. However, a 
submittal is deemed complete by operation of law if a completeness 
determination is not made by USEPA 6 months after receipt of the 
submission.
    The emission inventory was adopted by the State and signed by the 
Governor's designee on January 4, 1993 and submitted to USEPA on 
January 5, 1993, as a proposed revision to the SIP. USEPA reviewed 
Michigan's emission inventory to determine completeness shortly after 
its submittal, in accordance with the completeness criteria set out at 
40 CFR Part 51, Appendix V (1991), as amended by 57 FR 42216 (August 
26, 1991). USEPA found the January 5, 1993 submittal to be complete on 
March 4, 1993, and sent a letter dated March 16, 1993 to the State 
indicating that the submittal was complete with the exception of 
evidence of a public hearing.
    The State of Michigan held a public hearing on August 2, 1993 to 
hear public comment on the 1990 base year emission inventory for Grand 
Rapids and Muskegon nonattainment areas and certified the hearing to 
the USEPA in a submittal on November 15, 1993. Supplemental information 
was also submitted to USEPA on November 29, 1993 in response to USEPA's 
preliminary comments on the inventory.
    After reviewing the evidence of the public hearing USEPA sent a 
letter dated January 7, 1994 to Roland Harmes, Director, Michigan 
Department of Natural Resources (MDNR), indicating the completeness of 
the submittal and the next steps to be taken in the review process.
    When reviewing the final inventory, USEPA used the Level I, II, and 
III, O3 nonattainment inventory quality review checklists provided 
by the OAQPS to determine the acceptance and approvability of the final 
emission inventory.
    Level I is essentially the initial level of broad review that USEPA 
perform in order to determine if the inventory preparation guidance 
requirements found in the report ``Emission Inventory Requirements for 
Ozone State Implementation Plans'' (EPA-450/4-91-011) have been met. 
The Level II review addresses completeness, procedures and consistency 
for each of the four general source types in the inventory: stationary 
point and area sources, highway mobile sources, and non-highway mobile 
sources. The data quality is also evaluated.
    The Level III review process is outlined here and consists of 10 
points that the inventory must include. For a base year emission 
inventory to be acceptable, it must meet all of the following criteria:
    1. An approved Inventory Preparation Plan (IPP) was provided and 
the Quality Assurance program contained in the IPP was performed and 
its implementation documented.
    2. Adequate documentation was provided that enabled the reviewer to 
determine the emission estimation procedures and the data sources used 
to develop the inventory.
    3. The point source inventory must be complete.
    4. Point source emissions must have been prepared or calculated 
according to the current USEPA guidance.
    5. The area source inventory must be complete.
    6. The area source emissions must have been prepared or calculated 
according to the current USEPA guidance.
    7. Biogenic emissions must have been prepared according to current 
USEPA guidance or another approved technique.
    8. The method used to develop VMT estimates must follow USEPA 
guidance, which is detailed in the document, ``Procedures for Emission 
Inventory Preparation, Volume IV: Mobile Sources'', United States 
Environmental Protection Agency, Office of Mobile Sources and OAQPS, 
Ann Arbor, Michigan, and Research Triangle Park, North Carolina 
(December 1992). The VMT development methods were adequately described 
and documented in the inventory report.
    9. The MOBILE model was correctly used to produce emission factors 
for each of the vehicle classes.
    10. Non-road mobile emissions were prepared according to current 
EPA guidance for all of the source categories.
    The base year emission inventory will be approved if it passes 
Levels I, II, and III of the review process. Detailed Level I and II 
review procedures can be found in the following document: ``Quality 
Review Guidelines for 1990 Base Year Emission Inventories,'' United 
States Environmental Protection Agency, OAQPS, Research Triangle Park, 
NC, (August 1992). Level III review procedures are specified in a 
memorandum from David Mobley and G.T. Helms to the Regions entitled 
``1990 O3/CO SIP Emission Inventory Level III Acceptance 
Criteria'', October 7, 1992, and revised in a memorandum from John 
Seitz, Director of OAQPS, to the Regional Air Directors, dated June 24, 
1993.
    USEPA completed the Level I and II checklists finding that the 
State followed USEPA guidance, and submitted an acceptable emission 
inventory. Further information on the procedures followed by USEPA in 
completing the review, and the answers to the checklists questions are 
available in the TSD.
    After completing the Level III review, USEPA found that the State 
of Michigan adequately addressed USEPA criteria for providing an 
acceptable inventory of actual emissions in the O3 NAAs. A more 
detailed discussion of the Level III checklist is also included in the 
TSD.

B. Emission Inventory Analysis

    The State of Michigan has met the requirements of section 182(a)(1) 
of the Act by submitting an O3 SIP revision that includes a 
comprehensive, accurate, and current inventory of actual emissions from 
all sources of relevant pollutants in the NAAs, classified marginal to 
extreme. This section of the notice describes the adequacy of 
Michigan's inventory of actual emissions as required by section 
182(a)(1).
    The State of Michigan Department of Natural Resources submitted a 
1990 base year emission inventory for the two areas designated 
nonattainment for O3. Michigan's 2 moderate nonattainment areas 
for O3 include a total of 3 counties: Muskegon County, and 2 Grand 
Rapids counties: Kent and Ottawa. The nonattainment boundaries for 
these areas are described in Federal Register notices dated November 6, 
1991 (56 FR 56778-56779), and November 30, 1992 (57 FR 56771).
    The emissions inventory contains stationary point and area sources, 
highway (on-road) and non-highway (or non-road) mobile sources, and 
biogenic sources within the NAA. Emissions from these groupings of 
emission source types for the two O3 NAAs are presented below in 
the following tables by pollutant (VOC, CO, NOX), in units of tons 
per summer weekday: 

                                      Daily VOC Emissions From All Sources                                      
                                             [Tons/Summer Weekday]                                              
----------------------------------------------------------------------------------------------------------------
                                       Point                    On-road      Non-road                           
            Ozone NAA                  source    Area source     source       source      Biogenic      Total   
                                     emissions    emissions    emissions    emissions    emissions    emissions 
----------------------------------------------------------------------------------------------------------------
Grand Rapids......................        41.52        39.31        52.36        23.04        47.06       199.29
Muskegon..........................         7.28         9.60        13.54         8.77        20.19       58.53 
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                                       Daily CO Emissions From All Sources                                      
                                             [Tons/Summer Weekday]                                              
----------------------------------------------------------------------------------------------------------------
                                                    Point                    On-road      Non-road              
                   Ozone NAA                        source    Area source     source       source       Total   
                                                  emissions    emissions    emissions    emissions    emissions 
----------------------------------------------------------------------------------------------------------------
Grand Rapids...................................         6.17         9.16       444.75       123.61       583.69
Muskegon.......................................         9.27         1.33       114.80        36.50       161.90
----------------------------------------------------------------------------------------------------------------


                                      Daily NOX Emissions From All Sources                                      
                                             [Tons/Summer Weekday]                                              
----------------------------------------------------------------------------------------------------------------
                                                    Point                    On-road      Non-road              
                   Ozone NAA                        source    Area source     source       source       Total   
                                                  emissions    emissions    emissions    emissions    emissions 
----------------------------------------------------------------------------------------------------------------
Grand Rapids...................................       117.58        13.96        65.82        16.47       213.83
Muskegon.......................................        17.30         0.60        15.39         3.76       37.05 
----------------------------------------------------------------------------------------------------------------

    In developing these emission estimates, MDNR followed methodologies 
recommended by USEPA for the preparation of O3 inventories. 
Information on methods used to determine each of the above source 
category groupings is presented in the TSD.

II. Final Rulemaking Action

    USEPA approves the 1990 base year O3 emission inventory as 
meeting the requirements of section 182(a)(1) of the Act, as a revision 
to the O3 SIP for the Muskegon and Grand Rapids areas in Michigan 
designated as nonattainment, classified moderate. These areas include 
counties of Muskegon, Kent, and Ottawa.
    Because USEPA considers this action noncontroversial and routine, 
we are approving it without prior proposal. This action will become 
effective on September 26, 1994. However, if we receive adverse 
comments by August 25, 1994, then USEPA will: (1) publish a document 
that withdraws the final action; and (2) address the comments received 
in a subsequent final rule based on the proposed action published in 
the Proposed Rules section of this Federal Register. The public comment 
period will not be extended or reopened.
    Under the Regulatory Flexibility Act, 5 U.S.C. 600 et seq., USEPA 
must prepare a regulatory flexibility analysis assessing the impact of 
any proposed or final rule on small entities. U.S.C. 603 and 604. 
Alternatively, USEPA 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 populations 
of less than 50,000.
    The SIP approvals under section 110 and subchapter I, part D of the 
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 
Act forbids USEPA to base its actions concerning SIPs on such grounds. 
Union Electric Co. v. U.S. E.P.A., 427 U.S. 246, 256-66 (1976).
    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). On January 6, 1989 the Office of 
Management and Budget (OMB) waved Table 2 and Table 3 SIP revisions (54 
FR 2222) from the requirements of section 3 of Executive Order (EO) 
12291 for a period of 2 years. The USEPA has submitted a request for a 
permanent waiver for Table 2 and 3 SIP revisions. The OMB has agreed to 
continue the waiver until such time of USEPA's request. This request 
continues in effect under EO 12866 which superseded EO 12291, on 
September 30, 1993.
    Nothing in this action should be constructed as permitting or 
allowing or establishing a precedent for any future request for 
revision to any SIP. Each request for revision to any SIP shall be 
considered separately in light of specific technical, economic, and 
environmental factors and in relation to relevant statutory and 
regulatory requirements.

List of Subjects in 40 CFR Part 52

    Environmental protection, Air pollution control, Carbon monoxide, 
Hydrocarbons, Nitrogen dioxide, and Volatile organic compounds.

    Dated: June 14, 1994.
Valdas V. Adamkus,
Regional Administrator.

    40 CFR Part 52 is amended as follows:

PART 52--[AMENDED]

    1. The authority citation for Part 52 continues to read as follows:

    Authority: 42 U.S.C. 7401-7642.

Subpart X--Michigan

    2. Section 52.1174 is amended by adding paragraph (c) to read as 
follows:


Sec. 52.1174  Control strategy: Ozone.

* * * * *
    (c) Approval--On January 5, 1993, the Michigan Department of 
Natural Resources submitted a revision to the ozone State 
Implementation Plan (SIP) for the 1990 base year inventory. The 
inventory was submitted by the State of Michigan to satisfy Federal 
requirements under section 182(a)(1) of the Clean Air Act as amended in 
1990 (the Act), as a revision to the ozone SIP for the Grand Rapids and 
Muskegon areas in Michigan designated nonattainment, classified as 
moderate. These areas include counties of Muskegon, and the two county 
Grand Rapids area (which are the counties of Kent and Ottawa).
* * * * *
[FR Doc. 94-17604 Filed 7-25-94; 8:45 am]
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