[Federal Register Volume 59, Number 163 (Wednesday, August 24, 1994)]
[Unknown Section]
[Page 0]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 94-20738]


[[Page Unknown]]

[Federal Register: August 24, 1994]


-----------------------------------------------------------------------


ENVIRONMENTAL PROTECTION AGENCY
40 CFR Part 52

[OR-16-1-5536a; OR-43-1-6523a; FRL-5025-8]

 

Approval and Promulgation of State Implementation Plans: Oregon

AGENCY: Environmental Protection Agency (EPA).

ACTION: Final rule.

-----------------------------------------------------------------------

SUMMARY: EPA approves the state implementation plan (SIP) revision 
submitted by the State of Oregon for the purpose of bringing about the 
attainment of the national ambient air quality standards (NAAQS) for 
particulate matter with an aerodynamic diameter less than or equal to a 
nominal 10 micrometers (PM-10). The implementation plan was submitted 
by the State to satisfy certain Federal requirements for an approvable 
moderate nonattainment area PM-10 SIP for the Eugene-Springfield, 
Oregon, PM-10 nonattainment area. In addition, EPA approves title 16 of 
the Lane Regional Air Pollution Authority for inclusion into the Oregon 
SIP. Title 16 establishes permanent rules prohibiting the use of 
woodstoves and other solid-fuel space heating devices under certain 
circumstances in Lane County and the cities of Eugene and Springfield, 
Oregon.

DATES: This final rule will be effective on October 24, 1994 unless 
adverse or critical comments are received by September 23, 1994. If the 
effective date is delayed, timely notice will be published in the 
Federal Register.

ADDRESSES: Written comments should be addressed to: Montel Livingston, 
SIP Manager, Air & Radiation Branch (AT-082), EPA, Docket #OR-16-1-
5536, 1200 Sixth Avenue, Seattle, Washington 98101.
    Documents which are incorporated by reference are available for 
public inspection at the Air and Radiation Docket and Information 
Center, EPA, 401 M Street, SW., Washington, DC 20460. Copies of 
material submitted to EPA may be examined during normal business hours 
at the following locations: EPA, Region 10, Air & Radiation Branch, 
1200 Sixth Avenue (AT-082), Seattle, Washington 98101, and the Oregon 
Department of Environmental Quality, 811 SW. Sixth Avenue, Portland, 
Oregon 97204-1390.

FOR FURTHER INFORMATION CONTACT: Rindy Ramos, EPA, 1200 Sixth Avenue, 
AT-082, Seattle, Washington, 98101, (206) 553-6510.

SUPPLEMENTARY INFORMATION:

I. Background

    The area within the Eugene-Springfield, Oregon, Urban Growth 
Boundary (UGB), was designated nonattainment for PM-10 and classified 
as moderate under sections 107(d)(4)(B) and 188(a) of the Clean Air Act 
(CAA), upon enactment of the Clean Air Act Amendments (CAAA) of 
1990.\1\ See 56 FR 56694 (November 6, 1991) and 40 CFR 81.339. The air 
quality planning requirements for moderate PM-10 nonattainment areas 
are set out in subparts 1 and 4 of title I of the Act.\2\ EPA has 
issued a ``General Preamble'' describing EPA's preliminary views on how 
EPA intends to review SIP's and SIP revisions submitted under title I 
of the Act, including those state submittals containing moderate PM-10 
nonattainment area SIP requirements (see generally 57 FR 13498 (April 
16, 1992) and 57 FR 18070 (April 28, 1992)). Because EPA is describing 
its interpretations here only in broad terms, the reader should refer 
to the General Preamble for a more detailed discussion of the 
interpretations of Title I advanced in this approval and the supporting 
rationale. In this rulemaking action for the State of Oregon's moderate 
PM-10 SIP for the Eugene-Springfield nonattainment area, EPA is 
approving its interpretations, taking into consideration the specific 
factual issues presented. Additional information supporting EPA's 
action on this particular area is available for inspection at the 
address indicated above. EPA will consider any timely comments received 
by the date indicated above.
---------------------------------------------------------------------------

    \1\The 1990 Amendments to the Clean Air Act made significant 
changes to the Act. See Public Law No. 101-549, 104 Stat. 2399. 
References herein are to the Clean Air Act, as amended (``the 
Act''). The Clean Air Act is codified, as amended, in the U.S. Code 
at 42 U.S.C. 7401, et seq.
    \2\Subpart 1 contains provisions applicable to nonattainment 
areas generally and subpart 4 contains provisions specifically 
applicable to PM-10 nonattainment areas. At times, subpart 1 and 
subpart 4 overlap or conflict. EPA has attempted to clarify the 
relationship among these provisions in the ``General Preamble'' and, 
as appropriate, in this document and supporting information.
---------------------------------------------------------------------------

    Those states containing initial moderate PM-10 nonattainment areas 
(those areas designated nonattainment under section 107(d)(4)(B)) were 
required to submit, among other things, the following provisions by 
November 15, 1991:
    1. Provisions to assure that reasonably available control measures 
(RACM) (including such reductions in emissions from existing sources in 
the area as may be obtained through the adoption, at a minimum, of 
reasonably available control technology (RACT)) shall be implemented no 
later than December 10, 1993;
    2. Either a demonstration (including air quality modeling) that the 
plan will provide for attainment as expeditiously as practicable but no 
later than December 31, 1994, or a demonstration that attainment by 
that date is impracticable;
    3. Quantitative milestones which are to be achieved every 3 years 
and which demonstrate reasonable further progress (RFP) toward 
attainment by December 31, 1994; and
    4. Provisions to assure that the control requirements applicable to 
major stationary sources of PM-10 also apply to major stationary 
sources of PM-10 precursors except where the Administrator determines 
that such sources do not contribute significantly to PM-10 levels which 
exceed the NAAQS in the area. See sections 172(c), 188, and 189 of the 
Act.
    States with initial moderate PM-10 nonattainment areas were 
required to submit a permit program for the construction and operation 
of new and modified major stationary sources of PM-10 by June 30, 1992 
(see section 189(a)). Such states also must submit contingency measures 
by November 15, 1993, which become effective without further action by 
the state or EPA, upon a determination by EPA that the area has failed 
to achieve RFP or to attain the PM-10 NAAQS by the applicable statutory 
deadline (see section 172(c)(9) and 57 FR 13543-13544). Oregon has made 
submittals in response to both of the above described requirements. EPA 
intends to address that submittal containing the new source review 
permit program in a separate document.

II. This Action

    Section 110(k) of the Act sets out provisions governing EPA's 
review of SIP submittals (see 57 FR 13565-13566). In this action, EPA 
is approving the plan revision submitted to EPA on November 15, 1991. 
EPA has determined that the submittal meets all of the applicable 
requirements of the Act.

Analysis of State Submission

1. Procedural Background
    The Act requires states to observe certain procedural requirements 
in developing implementation plans and plan revisions for submission to 
EPA. Section 110(a)(2) of the Act provides that each implementation 
plan submitted by a state must be adopted after reasonable notice and 
public hearing.\3\ Section 110(l) of the Act similarly provides that 
each revision to an implementation plan submitted by a state under the 
Act must be adopted by such state after reasonable notice and public 
hearing.
---------------------------------------------------------------------------

    \3\Also Section 172(c)(7) of the Act requires that plan 
provisions for nonattainment areas meet the applicable provisions of 
section 110(a)(2).
---------------------------------------------------------------------------

    EPA also must determine whether a submittal is complete and 
therefore warrants further EPA review and action (see section 110(k)(1) 
and 57 FR 13565). EPA's completeness criteria for SIP submittals are 
set out at 40 CFR part 51, appendix V. EPA 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 EPA six months after receipt 
of the submission.
    The State of Oregon and Lane Regional Air Pollution Authority 
(LRAPA) held a concurrent public hearing on the original Eugene-
Springfield PM-10 plan on January 30, 1990. On January 31, 1991, the 
Oregon Environmental Quality Commission (OEQC), adopted the plan as 
part of the Oregon SIP. The State and LRAPA subsequently held a 
concurrent public hearing on an addendum to the plan on October 1, 
1991, in Springfield, Oregon. This addendum, including appendix L, was 
adopted by the Oregon Department of Environmental Quality (ODEQ) on 
November 8, 1991. The original plan and the addendum were submitted to 
EPA on November 15, 1991, as a revision to the SIP.
    The SIP revision was reviewed by EPA to determine completeness 
shortly after its submittal, in accordance with the completeness the 
criteria set out at 40 CFR part 51, appendix V. A letter dated May 7, 
1992, was forwarded to the Director of ODEQ indicating the completeness 
of the submittal and the next steps to be taken in the review process. 
In this action EPA is approving the State of Oregon's PM-10 SIP 
submittal for the Eugene-Springfield PM-10 nonattainment area and 
invites public comment on the action.

2. Accurate Emissions Inventory

    Section 172(c)(3) of the Act requires that nonattainment plan 
provisions include a comprehensive, accurate, current inventory of 
actual emissions from all sources of relevant pollutants in the 
nonattainment area. The emissions inventory should also include a 
comprehensive, accurate, and current inventory of allowable emissions 
in the area. See, e.g., section 110(a)(2)(K) of the Act. Because the 
submission of such inventories are necessary to an area's attainment 
demonstration (or demonstration that the area cannot practicably 
attain), the emissions inventories must be received with the submission 
(see 57 FR 13539).
    The 1985 base year emission inventory developed for the Eugene-
Springfield UGB identified the major sources of PM-10 concentrations 
during 24-hour worst case winter periods as residential wood combustion 
(68%), industrial emissions (26%), fugitive dust (4%), and other 
sources, including but not limited to, transportation, open and 
prescribed burning (2%). Annual emissions for the same timeframe were 
residential wood combustion (34%), industrial emissions (54%), fugitive 
dust (6%), and other sources (5%).
    EPA is approving the emissions inventory because it generally 
appears to be accurate and comprehensive, and provides a sufficient 
basis for determining the adequacy of the attainment demonstration for 
this area consistent with the requirements of sections 172(c)(3) and 
110(a)(2)(K) of the Clean Air Act.4
---------------------------------------------------------------------------

    \4\The EPA issued guidance on PM-10 emissions inventories prior 
to the enactment of the Clean Air Act Amendments in the form of the 
1987 PM-10 SIP Development Guideline. The guidance provided in this 
document appears to be consistent with the Act. See section 193 of 
the Act.
---------------------------------------------------------------------------

3. RACM (Including RACT)
    As noted, the initial moderate PM-10 nonattainment areas must 
submit provisions to assure that RACM (including RACT) are implemented 
no later than December 10, 1993 (see sections 172(c)(1) and 
189(a)(1)(C)). The General Preamble contains a detailed discussion of 
EPA 's interpretation of the RACM (including RACT) requirement (see 57 
FR 13539-13545 and 13560-13561).
    LRAPA performed a technical and cost analysis to evaluate available 
control measures. This analysis is presented in appendix E and F to the 
SIP. Using EPA modeling guidelines and protocols, the analysis showed 
that with some exceptions, local industrial sources currently meet or 
exceed RACT. Further, RACM (including RACT) does not require the 
implementation of all available control measures where an area 
demonstrates timely attainment and the implementation of additional 
controls would not expedite attainment. 57 FR 13540-13544. Based on the 
available control measures adopted (described below), the SIP 
demonstrates that attainment of the PM-10 NAAQS will be achieved by 
December 31, 1992 (two years prior to the CAA attainment date of 
December 31, 1994). The SIP also demonstrates continued maintenance of 
the NAAQS between December 1992 and the year 2000. PM-10 emissions from 
industrial point sources (26%), primarily wood products industry, had 
substantially less of an impact on the 24-hour standard than 
residential wood combustion (68%). A cost benefit comparison of 
alternate strategies showed that implementation of a woodsmoke 
curtailment program would achieve expeditious air quality improvements 
at a much lower cost than would additional point source control. 
Accordingly, EPA is approving the existing industrial controls as 
meeting the RACM (including RACT) requirement.

A. Mandatory Woodburning Curtailment Program

    A mandatory woodburning curtailment program became fully 
implemented on November 1, 1991. Each of the three jurisdictions in the 
nonattainment area enacted ordinances prohibiting the use of solid-fuel 
space heating devices under certain conditions. Enforcement of the 
ordinances have been delegated by Lane County, the City of Eugene, and 
the City of Springfield to LRAPA. Prior to the mandatory program, a 
voluntary program had been in place for five years. The following is a 
brief discussion of the program's key elements. For a detailed analysis 
and discussion, the reader is referred to the Technical Support 
Document (TSD) that corresponds with this action.
    During the 1992/1993 woodheating season, LRAPA used a combination 
advertising campaign using radio and billboard advertising, press 
releases and taped television public service announcements. In 
addition, during the last 2\1/2\ years, there have been approximately 
20 visits with local schools and several presentations to various local 
groups, e.g. real estate, church. The purpose of these visits was to 
discuss pertinent elements of the curtailment program, proper woodstove 
operation and maintenance, and air pollution in general.
    Woodburning advisories are made daily by 1 p.m. between the first 
of November and the end of February via local television and radio 
stations. An empirical formula (based on the previous 24-hour 
nephelometer readings and the predicted afternoon ventilation index) is 
used to predict the present day's PM-10 level. The predicted PM-10 
level determines whether a green, yellow, stage I red, or stage II red 
advisory is issued.
    Woodburning curtailment advisories are issued at four levels; 1) a 
green advisory is made when the ambient PM-10 concentration is expected 
to be 74 g/m3 or less, 2) a yellow advisory is issued when the 
ambient PM-10 concentration is expected to be greater than 75 
g/m3 but less than 88 g/m3, 3) a Stage I Red advisory 
is issued when the ambient concentration is expected to be greater than 
88 g/m3 but less than 125 g/m3, 4) a State II Red 
advisory is issued when the ambient concentration is expected to be 
greater than 125 g/m3.
    During a Stage I Red Advisory, any solid fuel space heating device 
(e.g. certified woodstove, uncertified woodstove, or pellet stove) may 
be operated provided it does not emit visible emissions. Exemptions to 
complying with this advisory include sole source and low income.
    During a State II Red Advisory, sole source and low income 
exemptions are granted. Also, pellet stoves may be operated provided 
they do not emit visible emissions. All other solid fuel space heating 
devices are prohibited from operation.
    As stated above, LRAPA can grant an exemption from complying with a 
Stage I and Stage II Red Advisory provided that the solid fuel space 
heating device is the sole source of heat for a specific residence. 
Individual exemptions expire on July 1 of each year and must be renewed 
annually. This exemption shall not be issued by LRAPA after June 30, 
1996.
    An exemption based on economic need can also be granted. Persons in 
charge of property who satisfy criteria established under the Low 
Income Energy Assistance Program as administered by the Lane County 
Housing Authority and as established by the United States Department of 
Energy are exempt from Stage I and Stage II Red Advisories. Individual 
exemptions shall expire on July 1 of each year and must be renewed 
annually.
    The woodburning curtailment program has a surveillance and 
enforcement element. A standard operating procedure and evaluation 
measure has been developed for use during red advisories. During 
surveillance and effectiveness evaluations, infra-red detectors are 
used at night to detect 'hot' chimneys. During a red advisory, visible 
emissions will be documented and a Notice of Violation, including those 
with civil penalties, will be issued. Persons who receive the notice 
may either pay the fine or appeal the civil penalty. Fines range from 
$50.00 to $400.00.
    LRAPA requests a 70% reduction credit for the curtailment program. 
This requested credit is greater than the 50% generally suggested by 
EPA for a mandatory curtailment program. However, the recommended 50% 
credit is viewed by EPA as a ``starting point in assessing the 
effectiveness of residential wood combustion control programs.'' Final 
judgement of the amount of credit to be granted, is determined by EPA 
regional offices, based on the program elements outlined in EPA's 
Guidance Document for Residential Wood Combustion Emission Control 
Measures, EPA-4450/2-89-015, September 1989.
    Since implementation of the mandatory program in November 1991, 
ambient PM-10 concentrations have not deteriorated to the point where 
the issuance of a red advisory has been needed to protect the NAAQS. 
Therefore, LRAPA has not conducted a compliance survey during a red 
advisory. However; during the 1991/1992 and the 1992/1993 woodheating 
seasons, LRAPA did conduct several surveys during green and yellow 
advisories. These surveys indicate that between 52% and 78% of the 
dwellings equipped with woodstoves were not using wood as a source of 
home heat.
    Even though results from the above surveys are somewhat 
inconclusive since the surveys were conducted during green and yellow 
advisories, the results do indicate that LRAPA's public education/
awareness program is quite effective. Additionally, preliminary results 
from a 1992 wood user's survey indicates that between the 1985 base 
year and 1992, annual PM-10 emissions from home heating have declined 
by approximately 60%. This corresponds to a 40% reduction in cord wood 
consumption.
    Considering the above program elements, survey results, and the 
phasing out of the sole source exemptions, EPA believes that the 70% 
credit is achievable and is being achieved and therefore proposes to 
accept the credit claimed. EPA has also considered that fact that the 
area has not violated the 24-hour standard since January, 1987 (first 
year of a voluntary curtailment program), and has never violated the 
annual standard. Accordingly, EPA has determined that the mandatory 
curtailment program is sufficient to meet RACM.
    Additionally, even though the area is not in violation of the 
annual standard, the expected emission reductions to be achieved by 
this strategy will help insure continued compliance with the annual 
standard.

B. Other Sources

    Where sources of PM-10 contribute insignificantly to the PM-10 
problem in the area, EPA's policy is that it would be unreasonable to 
require the sources to implement potentially available control measures 
and, therefore, the RACM requirement does not dictate the 
implementation of such controls. (57 FR 13540).
    LRAPA determined through its analysis of the nonattainment area 
that emissions from fugitive dust sources and emissions from prescribed 
and open burning activities were not significant sources of PM-10 
emissions. On an annual basis, fugitive dust accounts for 6% of the PM-
10 emission inventory. Emissions from prescribed and open burning added 
together account for less than 1% of the nonattainment area's PM-10 
emissions on an annual basis. Further, as indicated above, the control 
measures contained in the SIP provide for expeditious attainment of the 
PM-10 NAAQS. Therefore, the attainment plan does not include additional 
control measures for these sources.
    EPA has reviewed ODEQ's submittals and associated documentation and 
concluded that they adequately justify the control measures to be 
implemented. Implementation of the Eugene-Springfield PM-10 
nonattainment plan control strategy will result in the attainment of 
the PM-10 NAAQS as expeditiously as practicable and no later than 
December 31, 1994. By this document, EPA is approving ODEQ's control 
strategy as satisfying the RACM (including RACT) requirement.
4. Demonstration
    As noted, the initial moderate PM-10 nonattainment areas must 
submit a demonstration (including air quality modeling) showing that 
the plan will provide for attainment as expeditiously as practicable 
but no later than December 31, 1994 (see section 189(a)(1)(B) of the 
Act). The General Preamble sets out EPA's guidance on the use of 
modeling for moderate area attainment demonstrations (57 FR 13539). 
Alternatively, the State must show attainment by December 31, 1994, or 
that attainment is impracticable. The 24-hour PM-10 NAAQS is 150 
micrograms/cubic meter (g/m3), and the standard is attained 
when the expected number of days per calendar year with a 24-hour 
average concentration above 150 g/m3 is equal to or less than 
one (see 40 CFR 50.6). The annual PM-10 NAAQS is 50 g/m3, and 
the standard is attained when the expected annual arithmetic mean 
concentration is less than or equal to 50 g/m3 (id.).
    LRAPA conducted an attainment demonstration based on dispersion 
modeling; which, according to EPA's PM-10 SIP Development Guideline 
(June 1987), is an acceptable method. In order to select the 
appropriate model, LRAPA followed EPA's ``Protocol for Determining the 
Best Performing Model'' (September 1987) in LRAPA's evaluation of the 
Oregon GRID, WYNDvalley, and ISCST dispersion models. Based on its 
analysis, Oregon GRID performed within EPA's approved limits of 
accuracy and was determined to be the best performing model.
    The time period selected for the 24-hour modeling analysis was from 
December 11, 1985 through December 28, 1985. This was a period of 
extensive poor ventilation with no precipitation, cold temperatures 
(average daily temperatures near zero degrees centigrade) and light 
winds (average daily wind speed of 1 to 2 meters per second). In 
addition, 12 of the 15 exceedances of the 24-hour standard occurred 
during December 1985. Since the area is in attainment with the annual 
standard, LRAPA only modeled for attainment purposes the 24-hour 
standard.
    The uncontrolled 1992 modeled design value was determined to be 333 
g/m3. Based on the modeling analysis, in order to attain the 
24-hour standard throughout the airshed, a 65% reduction in PM-10 
emissions at an unmonitored site (referred to in the study as the 
Scenic site) is needed. The modeling exercise also determined that 
approximately 97% of the local impact at this site (Scenic site) is 
from home wood heating. After applying the 70% reduction in wood smoke 
emissions due to the curtailment program, the modeling exercise 
demonstrates that attainment of the 24-hour standard can be achieved at 
this site and throughout the airshed. The demonstration predicted that 
the 24-hour design concentration in the attainment year of 1992 will be 
below 150 g/m3, thus demonstrating attainment of the 24-hour 
PM-10 NAAQS. The SIP also demonstrates maintenance of the NAAQS through 
the year 2000. Ambient data show that the area has never approached an 
exceedance of the annual standard. Since no violations of the annual 
NAAQS have been noted and the attainment demonstration shows attainment 
of the 24-hour NAAQS, no violations of the annual NAAQS are likely. 
Therefore, EPA has determined that ODEQ has adequately demonstrated 
that the annual standard has been attained in the Eugene-Springfield 
nonattainment area. More detailed description of the attainment 
demonstration is contained in the TSD.
5. PM-10 Precursors
    The control requirements which are applicable to major stationary 
sources of PM-10, also apply to major stationary sources of PM-10 
precursors unless EPA determines such sources do not contribute 
significantly to PM-10 levels in excess of the NAAQS in that area (see 
section 189(e) of the Act). The General Preamble contains guidance 
addressing how EPA intends to implement section 189(e) (see 57 FR 
13539-13540 and 13541-13542).
    As previously discussed, LRAPA's technical analysis of candidate 
control measures indicated that emissions from industrial point sources 
had substantially less of an impact on the 24-hour standard than 
residential wood combustion. Previous violations of the 24-hour 
standard occurred during periods of extensive poor ventilation 
(stagnation conditions) and cold temperatures. This further supports 
the dispersion modeling exercise which indicated that approximately 97% 
of the local impact at the highest modeled site in the UGB was from 
woodsmoke emissions and that implementation of the woodsmoke 
curtailment program would expeditiously demonstrate attainment with the 
PM-10 NAAQS. Therefore, EPA believes that sources of PM-10 precursors 
do not contribute significantly to PM-10 levels in excess of the NAAQS 
and hereby grants the exclusion from control requirements authorized 
under section 189(e) for major stationary sources of PM-10 precursors.
    Note that while EPA is making a general finding for this area about 
precursor contribution to PM-10 NAAQS exceedances, this finding is 
based on the current character of the area including, for example, the 
existing mix of sources in the area. It is possible, therefore, that 
future growth could change the significance of precursors in the area.
6. Quantitative Milestones and Reasonable Further Progress
    The PM-10 nonattainment area plan revisions demonstrating 
attainment must contain quantitative milestones which are to be 
achieved every three years until the area is redesignated attainment 
and which demonstrates RFP, as defined in section 171(1), toward 
attainment by December 31, 1994 (see section 189(c) of the CAA).
    While section 189(c) plainly provides that quantitative milestones 
are to be achieved until an area is redesignated attainment, it is 
silent in indicating the starting point for counting the first 3-year 
period or how many milestones must be initially addressed. In the 
General Preamble, EPA addressed the statutory gap in the starting point 
for counting the 3-year milestone, indicating that it would begin from 
the due date for the applicable implementation plan revision containing 
the control measures for the area (i.e., November 15, 1991 for initial 
moderate PM-10 nonattainment areas) (see 57 FR 13539).
    As to the number of milestones, EPA believes that at least two 
milestones must be initially addressed. Thus, submittal to address the 
SIP revisions due on November 15, 1991, for the initial moderate PM-10 
nonattainment areas must demonstrate that two milestones will be 
achieved (First milestone: November 15, 1991, through November 15, 
1994; Second milestone: November 15, 1994, through November 15, 1997).
    For the initial PM-10 nonattainment areas that demonstrate 
attainment, the emissions reduction progress made between the SIP 
submittal (due date of November 15, 1991) and the attainment date of 
December 31, 1994 (46 days beyond the November 15, 1994 milestone date) 
will satisfy the first quantitative milestone (see 57 FR 13539). For 
areas that demonstrate timely attainment of the PM-10 NAAQS, the 
milestones beyond the attainment achievement date should, at a minimum, 
provide for continued maintenance of the standards.5
---------------------------------------------------------------------------

    \5\Section 189(c) of the Act provides that quantitative 
milestones are to be achieved ``until the area is redesignated 
attainment.'' However, this endpoint for quantitative milestones is 
speculative because redesignation of an area as attainment is 
contingent upon several factors and future events. Therefore, EPA 
believes it is reasonable for States to initially address at least 
the first two milestones. Addressing two milestones will ensure that 
the State continues to maintain the NAAQS beyond the attainment date 
for at least some period during which an area could be redesignated 
attainment. However, in all instances, additional milestones must be 
addressed if an area is not redesignated attainment.
---------------------------------------------------------------------------

    This SIP demonstrates attainment of the PM-10 NAAQS by December 31, 
1992, and maintenance of the NAAQS through the year 2000, satisfying 
three milestones. Therefore, EPA is approving the submittal as meeting 
the quantitative milestone requirement currently due. Finally, once a 
milestone has passed, the State will have to demonstrate that the 
milestone was, in fact, achieved for the Eugene-Springfield area as 
provided in section 189(c)(2) of the Act.
7. Enforceability Issues
    All measures and other elements in the SIP must be enforceable by 
LRAPA, ODEQ and EPA (See sections 172(c)(6), 110(a)(2)(A) and 57 FR 
13556). EPA criteria addressing the enforceability of SIP's and SIP 
revisions were stated in a September 23, 1987 memorandum (with 
attachments) from J. Craig Potter, Assistant Administrator for Air and 
Radiation, et al. (see 57 FR 13541). Nonattainment area plan provisions 
must also contain a program that provides for enforcement of the 
control measures and other elements in the SIP (see section 
110(a)(2)(C)).
    The woodsmoke curtailment program contained in the SIP was 
addressed above under the section headed ``RACM (including RACT).'' The 
SIP provides that this control strategy applies throughout the entire 
nonattainment area.
    Lane County, and the cities of Eugene and Springfield have enacted 
ordinances prohibiting the use of solid-fuel space heating devices 
under certain conditions (air stagnation episodes).
    Lane County enacted Ordinance Number 9-90 (Lane Code (``LC'') 
9.120-9.160). Eugene enacted Ordinance Number 19731 (Eugene Code 
(``EC'') 6.250-6.270) and Springfield enacted Ordinance Number 5546 
(Springfield Code (``SC'') 4-8-4). Each municipality also either 
delegated enforcement of the ordinances to LRAPA (L.C. Sec. 9.145; 
Springfield Code Sec. 4-8-4(4)), or authorized the City Manager to 
delegate enforcement to LRAPA (Eugene Code Sec. 6.265). By 
Administrative Order No. 44-92-10, the Eugene City Manager has 
delegated authority to LRAPA to administer the ordinance. Thus, each 
jurisdiction has authorized LRAPA to enforce the solid-fuel space 
heating device ordinances. In addition, each jurisdiction has 
authorized LRAPA to use its own regulations and procedures to enforce 
the ordinances and to impose penalties.
    The LRAPA Board of Directors adopted title 16, Home Wood Heating 
Curtailment Program Enforcement, on July 13, 1993. This rule is the 
mechanism LRAPA will employ in implementing the above ordinances. It 
contains, among other things, a civil penalty schedule, a notice of 
violation procedure, and the procedure to appeal a civil penalty. EPA 
is approving the above ordinances and title 16 as part of the SIP.
    The Eugene-Springfield SIP does not contain additional point source 
controls to attain the standard, however, existing and federally 
approved point source emission limitations are relied upon to maintain 
and demonstrate attainment with the PM-10 NAAQS. EPA determined that 
because the five-day advance notice provision required by ORS.126(1) 
(1991) bars civil penalties from being imposed for certain permit 
violations, ORS 468 fails to provide the adequate enforcement authority 
that a state must demonstrate to obtain SIP approval, as specified in 
Section 110 of the Clean Air Act and 40 CFR 51.230. Accordingly, the 
requirement to provide such notice would preclude Federal approval of a 
PM-10 nonattainment area SIP revision.
    EPA notified Oregon of the deficiency. To correct the problem, the 
Governor of Oregon signed into law new legislation amending ORS 468.126 
on September 3, 1993. This amendment added paragraph 468.126(2)(e) 
which provides that the five-day advance notice required by ORS 
468.126(1) does not apply if the notice requirement will disqualify a 
state program from Federal approval or delegation. ODEQ responded to 
EPA's understanding of the application of 468.126(2)(e) and agreed that 
if Federal statutory requirements preclude the use of the five-day 
advance notice provision, no advance notice will be required for 
violations of SIP requirements contained in permits.
    ODEQ's submittal and TSD contain further information on 
enforceability requirements. In addition, the TSD contains a discussion 
of the personnel and funding intended to support effective 
implementation of the control strategy.
8. Contingency Measures
    As provided in section 172(c)(9) of the Act, all moderate 
nonattainment area SIP's that demonstrate attainment must include 
contingency measures. See generally 57 FR 13543-13544. These measures 
must be submitted by November 15, 1993 for the initial moderate 
nonattainment areas. Contingency measures should consist of other 
available measures that are not part of the area's control strategy. 
These measures must take effect without further action by the State or 
EPA, upon a determination by EPA that the area has failed to make RFP 
or attain the PM-10 NAAQS by the applicable statutory deadline. The 
Eugene-Springfield nonattainment area SIP contains the following 
contingency measures:
    a. Uncertified woodstove removal: the 1991 Oregon Legislature 
authorized by statute the removal and destruction of uncertified 
woodstoves upon sale of a home within any area that fails to meet the 
PM-10 SIP attainment date of December 31, 1994. EPA approved these 
rules (OAR 340-34-200 through 215) as part of the Oregon SIP on June 9, 
1992 (57 FR 24373).
    b. Fugitive Dust: to reduce track out onto public roads, 
construction sites for commercial, industrial or residential 
subdivisions within the Eugene-Springfield nonattainment area are 
required to provide paved track out strips or mud cleaning stations on 
site. This rule is found in title 39, section 39-055 of LRAPA's 
contingency measure regulations.
    In this action, EPA is approving in its entirety title 39 entitled 
Contingency for PM-10 Sources in Eugene-Springfield Non-Attainment 
Area. (Sections 39-001, 39-005, 39-010, 39-015, 39-020, 39-025, 39-030, 
39-035, 39-040, 39-050, 39-055, and 39-060 (November 1991)).
    c. Open Burning: all open burning would be banned within the 
nonattainment area. This rule is found in section 39-060 of title 39.
    d. Industrial Controls: a contingency plan was developed to reduce 
industrial emissions should the area fail to attain by the CAA 
deadline. The regulations requiring controls more stringent than those 
currently required on significant industrial sources of PM-10 are 
contained in title 39. Industrial sources addressed in the plan include 
wood-waste boilers, veneer plants and dryers, particleboard plants and 
dryers, air conveying systems and kraft pulp mills.
    The industrial contingency limits for the most part reflect ODEQ's 
industrial source rules for the Medford-Ashland non-attainment area 
(OAR 340-30-005 through 230). The one exception is the contingency 
standard for pulp mills. Should the area fail to attain the NAAQS, 
kraft pulp mills would be required to meet EPA's New Source Performance 
Standards (NSPS). These control measures would become effective upon a 
determination by EPA that the area has failed to make reasonable 
further progress (RFP) or to attain the PM-10 NAAQS and, they would be 
implemented over a period of two years.
    LRAPA estimates that implementation of the contingency measures 
would reduce wood heating emissions by an additional .5 ton per day and 
industrial emissions would be reduced by 6.2 tons per day resulting in 
additional reductions of 45% on a daily basis. On an annual basis, wood 
heating emissions would be reduced by 53 tons per year and industrial 
emissions by 1,800 tons per year resulting in additional reductions of 
over 2000%.
    The SIP provides that each of these measures can take affect 
without further action by the State or EPA, should EPA determine that 
the Eugene-Springfield nonattainment area has failed to achieve RFP or 
to attain the PM-10 standard by the statutory attainment date of 
December 31, 1994.
    EPA is approving the Eugene-Springfield nonattainment area 
contingency measures.

III. Implications of This Action

    EPA is approving the plan revision and addendum submitted to EPA 
for the Eugene-Springfield nonattainment area on November 15, 1991. 
Among other things, LRAPA has demonstrated that the Eugene-Springfield 
moderate PM-10 nonattainment area will attain the PM-10 NAAQS by 
December 31, 1992. Note that EPA's action includes approval of the 
contingency measures for the Eugene-Springfield nonattainment area. In 
addition, EPA approves title 16 of the Lane Regional Air Pollution 
Authority. Title 16 establishes permanent rules prohibiting the use of 
woodstoves and other solid-fuel space heating devices under certain 
circumstances in Lane County and the cities of Eugene and Springfield, 
Oregon.

IV. Administrative Review

    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.
    SIP approvals under section 110 and subchapter I, part D of the CAA 
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 any small entities affected. Moreover, 
due to the nature of the federal-state relationship under the CAA, 
preparation of a regulatory flexibility analysis would constitute 
federal inquiry into the economic reasonableness of state action. The 
CAA 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 (S.Ct. 1976); 42 
U.S.C. 7410(a)(2).
    The EPA is publishing this action without prior proposal because 
the Agency views this as a noncontroversial amendment and anticipates 
no adverse comments. However, in a separate document in this Federal 
Register publication, the EPA is proposing to approve the SIP revision 
should no adverse or critical comments be filed. This final rule will 
be effective October 24, 1994 unless, by September 23, 1994, adverse or 
critical comments are received.
    If the EPA receives such comments, this action will be withdrawn 
before the effective date by publishing a subsequent notice that will 
withdraw the final action. All public comments received will be 
addressed in a subsequent final rule based on this action serving as a 
proposed rule. The EPA will not institute a second comment period on 
this action. Any parties interested in commenting on this action should 
do so at this time. If no such comments are received, the public is 
advised that this final rule will be effective October 24, 1994.
    The EPA has reviewed this request for revision of the federally-
approved SIP for conformance with the provisions of the 1990 Clean Air 
Act Amendments enacted on November 15, 1990. The EPA 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 SIP. Each request for revision to the SIP shall be 
considered separately in light of specific technical, economic and 
environmental factors and in relation to relevant statutory and 
regulatory requirements.
    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.
    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 October 24, 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), 42 U.S.C. 
7607(b)(2).

List of Subjects in 40 CFR Part 52

    Environmental protection, Air pollution control, Hydrocarbons, 
Incorporation by reference, Intergovernmental relations, Nitrogen 
dioxide, Particulate matter, Reporting and recordkeeping requirements, 
Volatile organic compounds.

    Note: Incorporation by reference of the Implementation Plan for 
the State of Oregon was approved by the Director of the Office of 
Federal Register on July 1, 1982.

    Dated: July 11, 1994.
Chuck Clarke,
Regional Administrator.

    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. 7401-7671q.

Subpart MM--Oregon

    2. Section 52.1970 is amended by adding paragraph (c) (108) to read 
as follows:


Sec. 52.1970  Identification of plan.

* * * * *
    (c) * * *
    (108) On November 15, 1991 the Director of ODEQ submitted 
amendments to Oregon's SIP to include a PM-10 control strategy for 
Eugene-Springfield and LRAPA title 39.
    (i) Incorporation by reference.
    (A) November 15, 1991 letter from the Director of ODEQ to EPA 
Region 10 submitting amendments to the Oregon SIP.
    (B) The PM-10 control strategy for Eugene-Springfield, adopted by 
the OEQC on January 31, 1991, and LRAPA title 39 (Contingency for PM-10 
sources in the Eugene-Springfield nonattainment area), adopted by the 
OEQC on November 8, 1991.
    (C) April 13, 1994 letter from the Director of ODEQ to EPA Region 
10 submitting amendments to the Oregon SIP.
    (D) Amendments to Lane Regional Air Pollution Authority Rules as a 
revision to the Oregon SIP (title 16), adopted by the OEQC on March 11, 
1994.

[FR Doc. 94-20738 Filed 8-23-94; 8:45 am]
BILLING CODE 6560-50-P