[Federal Register Volume 59, Number 175 (Monday, September 12, 1994)]
[Unknown Section]
[Page 0]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 94-22400]


[[Page Unknown]]

[Federal Register: September 12, 1994]


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ENVIRONMENTAL PROTECTION AGENCY
40 CFR Part 52

[WA17-1-5867a and WA16-1-5866a; FRL-5065-3]

 

Approval and Promulgation of Emission Statement Implementation 
Plan; Washington State

AGENCY: Environmental Protection Agency.

ACTION: Direct final rule.

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SUMMARY: The Environmental Protection Agency (EPA) is approving the 
State Implementation Plan (SIP) submitted by the State of Washington 
for the purpose of implementing an emission statement program for 
stationary sources within the Vancouver Air Quality Maintenance Area 
and the Central Puget Sound Ozone Nonattainment Area. The 
implementation plan was submitted by the State to satisfy the Federal 
requirements for an emission statement program as part of the SIP for 
Washington State.

DATES: This final rule will be effective on November 14, 1994 unless 
adverse or critical comments are received by October 12, 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, EPA, Region 10, Air Programs Development Section (AT-082), 
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 Programs Development 
Section, 1200 Sixth Avenue, Seattle, Washington 98101, and the 
Washington State Department of Ecology, 300 Desmond Drive, Olympia, 
Washington 98504.

FOR FURTHER INFORMATION CONTACT: Stephanie Cooper, EPA, Region 10, Air 
Programs Development Section (AT-082), Seattle, Washington 98101, (206) 
553-6917.

SUPPLEMENTARY INFORMATION:

I. Background

    The air quality planning and SIP requirements for ozone 
nonattainment and transport areas are set out in subparts I and II of 
part D of title I of the Clean Air Act, as amended by the Clean Air Act 
Amendments of 1990 (CAA or ``the Act''). EPA has published a ``General 
Preamble'' describing EPA's preliminary views on how EPA intends to 
review SIPs and SIP revisions submitted under title I of the CAA, 
including those State submittals for ozone transport areas within the 
States (see 57 FR 13498 (April 16, 1992) (``SIP: General Preamble for 
the Implementation of Title I of the Clean Air Act Amendments of 
1990''), 57 FR 18070 (April 28, 1992) (``Appendices to the General 
Preamble''), and 57 FR 55620 (November 25, 1992) (``SIP: NOx 
Supplement to the General Preamble'')).
    EPA has also issued a draft guidance document describing the 
requirements for the emission statement programs discussed in this 
document, entitled ``Guidance on the Implementation of an Emission 
Statement Program'' (July, 1992). The Agency is also conducting a 
rulemaking process to modify part 40 of the CFR to reflect the 
requirements of the emission statement program.
    Section 182 of the Act sets out a graduated control program for 
ozone nonattainment areas. Section 182(a) sets out requirements 
applicable in marginal nonattainment areas, which are also made 
applicable in subsections (b), (c), (d), and (e) to all other ozone 
nonattainment areas. Among the requirements in section 182(a) is a 
program in paragraph (3) of that subsection for stationary sources to 
prepare and submit to the State each year emission statements showing 
actual emissions of volatile organic compounds (VOC) and nitrogen 
oxides (NOx). This paragraph provides that the States are to 
submit a revision to their SIPs by November 15, 1992 establishing this 
emission statement program.
    The CAA requires facilities to submit the first emission statement 
to the State within three years after November 15, 1990, and annually 
thereafter. EPA requests that the States submit the emission data to 
EPA through the Aerometric Information Retrieval System (AIRS). The 
minimum emission statement data should include: certification of data 
accuracy; source identification information; operating schedule; 
emissions information (to include annual and typical ozone season day 
emissions); control equipment information; and process data. EPA 
developed emission statements data elements to be consistent with other 
source and State reporting requirements. This consistency is essential 
to assist States with quality assurance for emission estimates and to 
facilitate consolidation of all EPA reporting requirements.
    In addition to the submission of the emission statement data to 
AIRS, States should provide EPA with a status report that outlines the 
degree of compliance with the emissions statement program. Beginning 
July 1, 1993, States should report quarterly to EPA the total number of 
sources affected by the emission statement provisions, the number that 
have complied with the provisions, and the number that have not. This 
status report should also include the total annual and typical ozone 
season day emissions from all reporting sources, both corrected and 
non-corrected for rule-effectiveness (RE). States should include in 
their status report a list of sources that are delinquent in submitting 
their emission statement and that emit 500 tons per year (tpy) or more 
of VOC or 2500 tpy or more of NOx. This report should be a 
quarterly submittal until all the regulated sources have complied for 
the reporting year. Suggested submittal dates for the quarterly status 
reports are July 1, October 1, January 1, and April 1.

II. Analysis of State Submission

    There are several key general and specific components of an 
acceptable emission statement program. Specifically, the State must 
submit a revision to its SIP and the emission statement program must 
meet the minimum requirements for reporting by the sources and the 
State. In general, the program must include, at a minimum, provisions 
for applicability, definitions, compliance, and specific source 
requirements detailed below.

A. Procedural Background

    The Act requires States to observe certain procedural requirements 
in developing its SIP, of which the emission statement program will 
become a part. Sections 110(a)(l) and 110(a)(2) of the Act provide that 
each implementation plan submitted by a State must be adopted after 
reasonable notice and public hearing.
    The State of Washington held a public hearing on January 5, 1993 in 
Vancouver, and January 6, 1993 in SeaTac to solicit public comment on 
the implementation plan for the Vancouver Air Quality Maintenance Area 
and the Central Puget Sound Ozone Nonattainment Areas, respectively. 
Following the public hearing, the plan was signed by the Director of 
the Washington State Department of Ecology (the Governor's designee) on 
January 22, 1993. EPA received an official revision to the SIP on 
January 28, 1993 which supersedes the SIP submittal of November 16, 
1992. Additionally, replacement pages were submitted July 5, 1994 to 
clarify which sources are subject to the emission statement program.
    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 (1991), as amended by 57 
FR 42216 (August 26, 1991). A letter dated April 8, 1993 was forwarded 
to the Governor indicating the completeness of the submittal and the 
next steps to be taken in the review process. In today's action, EPA 
approves Washington's emission statement program SIP submittal and 
invites public comment on the action.

B. Components of Emission Statement Program

1. Program Elements
    Washington's emission statement program includes provisions 
covering applicability of the regulations, definitions for key terms 
used in the regulations, a compliance schedule for sources covered by 
the regulations, and the specific reporting requirements for sources. 
Under Washington State law, the Revised Code of Washington (RCW) 
sections 70.94.141 and 70.94.331 authorize Ecology and local 
authorities to ``require access to records, books, files, and other 
information specific to the control, recovery, or release of air 
contaminants into the atmosphere.'' The Washington Administrative Code 
(WAC) 173-400-105 states that ``the owner or operator of a source shall 
upon notification by the director of Ecology, maintain records ... 
deemed necessary to determine whether the source is in compliance with 
applicable emission limitations and control measures.''
2. Reporting Requirements for Sources
    In accordance with the Act, Washington's emission statement program 
requires sources to submit certification that the information is 
accurate to the best knowledge of the individual certifying the 
statement, source identification information, operating information, 
process rate data, control equipment information, and emissions 
information.
3. Reporting Requirements for State
    Washington's emission statement program includes a provision for 
the State to provide the identifying information for the sources 
covered by the emission statement program, the value for rule 
effectiveness utilized by the State in its SIP calculations, the source 
data elements entered into AIRS, and quarterly emission statement 
status reports. The quarterly reports should show the total number of 
facilities that met the State's emission statements program 
requirements and the number of facilities that failed to meet the 
requirements. Washington has submitted quarterly emissions statement 
status reports since July 1, 1993. The emissions statement status 
reports contain all required data elements. Ecology and the local air 
pollution control authorities require emission statement data for the 
annual emission inventory update.
4. Sources Covered
    Section 182(a)(3)(B) of the Act requires that States with areas 
designated as nonattainment for ozone (O3) require emission 
statement data from sources of volatile organic compounds (VOC) or 
oxides of nitrogen (NOx) in the nonattainment areas. Washington's 
Emission Statement Program applies the source reporting requirements as 
outlined in EPA's ``Draft Guidance on the Implementation of an Emission 
Statement Program.'' Sources subject to this requirement are: (1) 
Sources in O3 nonattainment areas that emit 25 (tpy) or more of NOx; 
and (2) sources in O3 nonattainment areas that emit 25 tpy or more of 
VOC. Additionally, if a source emits at least the minimum established 
reporting level of VOC or NOx (for example, 25 tpy or more in an O3 
nonattainment area), and the other pollutant is emitted at less than 25 
tpy, then the other pollutant should also be included in the emission 
statement.
5. Enforceability Issues
    All measures and other elements in the SIP must be enforceable by 
the State and EPA. The EPA criteria addressing the enforceability of 
SIPs 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). SIP 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) of the Act).
    The State of Washington has a program in its SIP that will ensure 
that the requirements of sections 182(a)(3)(B), 182(f), and 184(b)(2) 
of the Act for emission statement measures contained in the SIP are 
adequately enforced. Submission of emission statement data is enforced 
through the Southwest Air Pollution Control Authority (SWAPCA) and the 
Puget Sound Air Pollution Control Agency (PSAPCA). PSAPCA requires 
submission by April 15 of each year, and SWAPCA requires submission by 
March 15 of each year. EPA expects that the state's existing air 
enforcement program will be adequate.

III. Final 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 granting approval of the emission statement plan revision submitted 
to EPA on January 28, 1993 because it meets all of the applicable 
requirements of the CAA.

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 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.
    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 
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 adverse or critical comments be filed. This action will become 
effective on November 14, 1994 unless, by October 12, 1994, adverse or 
critical comments are received.
    Nothing is 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 
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 November 14, 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 bechallenged later in proceedings 
to enforce its requirements. (See 42 U.S.C. 7607(b)(2)).

List of Subjects in 40 CFR Part 52

    Environmental protection, Hydrocarbons, Incorporation by reference, 
Intergovernmental relations, Oxides of nitrogen, Nitrogen dioxide, 
Reporting and recordkeeping requirements, Volatile organic compounds.

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

    Dated: August 25, 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 WW--Washington

    2. Section 52.2470 is amended by adding paragraph (c)(46) to read 
as follows:


Sec. 52.2470  Identification of plan.

* * * * *
    (c) * * *
    (46) On January 28, 1993 the State of Washington submitted a SIP 
revision for the purpose of implementing an emission statement program 
for stationary sources within the Vancouver Air Quality Maintenance 
Area and the Central Puget Sound Ozone Nonattainment Area. The 
implementation plan was submitted by the State to satisfy the Federal 
requirements for an emission statement program as part of the SIP for 
Washington State.
    (i) Incorporation by reference.
    (A) Letters dated January 22, 1993 from the Director of the 
Washington Department of Ecology to EPA Region 10 amending the 
Washington SIP for both the Vancouver and Central Puget Sound areas.
    (B) ``Supplement to the SIP for Washington State, A Plan for 
Attaining and Maintaining National Ambient Air Quality Standards for 
Ozone in Central Puget Sound,'' sections 6.0, 6.1, and 6.2, adopted 
January 22, 1993.
    (C) ``Supplement to the SIP for Washington State, A Plan for 
Attaining and Maintaining National Ambient Air Quality Standards for 
Ozone in the Vancouver Air Quality Maintenance Area,'' sections 7.0, 
7.1, 7.2, and 7.3, adopted January 22, 1993.
 * * * * *
[FR Doc. 94-22400 Filed 9-9-94; 8:45 am]
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