[Federal Register Volume 59, Number 160 (Friday, August 19, 1994)]
[Unknown Section]
[Page 0]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 94-19845]


[[Page Unknown]]

[Federal Register: August 19, 1994]


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EVIRONMENTAL PROTECTION AGENCY
40 CFR Part 52

[WI46-01-6590; FRL-5050-3]

 

Withdrawal of Approval of Implementation Plan Item; Wisconsin

AGENCY: Environmental Protection Agency (EPA).

ACTION: Final rule.

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SUMMARY: The United States Environmental Protection Agency withdraws 
the conditional approval of the State of Wisconsin's committal State 
Implementation Plan (SIP) for oxides of nitrogen (NOX) reasonably 
available control technology (RACT) issued on February 1, 1994. 
Approval of this committal allowed the State to delay submitting 
NOX RACT rules until February 1, 1995. On May 6, 1994, the Court 
of Appeals for the District of Columbia Circuit (D.C. Circuit) rejected 
EPA's construction of the conditional approval provision to allow for 
committal SIPs. In light of this decision EPA issued notices of failure 
to submit NOX RACT SIPs to all States that had merely submitted 
committal NOX RACT SIPs. Therefore, both to comply with the 
Court's decision and in the interest of equity with other States, EPA 
believes it is necessary to make this withdrawal effective upon 
publication so that EPA may then immediately issue a finding of failure 
to submit to the State of Wisconsin.

DATES: This final rule will be effective August 19, 1994.

ADDRESSES: Written comments should be sent to: Carlton T. Nash, Chief, 
Regulation Development Section, Air Toxics and Radiation Branch (AT-
18J), EPA, Region 5, 77 West Jackson Boulevard, Chicago, Illinois 
60604-3590.

    Copies of the SIP revision request and the EPA's analysis are 
available for inspection at the following address: (It is recommended 
that you telephone Douglas Aburano at (312) 353-6960 before visiting 
the Region 5 office.) EPA, Region 5, Air and Radiation Division, 77 
West Jackson Boulevard, Chicago, Illinois 60604-3590.

FOR FURTHER INFORMATION CONTACT:

Douglas Aburano, Air Toxics and Radiation Branch (AT-18J), EPA, Region 
5, Chicago, Illinois 60604, (312) 353-6960.

SUPPLEMENTARY INFORMATION

I. Background

    On February 1, 1994, EPA issued a final conditional approval of a 
committal SIP submitted by the State of Wisconsin. By this committal 
SIP, the State committed to adopt for the Milwaukee, Kewaunee, 
Manitowoc, and Sheboygan nonattainment areas reasonably available 
control technology (RACT) for stationary sources of oxides of nitrogen 
(NOX) emissions. The committal SIP consisted of a commitment of 
the State to adopt such rules and a schedule for adoption. The State 
submitted this committal SIP pursuant to an interpretation of the EPA 
that such commitments could be considered for conditional approval 
under section 110(k)(4) of the Act. See Memorandum, dated July 22, 
1992, from Michael H. Shapiro, Deputy Assistant Administrator for Air 
and Radiation, entitled ``Guidelines for State Implementation Plans Due 
November 15, 1992'' (hereafter ``Shapiro Memorandum''); Nitrogen Oxide 
Supplement to the General Preamble, 57 FR 55620 (November 25, 1992).
    On October 9, 1992, the Natural Resources Defense Council (NRDC) 
challenged EPA's committal SIP policy as set forth in the Shapiro 
Memorandum. NRDC v. EPA, No. 92-1535 (D.C. Cir.). Furthermore, on 
December 4, 1992, NRDC challenged EPA's committal SIP policy with 
respect to NOX RACT submittals, as that policy was articulated in 
the NOX Supplement to the General Preamble. NRDC v. EPA, No. 92-
1630 (D.C. Cir.). NRDC sought to consolidate these cases, along with a 
third case challenging EPA's committal SIP policy for inspection and 
maintenance (I/M) SIP submittals. The Court denied NRDC's motions to 
consolidate the cases, but set all three cases for oral argument on the 
same date.
    The three cases were argued before the Court of Appeals for the 
D.C. Circuit on March 3, 1994. On March 8, 1994, the Court issued an 
Order with respect to the I/M challenge, finding that EPA's committal 
SIP policy ``is contrary to law.'' The Court issued an Amended Order on 
April 22, 1994, but did not change this fundamental decision in the 
Amended Order. On May 6, 1994 the Court issued its full opinion as to 
all three cases. In that opinion, the Court reiterated its rejection of 
EPA's construction of the conditional approval provision to allow for 
committal SIPs. See NRDC v. EPA, No. 1535, slip op. at 16 (D.C. Cir., 
May 6, 1994).

II. Action

    Because the Court has clearly rejected EPA's use of the committal 
SIPs policy to extend statutory deadlines, EPA is withdrawing its 
conditional approval of Wisconsin's NOX RACT committal SIP. 
Furthermore, EPA is using the good cause exception of the 
Administrative Procedure Act to take such action without providing an 
opportunity for notice and comment because the Court has clearly 
articulated that such a conditional approval is contrary to law. 5 
U.S.C. 553(b)(B). Notice and opportunity for comment are unnecessary 
because the Court directly addressed the use of conditional approval 
for NOX RACT committal SIPs in its opinion and explicitly rejected 
such a use. Therefore, any comments would not be sufficient to rebut 
this legal interpretation of the Court, and EPA would be obligated to 
take final action withdrawing the conditional approval. Furthermore, 
because the Court has so clearly articulated that such action was 
contrary to law, it is not in the public interest to prolong the 
process by providing notice and an opportunity for comment.
    In addition, EPA also believes that it is proper to invoke the good 
cause exception for making an action effective earlier than 30 days 
after publication in the Federal Register. See 5 U.S.C. 553(d)(3). 
Prompted by the Court's order, by July 8, 1994, EPA issued notices of 
failure to submit NOX RACT SIPs to all States that had merely 
submitted committal NOX RACT SIPs. Because EPA conditionally 
approved of Wisconsin's NOX RACT committal SIP and such 
conditional approval was still effective on July 8, 1994, EPA did not 
issue such a finding to the State of Wisconsin. The State of Wisconsin, 
however, should not be put in a more favorable position than other 
States merely because EPA had not yet taken final action on the other 
States' committal SIPs. Therefore, both to comply with the Court's 
decision and in the interest of equity, EPA believes it is necessary to 
make this withdrawal effective upon publication so that EPA may then 
immediately issue a finding of failure to submit to the State of 
Wisconsin.

III. Summary and Conclusion

    EPA is taking final action to withdraw the conditional approval of 
Wisconsin's NOX RACT committal SIP. This action will be effective 
immediately upon publication of this action in the Federal Register.

IV. Miscellaneous

A. Applicability to Future SIP Decisions

    Nothing in this action should be construed as permitting, allowing 
or establishing a precedent for any future request for revision to any 
SIP. The EPA shall consider each request for revision to the SIP in 
light of specific technical, economic, and environmental factors and in 
relation to relevant statutory and regulatory requirements.

B. Executive Order 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 H. Shapiro, Acting Assistant Administrator for 
Air and Radiation. The OMB has exempted this regulatory action from 
E.O. 12866 review.

C. Regulatory Flexibility

    Under the Regulatory Flexibility Act, 5 U.S.C. 600 et seq., EPA 
must prepare a regulatory flexibility analysis assessing the impact of 
any proposed or final rule on small entities (5 U.S.C. 603 and 604). 
Alternatively, EPA may certify that the rule will not have a 
significant 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.
    This approval does not create any new requirements. Therefore, I 
certify that this action does not have a significant impact on any 
small entities affected. Moreover, due to the nature of the Federal-
State relationship under the Act, preparation of the regulatory 
flexibility analysis would constitute Federal inquiry into the economic 
reasonableness of the State action. The Act forbids EPA 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).

D. Petitions for Judicial Review

    Under section 307(b)(1) of the Act, petitions for judicial review 
of this action must be filed in the United States Court of Appeals for 
the appropriate circuit by October 18, 1994. 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, Incorporation by 
reference, Intergovernmental relations, Oxides of nitrogen, Ozone, 
Reporting and recordkeeping requirements.

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

    Dated: July 25, 1994.
Robert Springer,
Acting 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. 7401-7671q.

Subpart YY--Wisconsin

    2. Subpart YY is amended by removing section 52.2569.
    3. Section 52.2585 is amended by removing and reserving paragraph 
(c).

[FR Doc. 94-19845 Filed 8-18-94; 8:45 am]
BILLING CODE 6560-50-M