[Federal Register Volume 60, Number 187 (Wednesday, September 27, 1995)]
[Rules and Regulations]
[Pages 49764-49767]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 95-23841]



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[[Page 49765]]


ENVIRONMENTAL PROTECTION AGENCY

40 CFR Part 52

[AK10-1-7022a; FRL-5287-5]

Approval and Promulgation of Implementation Plans: Alaska

AGENCY: Environmental Protection Agency.

ACTION: Direct final rule.

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SUMMARY: The Clean Air Act (CAA) requires the states to promulgate 
conformity rules to ensure that Federal actions conform to the 
appropriate State Implementation Plan (SIP). Conformity to a SIP is 
defined in the CAA, as amended in 1990, as meaning conformity to a 
SIP's purpose of eliminating or reducing the severity and number of 
violations of the National ambient air quality standards (NAAQS) and 
achieving expeditious attainment of such standards. The Federal agency 
responsible for the action is required to determine if its actions 
conform to the applicable SIP. Environmental Protection Agency (EPA) 
approves most of Alaska's General conformity rules and Transportation 
conformity rules received on December 9, 1994 from the Alaska 
Department of Environmental Conservation (ADEC) and is taking no action 
on the remaining small portion of the submittal.

DATES: This final rule is effective on November 27, 1995 unless adverse 
or critical comments are received by October 27, 1995. 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, AK10-1-7022, 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, Environmental Protection Agency, 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 Alaska Department of Environmental Conservation, 410 
Willoughby, suite 105, Juneau, AK 99801.

FOR FURTHER INFORMATION CONTACT: Kelly Huynh, Air & Radiation Branch 
(AT-082), EPA, Seattle, Washington 98101, (206) 553-1059.

SUPPLEMENTARY INFORMATION:

I. Background

    The CAA section 176(c), as amended (42 U.S.C. 7401 et seq.), 
requires states to submit to EPA revisions to their implementation 
plans establishing transportation and general conformity criteria and 
procedures. EPA regulation requires the states to submit SIP revisions 
by November 25, 1994 and November 30, 1994. These conformity rules are 
to ensure that all Federal actions conform to the appropriate SIP 
developed pursuant to section 110 and part D of the CAA. Conformity to 
a SIP is defined in the CAA, as amended in 1990, as meaning conformity 
to a SIP's purpose of eliminating or reducing the severity and number 
of violations of the National ambient air quality standards (NAAQS) and 
achieving expeditious attainment of such standards, and that such 
activities will not:

    1. Cause or contribute to any new violation of any standard in any 
area;
    2. Increase the frequency or severity of any existing violation of 
any standard in any area; or
    3. Delay timely attainment of any standard or any required interim 
emission reductions or other milestones in any area.

    The CAA ties conformity to attainment and maintenance of the NAAQS. 
Thus, Federal actions must not adversely affect the timely attainment 
and maintenance of the NAAQS or emission reduction progress plans 
leading to attainment. The Federal agency responsible for the action is 
required to determine if its actions conform to the applicable SIP. The 
Alaska conformity approved portions establish the criteria and 
procedures governing the determination of conformity for all Federal 
actions in the state of Alaska, including Federal highway and transit 
actions (``transportation conformity''). Although EPA has concluded 
that the conformity requirements apply in all areas, including 
attainment areas, EPA must first complete notice and comment rulemaking 
on the appropriate criteria and procedures for conformity 
determinations in attainment areas before requesting the state 
equivalent submittal. Therefore, the criteria and procedures 
established in this rule apply only in areas that are nonattainment or 
maintenance with respect to any of the criteria pollutants under the 
CAA: carbon monoxide (CO), lead (Pb), nitrogen dioxide (NO2), 
ozone (O3), particulate matter (PM10), and sulfur dioxide 
(SO2). The rule covers direct and indirect emissions of criteria 
pollutants or their precursors that are reasonably foreseeable and 
caused by a Federal action.
    The Alaska submittal containing both the general and transportation 
conformity regulations is generally consistent with the CAA 
requirements. This was accomplished largely through the incorporation 
by reference of the Federal regulations as well as changes to 
nonattainment plans to include the conformity requirements. The portion 
of Alaska's submittal that is not being acted on is in direct 
consequence to a revision of the Federal regulation. Alaska's 
regulations establish procedural requirements including interagency 
consultation procedures. They also require the responsible agency to 
make their conformity determinations available for public review. 
Notice of draft and final conformity determinations must be provided 
directly to air quality regulatory agencies and to the public by 
publication in a local newspaper. The conformity determination examines 
the impacts of the direct and indirect emissions from the Federal 
action. The regulations require the Federal action to also meet any 
applicable SIP requirements and emission milestones. Each Federal 
agency must determine that any actions covered by the rule conform to 
the applicable SIP before the action is taken.
    Specifically, Articles 5 through 9 are being acted on as part of 
the Alaska SIP as well as changes to Volume II: Analysis of Problems, 
Control Action of the State Air Quality Control Plan. The explanations 
of these approved articles are summarized as follows unless no action 
is specifically indicated:
    Article 5, 18 AAC 50.620 was amended to include December 1, 1994 as 
the latest date in which the Alaska SIP was amended.
    Article 6 of 18 AAC 50 was amended as Reserved.
    Article 7-Conformity, included many changes to sections as follows. 
Section 700-Purpose, explains that the following sections are written 
to comply with 40 CFR part 51, subparts T and W, and that if Federal 
money is used for a project within a nonattainment or maintenance area 
that it will not hinder attainment of the National ambient air quality 
standards in that area.
    Section 705-Coverage of 18 AAC 50.700-18 AAC 50.735, applies to 
transportation plans, programs or projects within the nonattainment or 
maintenance area, and all other federally-funded projects or 
activities. This section defines ``responsible agency''.

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    Section 710-Transportation Conformity: Incorporation By Reference 
of Federal Regulations. Most of this section is being approved as it 
incorporates most of the Federal regulations directly from 40 CFR part 
51. The following sections of 40 CFR part 51 are incorporated by 
reference and are being approved: Sec. 51.392 (except the term 
``regionally significant project'' which is defined elsewhere in the 
Alaska state regulation), Sec. Sec. 51.394, 51.398, 51.400, 51.404, 
51.406, 51.408, 51.410, 51.412, 51.414, 51.416, 51.418, 51.420, 51.422, 
51.424, 51.426, 51.428, 51.430, 51.432, 51.434, 51.436, 51.438, 51.440, 
51.442, 51.444, 51.446, 51.450, 51.452, 51.454, 51.456, 51.458, 51.460, 
51.462. However, EPA is taking no action at this time on 18 AAC 
50.710(27). This portion of the regulation incorporates by reference 
Federal regulation 40 CFR 51.448, Transition from the interim period to 
the control strategy period, as amended through December 1, 1994. Soon 
after this time EPA began work to amend 40 CFR 51.448 and published the 
amended section on August 7, 1995. Because a portion of the Alaska 
regulation 18 AAC 50.710 adopted a section of the Federal regulation 
which has subsequently been significantly revised, EPA is taking no 
action on paragraph (27) of the state rule at this time. Alaska has 
indicated that it will revise 18 AAC 50.710(27) in a future SIP 
submittal.
    Section 715-Transportation Conformity: Interagency Consultation 
Procedures. This section establishes procedures for consultation 
(Federal, State, and local), resolution of conflicts, including 
referral to the governor when necessary, and procedures for public 
review and comment. The regulation addresses the consultation procedure 
elements identified under 40 CFR 50.402.
    Section 720-Transportation Conformity: Public Involvement. This 
section requires a public involvement process to provide opportunity 
for public review and comment of the public review draft before the 
agency issues a final conformity determination. This section also 
establishes public hearing or meeting requirements.
    Section 725-General Conformity: Incorporation by Reference of 
Federal Regulations. This section incorporates the entire Federal 
general conformity program into the regulation except Sec. 51.857 
(Frequency of conformity determinations) and Sec. 51.860 (Mitigation of 
air quality impacts) which are included in sections 730 and 735 of the 
state submittal.
    Section 730-General Conformity: Mitigation of Air Quality Impacts. 
The regulation content is consistent with that of 40 CFR 51.860, which 
requires that a commitment be made to conduct the air quality 
mitigation measures if the conformity decision is based on that amount 
of decreased air pollution.
    Section 735-General conformity: Frequency of Conformity 
Determination. The regulation content is consistent with that of 40 CFR 
51.857, which requires that if a Federal action in not commenced within 
five years and this has not been accounted for in the initial 
conformity determination that a new determination be conducted unless 
the activity is just following the natural project progression. If at 
any time the project increases its emissions a new conformity 
determination would need to be conducted.
    18 AAC 50 was also amended to include Article 8 Reserved.
    Article 9. General Provisions Section 900-Definitions, was amended 
to include two new definitions; ``maintenance area'' which refers to a 
previously designated nonattainment area that has been since designated 
as an attainment area and ``regionally significant project'' which is a 
transportation project that is on a facility serving regional 
transportation needs.

II. This Action

    This action approves numerous sections of Chapter 50-Air Quality 
Control of the Alaska SIP. The approved sections include 18 AAC 50.620 
of Article 5, Article 6-Reserved, Article 7-Conformity except section 
710(27), Article 8-Reserved, and Article 9-General Provisions. EPA is 
taking no action on Article 7, Section 710(27). EPA also is approving 
certain portions of Volume II: Analysis of Problems; Control Actions, 
which include page III.A3-5, III.B.7-1, III.C.7-1, III.I-1 through 
III.I-6, III.J-1 through III.J-4.

III. 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. USEPA, 427 U.S. 246, 256-66 (S.Ct. 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 rule 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.
    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 3 action for signature 
by the Regional Administrator under the procedures published in the 
Federal 

[[Page 49767]]
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 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 be 
effective November 27, 1995 unless, by October 27, 1995 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 document 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 action will be effective November 27, 1995.
    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 27, 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 
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).
    It has been determined that this rule is not a ``significant 
regulatory action'' under the terms of Executive Order 12866 and is 
therefore not subject to OMB review.

List of Subjects in 40 CFR Part 52

    Environmental protection, Air pollution control, Carbon monoxide, 
Hydrocarbons, Incorporation by reference, Intergovernmental relations, 
Lead, Nitrogen dioxide, Ozone, Particulate matter, Sulfur oxides, 
Volatile organic compounds.

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

    Dated: August 18, 1995.
Charles Findley,
Acting 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 C--Alaska

    2. Section 52.70 is amended by adding paragraph (c)(24) to read as 
follows:


Sec. 52.70  Identification of plan.

* * * * *
    (c) * * *
    (24) On December 5, 1994 the Alaska Department of Environmental 
Conservation sent EPA revisions for inclusion into Alaska's SIP that 
address transportation and general conformity regulations as required 
by EPA under the CAA.
    (i) Incorporation by reference.
    (A) December 5, 1994 letter from the Governor of Alaska to EPA, 
Region 10, submitting amendments addressing transportation and general 
conformity revisions to the SIP:
    (1) Regulations to 18 AAC 50, Air Quality Control, including 
Article 5, Procedure and Administration, 18 AAC 620; Article 6, 
Reserved; Article 7, Conformity, 18 AAC 50.700-18 AAC 50.735; Article 
8, Reserved; and Article 9, General Provisions, 18 AAC 50.900, all of 
which contain final edits (23 pages total) by the Alaska Department of 
Law, were filed by the Lieutenant Governor on December 5, 1994 and 
effective on January 4, 1995.
    (2) Amendments to the Alaska State Air Quality Control Plan, 
``Volume II: Analysis of Problems, Control Actions,'' as revised on 
December 1, 1994, adopted by reference in 18 AAC 50.620, containing 
final edits by the Alaska Department of Law, all of which were 
certified by the Commissioner of Alaska to be the correct plan 
amendments, filed by the Alaska Lieutenant Governor on December 5, 1994 
and effective on January 4, 1995.
[FR Doc. 95-23841 Filed 9-26-95; 8:45 am]
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