[Federal Register Volume 60, Number 175 (Monday, September 11, 1995)]
[Rules and Regulations]
[Pages 47081-47084]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 95-22158]



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ENVIRONMENTAL PROTECTION AGENCY
40 CFR Part 52

[DE22-1-7160a, DC19-1-7159a, MD36-1-7161a, PA48-1-7162a, VA42-1-7163a; 
FRL-5291-8]


Approval and Promulgation of Air Quality Implementation Plans; 
Delaware, the District of Columbia, Maryland, Pennsylvania, Virginia; 
Revisions to the State Implementation Plans (SIPs) Addressing Ozone 
Monitoring

AGENCY: Environmental Protection Agency (EPA).

 
[[Page 47082]]

ACTION: Direct final rule.

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SUMMARY: EPA is approving a revision to the ozone State Implementation 
Plans (SIPs) for Delaware, the District of Columbia (the District), 
Maryland, Pennsylvania and Virginia. This action is based upon revision 
requests which were submitted by these states to satisfy the 
requirements of the Clean Air Act (Act), as amended November 15, 1990, 
and the Photochemical Assessment Monitoring Stations (PAMS) 
regulations. The PAMS regulations required affected states to provide 
for the establishment and maintenance of an enhanced ambient air 
quality monitoring network in the form of PAMS by November 12, 1993.

DATES: This final rule is effective November 13, 1995 unless adverse 
comments are received by October 11, 1995. If the effective date is 
delayed, timely notice will be published in the Federal Register (FR).

ADDRESSES: Written comments should be addressed to Marcia L. Spink, 
Associate Director, Air Programs, Mailcode 3AT00, U.S. Environmental 
Protection Agency, Region III, 841 Chestnut Building, Philadelphia, 
Pennsylvania 19107. Copies of the documents relevant to this action are 
available for public inspection during normal business hours at the 
Air, Radiation, and Toxics Division, U.S. Environmental Protection 
Agency, Region III, 841 Chestnut Building, Philadelphia, Pennsylvania 
19107; and the Delaware Department of Natural Resources & Environmental 
Control, 89 Kings Highway, P.O. Box 1401, Dover, Delaware 19903; 
District of Columbia Department of Consumer and Regulatory Affairs, 
2100 Martin Luther King Avenue, SE., Washington, DC 20020; Maryland 
Department of the Environment, 2500 Broening Highway, Baltimore, 
Maryland, 21224; Pennsylvania Department of Environmental Protection, 
P.O. Box 8468, 400 Market Street, Harrisburg, Pennsylvania 17105; 
Department of Public Health, Air Management Services, 321 University 
Avenue, Philadelphia, Pennsylvania 19104; Virginia Department of 
Environmental Quality, 629 East Main Street, Richmond, Virginia, 23219.

FOR FURTHER INFORMATION CONTACT: Catherine L. Magliocchetti, Ozone/CO & 
Mobile Sources Section, Mailcode 3AT21, U.S. Environmental Protection 
Agency, Region III, 841 Chestnut Building, Philadelphia, Pennsylvania 
19107, (215) 597-6863.

SUPPLEMENTARY INFORMATION:

I. Summary of State Submittals

    SIP revisions incorporating PAMS into the ambient air quality 
monitoring networks of State or Local Air Monitoring Stations (SLAMS) 
and National Air Monitoring Stations (NAMS) were submitted to EPA from 
the following state agencies on the following days:
    (1) Delaware's Department of Natural Resources & Environmental 
Control submitted a PAMS SIP revision on March 24, 1994;
    (2) The District of Columbia's Department of Consumer and 
Regulatory Affairs submitted a PAMS SIP revision on January 14, 1994;
    (3) Maryland's Department of the Environment submitted a PAMS SIP 
revision on March 24, 1994;
    (4) Pennsylvania's Department of Environmental Resources (now known 
as the Pennsylvania Department of Environmental Protection) submitted a 
PAMS SIP revision on September 23, 1994; and
    (5) Virginia's Department of Environmental Quality submitted a PAMS 
SIP revision on November 23, 1994. These states will establish and 
maintain PAMS as part of their overall ambient air quality monitoring 
networks.
    Section 182(c)(1) of the Act and the General Preamble (57 FR 13515) 
require that the EPA promulgate rules for enhanced monitoring of ozone, 
oxides of nitrogen (NOX), and volatile organic compounds (VOC) no 
later than 18 months after the date of the enactment of the Act. In 
addition, the Act requires that, following the promulgation of the 
rules relating to enhanced ambient monitoring, states must commence 
actions to adopt and implement programs based on these rules, to 
improve the monitoring of ambient concentrations of ozone, NOX, 
and VOC; and to improve the monitoring of emissions of NOX and 
VOC.
    The final PAMS rule was promulgated by the EPA on February 12, 1993 
(58 FR 8452). Section 58.40(a) of the revised rule requires states with 
serious and above areas to submit a PAMS network description, including 
a schedule for implementation, to the Administrator within six months 
after promulgation or by August 12, 1993. Further, section 58.20(f) 
requires these states to provide for the establishment and maintenance 
of a PAMS network within nine months after promulgation of the final 
rule or by November 12, 1993.
    While EPA recognizes that none of the above states met either of 
the deadlines, EPA considers this point moot, since these states have 
since submitted revisions and adopted implementation schedules for PAMS 
in all affected areas. These submittals have been reviewed by the EPA 
and are intended to satisfy the requirements of 40 CFR section 
58.40(a). Since network descriptions may change annually, they are not 
part of the SIP as recommended by the Guideline for the Implementation 
of the Ambient Air Monitoring Regulations 40 CFR 58. However, the 
network description is negotiated and approved during an annual review 
as required by 40 CFR section 58.25 and section 58.36, respectively, 
and the revision codified at 40 CFR section 58.46.
    The PAMS SIP revisions outlined above are intended to meet the 
requirements of section 182(c)(1) of the Act and affect compliance with 
the PAMS regulations, codified at 40 CFR part 58, as promulgated on 
February 12, 1993.
    Public hearings on the PAMS SIP revisions were held on the 
following dates:

(1) Delaware--November 18, 1994;
(2) the District--January 4, 1994;
(3) Maryland--November 4, 8, 9 and 10, 1994;
(4) Pennsylvania--August 1, and 9, 1994; and
(5) Virginia--August 15, 1994.

    None of the states received comment on the PAMS revisions during 
the public hearings or public comment periods.

II. Analysis of State Submittals

    The PAMS SIP revisions will provide Delaware, the District, 
Maryland, Pennsylvania, and Virginia with the authority to establish 
and operate the PAMS sites, secure State funds for PAMS and provide the 
EPA with the authority to enforce the implementation of PAMS, since 
their implementation is required by the Act.
    The criteria used to review the proposed SIP revision are derived 
from the PAMS regulations, codified at 40 CFR part 58, the Guideline 
for the Implementation of the Ambient Air Monitoring Regulations 40 CFR 
Part 58 (EPA-450/4-79-038, Office of Air Quality Planning and 
Standards, November 1979), the September 2, 1993 memorandum from G. T. 
Helms entitled Final Boilerplate Language for the PAMS SIP Submittal 
(Helms boilerplate memorandum), the Act and the General Preamble. The 
September 2, 1993 Helms boilerplate memorandum stipulates that the PAMS 
SIP, at a minimum, must:
    (a) Enable the monitoring of non-criteria pollutants (such as 
NOX, nitric 

[[Page 47083]]
oxide, and speciated VOC including carbonyls) and meteorological 
parameters, in addition to the monitoring of criteria pollutants (such 
as ozone and nitrogen dioxide);
    (b) Provide a copy of the approved (or proposed) PAMS network 
description, including the phase-in schedule, for public inspection 
during the public notice and/or comment period provided for in the SIP 
revision or, alternatively, provide information to the public upon 
request concerning the State's plans for implementing the rules;
    (c) Make reference to the fact that PAMS will become a part of the 
State or local air monitoring stations (SLAMS) network; and
    (d) Require revisions to the statement that SLAMS will employ 
Federal reference methods (FRM) or equivalent methods inasmuch as PAMS 
sampling will be conducted using methods approved by the EPA which are 
not FRM or equivalent.
    The PAMS SIP revisions for Delaware, the District, Maryland, 
Pennsylvania, and Virginia provide that each state will implement PAMS 
as required in 40 CFR Part 58, as amended February 12, 1993. This 
program is required in all ozone nonattainment areas designated as 
serious, severe, or extreme. The states will also implement these 
regulations in any existing ozone nonattainment area reclassified to 
serious, severe, or extreme, or any newly designated ozone 
nonattainment areas classified as serious or above. The PAMS stations 
will become a part of the existing NAMS/SLAMS network and will monitor 
ambient levels of ``criteria pollutants,'' ``non-criteria pollutants,'' 
and meteorological parameters.
    Each state will develop its PAMS network design and establish 
monitoring sites pursuant to 40 CFR Part 58 in accordance with an 
approved network description and as negotiated with the EPA through the 
105 grant process on an annual basis. Also, each state has begun 
implementing its PAMS network as required in 40 CFR Part 58.
    All of the PAMS SIP revisions mentioned also include provisions to 
meet quality assurance requirements as contained in 40 CFR Part 58, 
Appendix A. All of the states also assure that the PAMS monitors will 
meet monitoring methodology requirements contained in 40 CFR Part 58, 
Appendix C. These states' SIP revisions also assure that their PAMS 
networks will be phased in over a period of five years as required in 
section 58.44. The states' PAMS SIP submittals and the EPA's technical 
support document are available for viewing at the EPA Region III Office 
and the state agencies as outlined under the Addresses Section of this 
FR notice.

III. Final Action

    EPA is approving revisions to the ozone SIPs for PAMS in Delaware, 
the District of Columbia, Maryland, Pennsylvania and Virginia. 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 the FR publication, the 
EPA is proposing to approve the SIP revision should adverse comments be 
received. Thus, the action will be effective November 13, 1995 unless, 
by no later than October 11, 1995, adverse or critical comments are 
received.
    If such comments are received, this action will be withdrawn before 
the effective date by publishing a subsequent notice which will 
withdraw the final action. All public comments will then 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 comments are received, the public is advised 
that this action will be effective November 13, 1995.
    The EPA has reviewed this request for revision of the federally-
approved SIP for conformance with the provisions of the Clean Air Act 
Amendments. The EPA has determined that this action conforms with those 
requirements.
    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.
    Under the Regulatory Flexibility Act, 5 U.S.C. 600 et seq., the 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, the 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 
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 any small entities affected. Moreover, 
due to the nature of the Federal-State relationship under the Act, 
preparation of a regulatory flexibility analysis would constitute 
Federal inquiry into the economic reasonableness of State action. The 
Act forbids the 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); 42 
U.S.C. 7410(a)(2)).
    Under Section 202 of the Unfunded Mandates Reform Act of 1995 
(``Unfunded Mandates Act''), signed into law on March 22, 1995, EPA 
must prepare a budgetary impact statement to accompany any proposed or 
final notice that includes a Federal mandate that may result in 
estimated costs to State, local, or tribal governments in the 
aggregate; or to the private sector, of $100 million or more. Under 
section 205, EPA must select the most cost-effective and least 
burdensome alternative that achieves the objectives of the rule and is 
consistent with statutory requirements. Section 203 requires EPA to 
establish a plan for informing and advising any small governments that 
may be significantly or uniquely impacted by the rule.
    EPA has determined that the approval action promulgated does not 
include a Federal mandate that may result in estimated costs of $100 
million or more to either State, local, or tribal governments in the 
aggregate, or to the private sector. This Federal action approves pre-
existing requirements under State or local law, and imposes no new 
Federal requirements. Accordingly, no additional costs to State, local 
or tribal governments, or to the private sector, result from this 
action.
    This action has been classified as a Table 3 action for signature 
by the Regional Administrator under the procedures published in the 
Federal Register on January 19, 1989 (54 FR 2214-2225), as revised by a 
July 10, 1995 memorandum from Mary Nichols, Assistant Administrator for 
Air and Radiation. The Office of Management and Budget (OMB) has 
exempted this regulatory action from E.O. 12866 review.
    Under section 307(b)(1) of the Act, petitions for judicial review 
of this Direct Final PAMS approval action must be filed in the U.S. 
Court of Appeals for the appropriate circuit by November 13, 1995. 
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 

[[Page 47084]]
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, Hydrocarbons, 
Incorporation by reference, Nitrogen dioxide, Ozone, Volatile organic 
compounds.

    Dated: August 18, 1995.
W. Michael McCabe,
Regional Administrator, Region III.

    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 I--Delaware

    2. Section 52.430 is added to read as follows:


Sec. 52.430  Photochemical Assessment Monitoring Stations (PAMS) 
Program.

    On March 24, 1994 the Delaware Department of Natural Resources & 
Environmental Control submitted a plan for the establishment and 
implementation of a Photochemical Assessment Monitoring Stations (PAMS) 
Program as a state implementation plan (SIP) revision, as required by 
section 182(c)(1) of the Clean Air Act. EPA approved the Photochemical 
Assessment Monitoring Stations (PAMS) Program on September 11, 1995 and 
made it part of the Delaware SIP. As with all components of the SIP, 
Delaware must implement the program as submitted and approved by EPA.

Subpart J--District of Columbia

    3. Section 52.480 is added to read as follows:


Sec. 52.480  Photochemical Assessment Monitoring Stations (PAMS) 
Program.

    On January 14, 1994 the District of Columbia's Department of 
Consumer and Regulatory Affairs submitted a plan for the establishment 
and implementation of a Photochemical Assessment Monitoring Stations 
(PAMS) Program as a state implementation plan (SIP) revision, as 
required by section 182(c)(1) of the Clean Air Act. EPA approved the 
Photochemical Assessment Monitoring Stations (PAMS) Program on 
September 11, 1995 and made it part of the District of Columbia SIP. As 
with all components of the SIP, the District of Columbia must implement 
the program as submitted and approved by EPA.

Subpart V--Maryland

    4. Section 52.1080 is added to read as follows:


Sec. 52.1080  Photochemical Assessment Monitoring Stations (PAMS) 
Program.

    On March 24, 1994 Maryland's Department of the Environment 
submitted a plan for the establishment and implementation of a 
Photochemical Assessment Monitoring Stations (PAMS) Program as a state 
implementation plan (SIP) revision, as required by section 182(c)(1) of 
the Clean Air Act. EPA approved the Photochemical Assessment Monitoring 
Stations (PAMS) Program on September 11, 1995 and made it part of 
Maryland SIP. As with all components of the SIP, Maryland must 
implement the program as submitted and approved by EPA.

Subpart NN--Pennsylvania

    5. Section 52.2035 is added to read as follows:


Sec. 52.2035  Photochemical Assessment Monitoring Stations (PAMS) 
Program.

    On September 23, 1994 Pennsylvania's Department of Environmental 
Resources (now known as the Department of Environmental Protection) 
submitted a plan for the establishment and implementation of a 
Photochemical Assessment Monitoring Stations (PAMS) Program as a state 
implementation plan (SIP) revision, as required by section 182(c)(1) of 
the Clean Air Act. EPA approved the Photochemical Assessment Monitoring 
Stations (PAMS) Program on September 11, 1995 and made it part of 
Pennsylvania SIP. As with all components of the SIP, Pennsylvania must 
implement the program as submitted and approved by EPA.

Subpart W--Virginia

    6. Section 52.2426 is added to read as follows:


Sec. 52.2426  Photochemical Assessment Monitoring Stations (PAMS) 
Program.

    On November 23, 1994 Virginia's Department of Environmental Quality 
submitted a plan for the establishment and implementation of a 
Photochemical Assessment Monitoring Stations (PAMS) Program as a state 
implementation plan (SIP) revision, as required by section 182(c)(1) of 
the Clean Air Act. EPA approved the Photochemical Assessment Monitoring 
Stations (PAMS) Program on September 11, 1995 and made it part of the 
Virginia SIP. As with all components of the SIP, Virginia must 
implement the program as submitted and approved by EPA.

[FR Doc. 95-22158 Filed 9-8-95; 8:45 am]
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