[Federal Register Volume 60, Number 131 (Monday, July 10, 1995)]
[Proposed Rules]
[Pages 35535-35538]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 95-16832]



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ENVIRONMENTAL PROTECTION AGENCY
40 CFR Part 52

[OH80-1-6979; FRL-5256-2]


Approval and Promulgation of Implementation Plans; Ohio

AGENCY: United States Environmental Protection Agency (USEPA).

ACTION: Proposed rule.

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SUMMARY: The USEPA is proposing to approve Ohio's 1990 base-year ozone 
precursor emissions inventories for the Canton, Cleveland, Cincinnati 
and Youngstown ozone nonattainment areas as revisions to the ozone 
portion of the Ohio State Implementation Plan (SIP). The emissions 
inventories were submitted to satisfy a Federal requirement that States 
containing ozone nonattainment areas submit inventories of actual ozone 
precursor emissions for the year 1990. The Ohio ozone nonattainment 
areas covered by this rulemaking are Canton (Stark County); Cincinnati 
(Butler, Clermont, Hamilton and Warren Counties); Cleveland (Ashtabula, 
Cuyahoga, Geauga, Lake, Lorain, Medina, Portage and Summit Counties); 
and Youngstown (Mahoning and Trumbull Counties). Initial notification 
of such approval would be by letter to the State of Ohio.

DATES: Comments on this action must be received by August 9, 1995.

ADDRESSES: Written comments should be mailed to: William L. MacDowell, 
Chief, Regulation Development Section, Air Enforcement Branch (AE-17J), 
USEPA, Region 5, 77 West Jackson Boulevard, Chicago, Illinois 60604.
    Copies of the State submittal and USEPA's analysis of it are 
available for inspection at: Regulation Development Section, Air 
Enforcement Branch (AE-17J), USEPA, Region 5, 77 West Jackson 
Boulevard, Chicago, Illinois 60604.

FOR FURTHER INFORMATION CONTACT: Richard Schleyer, Environmental 
Engineer, Regulation Development Section, Air Enforcement Branch (AE-
17J), USEPA, Region 5, 77 West Jackson Boulevard, Chicago, Illinois 
60604, (312) 353-5089.

SUPPLEMENTARY INFORMATION:

I. Background

    Section 182(a)(1) of the Clean Air Act Amendments of 1990 (Act) 
requires States with ozone nonattainment areas to submit a 
comprehensive, accurate and current inventory of actual ozone precursor 
emissions (which includes volatile organic compounds (VOC), nitrogen 
oxides (NOX), and carbon monoxide (CO)) for each ozone 
nonattainment area by November 15, 1992. This inventory must include 
anthropogenic base-year (1990) emissions from stationary point, area, 
non-road mobile, and on-road mobile sources, as well as biogenic 
(naturally occurring) sources in all ozone nonattainment areas. The 
emissions inventory must be based on conditions that exist during the 
peak ozone season (generally the period when peak hourly ozone 
concentrations occur in excess of the primary ozone National Ambient 
Air Quality Standard--NAAQS). Ohio's annual ozone season is from April 
01 to October 31 of each year.

II. Criteria for Evaluating Ozone Emissions Inventories

    Guidance for preparing and reviewing the emission inventories is 
provided in the following USEPA guidance documents or memoranda: 
``State Implementation Plans; General Preamble for the Implementation 
of Title I of the Act,'' (Preamble) as published in the April 16, 1992 
Federal Register (57 FR 13498); ``Emission Inventory Requirements for 
Ozone State Implementation Plans,'' (EPA-450/4-91-010) dated March 
1991; a memorandum from John Calcagni, Director, Air Quality Management 
Division, OAQPS, entitled ``Public Hearing Requirements for the 1990 
Base-Year Emissions Inventories for Ozone and Carbon Monoxide 
Nonattainment Areas,'' dated September 29, 1992; ``Procedures for the 
Preparation of Emissions Inventories for Carbon Monoxide and Precursors 
of Ozone, Volumes I and II,'' (EPA-450/4-91-016 and EPA-450/4-91-014) 
(Procedures; Volumes I and II) dated May 1991; ``Procedures for 
Emissions Inventories Preparation, Volume IV: Mobile Sources,'' (EPA-
450/4-81-026d) (Procedures; Volume IV) dated 1992; and ``Supplement C 
to Compilation of Air Pollutant Emission Factors, Volume I: Stationary 
Point and Area Sources,'' (AP-42) dated September 1990.
    As a primary tool for the review of the quality of emission 
inventories, the USEPA has also developed three levels (I, II, and III) 
of emission inventories checklists. The Level I and II checklists are 
used to determine that all required components of the base-year 
emission inventory and associated documentation are present. These 
reviews also evaluate the level of quality of the associated 
documentation and the data provided by the State and assess whether the 
emission estimates were developed according to the USEPA guidance. The 
Level III review evaluates crucial aspects and the overall 
acceptability of the emission inventory submittal. Failure to meet one 
of the ten critical aspects would lead to disapproval of the emissions 
inventory submittal.
    Detailed Level I and II review procedures can be found in the USEPA 
guidance document entitled ``Quality Review Guidelines for 1990 Base 
Year Emissions Inventories,'' (Quality Review) (EPA-454/R-92-007) dated 
August 1992. Level III criteria were attached to a memorandum from John 
S. Seitz, Director, Office of Air Quality Planning and Standards, 
entitled ``Emission Inventory Issue,'' dated June 24, 1993. The Level 
I, II, and III checklists used in reviewing this emissions inventory 
submittal are attached to two USEPA technical support documents dated 
June 23, 1995.

III. State Submittal

    On March 15, 1994, the Ohio Environmental Protection Agency (OEPA) 
submitted a revision to the ozone portion of Ohio's SIP which consisted 
of the 1990 base-year ozone emissions inventory for the following ozone 
nonattainment areas in Ohio: Canton, Cincinnati, Cleveland, Columbus, 
Dayton, Toledo and Youngstown. The USEPA has completed its review of 
the emissions inventories submitted for the Canton (which includes 
Stark County), Cincinnati (which includes Butler, Clermont, Hamilton 
and Warren Counties), Cleveland (Ashtabula, Cuyahoga, Geauga, Lake, 
Lorain, Medina, Portage and Summit Counties) and Youngstown (which 
includes Mahoning and Trumbull Counties) ozone nonattainment areas. The 
1990 base-year emissions inventories submitted for all other areas are 
addressed in separate rulemakings.
Inventory Preparation Plan/Quality Assurance Plan

    All States were required to submit an Inventory Preparation Plan 
(IPP) to USEPA for review and approval by October 1, 1991. The IPP 
documents the 

[[Page 35536]]
procedures utilized in the development of an emissions inventory and 
contains the quality assurance and quality control plan (QA/QC). On 
March 19, 1992, the State of Ohio submitted a final ozone emissions 
IPP. On April 15, 1992, USEPA informed the State that the IPP was not 
approvable at the time. Subsequently, USEPA has worked with the State 
to correct deficiencies in the IPP. With the March 1994 SIP revision 
request, the State submitted documentation of how the emissions 
inventory was prepared, as well as a quality assurance report for the 
point, area, and mobile source portions of the emissions inventory. The 
USEPA finds that this documentation and quality assurance report are 
acceptable to meet the requirements of an IPP.

Point Source Emissions Inventory

    For each nonattainment area, the State submitted a point source 
emissions inventory of all facilities that emit at least 10 tons per 
year (tpy) of VOC, or 100 tpy NOX or CO. The State also included 
sources that emit 100 tpy of VOC, CO, or NOX located in a 25-mile 
boundary surrounding each nonattainment area. The point source 
emissions inventory contains general facility information, number of 
sources, production schedules and related emissions for each source, 
emissions limitation, control efficiency and rule effectiveness (RE), 
as applicable, and total emissions on an annual and daily ozone season 
basis.
    The following methods were employed by the State to identify 
sources to be included in the 1990 base-year emissions inventory: the 
1989 records for plants in the Emissions Inventory System (EIS) were 
checked and plants meeting the VOC, CO or NOX criteria were 
revised with 1990 emissions data; the air permit records were reviewed 
for plants that are candidates for inclusion in the point source 
inventory; and current industrial directories and the Toxic Release 
Information System (TRIS) database were checked for additional point 
source emissions. For facilities in the point source inventory, the 
State acquired the emissions data by means of the following: mail 
surveys; plant inspections; telephone calls; and air permit files.
    The USEPA reviewed the point source emissions data by cross 
referencing the point source inventory to the following sources: 
USEPA's guidance document entitled ``Major CO, NO2, and VOC 
Sources in the 25-Mile Boundary Around Ozone Nonattainment Areas, 
Volume I: Classified Ozone Nonattainment Areas,'' (EPA-450/4-92-005a) 
February 1992; a 1990 TRIS Retrieval; and a 1990 Aerometric Information 
Retrieval Systems (AIRS) Facility Subsystem--Emission to Compliance 
Comparison Report.
    Where a source was governed by a regulation or a control device, 
the emissions limit was stated. An RE factor was then applied in the 
determination of emissions. In accordance with USEPA guidance, a 
standard RE factor of 80 percent was utilized, unless otherwise 
justified.

Area Source Emissions Inventory

    Area source emissions were calculated using State-specific data as 
well as USEPA guidance documents and technical memoranda developed for 
various categories. The State utilized emission factors from 
Procedures; Volumes I and IV, and AP-42 and provided necessary 
documentation. The following area source categories were included in 
the emissions inventory: gasoline loading and distribution, dry 
cleaning, degreasing, architectural surface coatings, traffic markings, 
automobile refinishing, graphic arts, cutback asphalt, pesticide 
application, commercial/consumer solvents, bakeries, waste management 
practices (landfills), leaking underground storage tanks, incineration 
of solid waste, stationary fossil fuel combustion, and fires 
(structural, open burn, etc.). Vehicle refueling emissions were 
included as part of the mobile source emissions inventory.
    The area source inventory was reviewed utilizing USEPA's guidance 
documents, and the Level I and II checklists, to ensure that all source 
categories and their related emissions (and emission factors) were 
included in the area source emissions inventory. Seasonal adjustments, 
rule effectiveness, and rule penetration factors were applied as 
indicated in the State submittal.

On-Road Mobile Source Emissions Inventory

Development of Emission Factors
    In the development of the mobile source emissions inventory, the 
State utilized USEPA's mobile source emissions model, Mobile 5a, for 
the determination of emissions factors for eight vehicle types and 
twelve roadway types. Hard-copy documentation of the input and output 
files are provided in the State's submittal. Where available, the 
State-specific inputs were utilized in the development of the input 
files for Mobile 5a.
Development of Vehicle Miles Travelled (VMT)
    Canton, Cleveland and Youngstown Areas: The 1990 VMT for each 
roadway type was developed by the Ohio Department of Transportation 
(ODOT). ODOT maintains data on each section of highway in the State of 
Ohio. VMT were developed by the State Road Inventory System and 
reported through the Highway Performance Monitoring System (HPMS) to 
the Federal Highway Administration (FHWA).
    Each roadway section daily VMT (dVMT) is computed as the annual 
average daily traffic (AADT) for that section times the length of the 
section. The county dVMT is the sum of the dVMT for each highway 
functional classifications in the county. The total dVMTs are then 
summed as a statewide total. The statewide totals are then compared by 
functional class to the 1990 HPMS submittal. For those classifications 
where traffic counts are available for all or nearly all their 
sections, the totals were essentially the same. For those with more 
off-systems roads, the resulting totals were larger than the HPMS's 
submittal value (as expected). Correction factors were computed from 
the two sets of totals and applied to the individual cells.
    ODOT used permanent and portable vehicle classification equipment 
to develop the vehicle mix by functional classification of highway. 
Traficomp III vehicle classification equipment are used to support the 
HPMS data collection effort. A software program called OHIO CONVERT 
formats vehicle classification data into the FHWA Vehicle 
Classification categories.
    Cincinnati-Hamilton Interstate Nonattainment Area: For the 
Cincinnati-Hamilton Interstate area, the Ohio-Kentucky-Indiana Regional 
Council of Governments (OKI) was responsible for the development of the 
mobile source emissions inventory. OKI developed this inventory for the 
Ohio and Kentucky portions of the interstate nonattainment area. OKI 
utilized the OKI Travel Demand Model to estimate the traffic volume on 
each roadway segment and an OKI utility program to which calculates the 
loaded speed, VMT and emissions for each roadway segment.
    The OKI travel demand model is a computerized travel demand 
forecasting model for the entire interstate nonattainment area. The 
model uses a four phase sequential travel demand forecasting process of 
trip generation, distribution modal choice and assignment. The OKI 
Travel Demand Model is composed of TRANPLAN 

[[Page 35537]]
programs and Fortran programs written by OKI.
    The model takes zonal demographic data and the transportation 
network as inputs and produces estimated traffic volumes on each 
roadway segment in the network. Traffic zones are the analysis units in 
the model. The OKI region is divided into 909 zones. The output of the 
model is a loaded highway network which contains information for each 
link such as initial speed, capacity, distance, functional class 
district number area type and forecasted traffic.
    The USEPA has reviewed the mobile source emissions inventory 
utilizing the checklist contained in the Quality Review guidance 
document. This was used to ensure that recommended procedures were 
followed in the development of the mobile source portion of the 
emissions inventory.
Off-Road Mobile Source Emissions Inventory

    Canton, Cincinnati and Youngstown Areas: The State developed 
emissions estimates for the following off-road categories according to 
USEPA guidance: aircraft, railroad locomotives, recreational boating, 
off road motorcycles, agricultural equipment, construction equipment, 
industrial equipment, and lawn and garden equipment. Documentation was 
provided as to the sources of emissions factors utilized and were 
submitted in the area source emissions inventory portion of the 
submittal.
    Cleveland Area: The State utilized emissions estimates for non-road 
emissions developed by the Office of Mobile Sources (OMS-USEPA) in 
October 1992, in accordance with USEPA requirements for the Cleveland/
Akron off-road mobile source emissions inventory. These OMS emissions 
estimates are provided for off-road diesel engines, as well as two-
stroke and four-stroke gasoline engines, including off-road 
motorcycles, construction equipment, farm equipment, lawn and garden 
equipment, industrial equipment, and recreational vessels. In addition, 
the State included in the off-road mobile source inventory emissions 
from aircraft, railroads, and commercial vessels, which are not 
included in the OMS data. These estimates were developed using 
emissions factors from AP-42 and activity factors gathered from various 
sources.
    The off-road mobile source inventory was reviewed utilizing the 
Level I and II checklists and USEPA's guidance documents to ensure that 
all source categories and their related emissions factors were included 
in the off-road mobile source emissions inventory.

Biogenic Emissions Inventory

    The State of Ohio developed the naturally occurring (or biogenic) 
emissions for the Canton, Cincinnati, Cleveland and Youngstown areas 
according to a USEPA's guidance document entitled ``User's Guide to the 
Personal Computer Version of the Biogenic Emissions Inventory System 
(PC-BEIS),'' (EPA-450/4-91-017) dated July 1991. Meteorological data 
utilized in PC-BEIS was collected in accordance with USEPA guidance. 
The ten warmest days from the period between 1988 to 1990 with the 
highest hourly peak ozone concentrations in each ozone nonattainment 
areas was collected and reviewed. As required by USEPA guidance, the 
fourth highest daily maximum ozone concentration for each nonattainment 
area was selected and utilized in the model. The State provided hard 
copy documentation as to the meteorological inputs utilized and PC-BEIS 
output files for the biogenic emissions inventory for the Canton, 
Cincinnati, Cleveland and Youngstown nonattainment areas.

IV. Approval of the Emissions Inventories

    In a letter addressed to Robert Hodanbosi, Chief, Division of Air 
Pollution Control, OEPA, dated March 23, 1995, USEPA provided comments 
on the 1990 base-year ozone emissions inventories submitted for the 
Canton, Cincinnati, Cleveland and Youngstown areas. These comments 
addressed corrections that would be needed before the inventories could 
be finally approved.
    In a letter addressed to William MacDowell, Chief, Regulation 
Development Section, dated June 8, 1995, the State of Ohio provided a 
response to comments on the area, on-road and off-road mobile, and 
biogenic source emissions. The USEPA has reviewed these responses and 
finds that the State has satisfied the Agency's comments and that the 
emissions inventory for the area, on-road mobile, non-road mobile, and 
biogenic sources is approvable.
    However, the State has not responded to the point source emissions 
inventory comments (these comments addressed possible facilities that 
may be required to be included in the point source emissions 
inventory). The State is currently making determinations regarding such 
facilities, and once completed, will submit the revised point source 
inventory to be included as part of this SIP revision. Please note that 
the State has satisfied the procedural requirements for the development 
of the point source emissions inventory. Therefore, in anticipation of 
the corrections, USEPA is proposing to approve the State's point source 
emissions inventory. No further action will occur on this SIP revision 
until the State submits (and USEPA completes) its review of the 
response to the point source emissions comments.

V. Summary of Ozone Emissions Inventory

    The following summary indicates the emissions inventories for an 
average ozone summer weekday for the Canton, Cincinnati, Cleveland and 
Youngstown ozone nonattainment areas. Please note that the point source 
emissions estimates stated may be revised (please refer to ``Approval 
of the Emissions Inventories'' section above). The emissions are stated 
in tons per ozone season weekday:

                     Canton Ozone Nonattainment Area                    
                             [Tons per day]                             
------------------------------------------------------------------------
                 Source type                     VOC       CO      NOX  
------------------------------------------------------------------------
Point sources................................    12.36     6.51    40.11
Area sources.................................    18.93     1.54     0.98
On-road mobile sources.......................    31.66   188.59    16.24
Off-road mobile sources......................    23.72    63.00    15.89
Biogenic sources.............................    36.66  .......  .......
                                              --------------------------
      Totals.................................   123.33   259.64    73.22
------------------------------------------------------------------------


                   Cincinnati Ozone Nonattainment Area                  
                             [Tons per day]                             
------------------------------------------------------------------------
                Source type                    VOC        CO       NOX  
------------------------------------------------------------------------
Point sources..............................    70.93      88.67   280.00
Area sources...............................    64.48       5.41     2.29
On-road mobile sources.....................   125.84     793.16   130.68
Off-road mobile sources....................    37.37     274.57    34.45
Biogenic sources...........................   109.04  .........  .......
                                            ----------------------------
      Totals...............................   407.66    1161.81   447.42
------------------------------------------------------------------------


[[Page 35538]]


                Cleveland/Akron Ozone Nonattainment Area                
                             [Tons per day]                             
------------------------------------------------------------------------
              Source type                   VOC         CO        NOX   
------------------------------------------------------------------------
Point sources..........................      80.24     707.32     244.77
Area sources...........................     120.86      12.64       9.54
On-road mobile sources.................     248.37   1,402.01     176.58
Off-road mobile sources................      80.19     808.32      70.92
Biogenic sources.......................     195.32  .........  .........
                                        --------------------------------
      Totals...........................     724.98   2,930.29     501.81
------------------------------------------------------------------------


                   Youngstown Ozone Nonattainment Area                  
                             [Tons per day]                             
------------------------------------------------------------------------
                 Source type                     VOC       CO      NOX  
------------------------------------------------------------------------
Point sources................................    16.33    18.74    23.25
Area sources.................................    27.80    13.02     7.00
On-road mobile sources.......................    48.97   293.54    29.87
Off-road mobile sources......................    13.48    87.88    10.98
Biogenic sources.............................    50.26  .......  .......
                                              --------------------------
      Totals.................................   156.84   413.18    71.10
------------------------------------------------------------------------

VI. Proposed Rulemaking Action and Solicitation of Public Comment

    Public comments are solicited on USEPA's proposed rulemaking 
action. Public comments must be received by August 9, 1995. Notice of 
final action on the requested approval of the emissions inventories 
will be provided to the State of Ohio by letter, and a subsequent 
notice of such action will be published in the Federal Register. 
Subsequent to the submittal of acceptable point source corrections, 
USEPA will issue a letter to the State of Ohio providing notice of 
USEPA's final action on the requested approval of the inventories. The 
effective date of these SIP revisions shall be the date that the letter 
notice is issued. Interested parties wishing to comment on these SIP 
revisions, or on USEPA's approval by means of the letter notice 
procedure, must submit written comments by August 9, 1995. USEPA plans 
to announce such final action in the Federal Register within 30 days of 
its effective date.

VII. Proposed Action

    The USEPA is proposing to approve, with ``letter notice'' of any 
final action, Ohio's 1990 base-year ozone precursor emissions 
inventories for the Canton (Stark County); Cincinnati (Butler, 
Clermont, Hamilton and Warren Counties); Cleveland (Ashtabula, 
Cuyahoga, Geauga, Lake, Lorain, Medina, Portage and Summit Counties); 
and Youngstown (Mahoning and Trumbull Counties) ozone nonattainment 
areas.
    Please note that no further action will occur on this SIP revision 
until the State submits (and USEPA completes its review) on the 
response to the point source emissions inventory comments.

VIII. General Provisions

    Nothing in this action should be construed as permitting, 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.
    This action has been classified as a Table 3 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 Office of Management and Budget has exempted 
this regulatory action from Executive Order 12866 review.
    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 (5 U.S.C. 603 and 604). 
Alternatively, USEPA 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.

List of Subjects in 40 CFR Part 52

    Air pollution control, Carbon monoxide, Intergovernmental 
relations, Nitrogen dioxide, Ozone, Reporting and recordkeeping 
requirements, Volatile organic compounds.

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

    Dated: June 28, 1995.
David A. Ullrich,
Acting Regional Administrator.
[FR Doc. 95-16832 Filed 7-7-95; 8:45 am]
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