[Federal Register Volume 61, Number 200 (Tuesday, October 15, 1996)]
[Rules and Regulations]
[Pages 53639-53643]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 96-26204]


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ENVIRONMENTAL PROTECTION AGENCY
40 CFR Parts 52 and 81

[LA-27-1-7166a, NM-30-1-7299a, FRL-5612-7]


Clean Air Act (Act) Approval and Promulgation of State 
Implementation Plans; Prevention of Significant Deterioration (PSD); 
Louisiana and New Mexico

AGENCY: Environmental Protection Agency (EPA).

ACTION: Direct final rule.

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SUMMARY: In this document, EPA is approving revisions to the PSD 
permitting regulations which were submitted as revisions to the State 
Implementation Plans (SIP) for Louisiana and New Mexico. The revisions 
were submitted to address the replacement of the total suspended 
particulate (TSP) increments, with increments for PM-10 (particulate 
matter 10 micrometers or less in diameter). The EPA is approving the 
SIP revisions because they are consistent with the corresponding 
Federal regulations. The EPA is also removing the TSP area designation 
tables and revising and/or adding PM-10 area designation tables in 40 
CFR part 81 for these States. With the PM-10 increments becoming 
effective in these areas, the TSP area designations no longer serve any 
useful purpose relative to PSD.

DATES: This action is effective on December 16, 1996, unless notice is 
postmarked by November 14, 1996 that someone wishes to submit adverse 
or critical comments. If the effective date is delayed, timely notice 
will be published in the Federal Register (FR).

ADDRESSEES: Comments should be mailed to Jole C. Luehrs, Chief, Air 
Permits Section (6PD-R), U.S. EPA Region 6, 1445 Ross Avenue, Dallas, 
Texas 75202-2733. Copies of the State's submittal and other information 
relevant to this action are available for inspection during normal 
hours at the following locations:

Environmental Protection Agency, Region 6, Air Permits Section (6PD-R), 
1445 Ross Avenue, Suite 700, Dallas, Texas 75202-2733
Air and Radiation Docket and Information Center, Environmental 
Protection Agency, 401 M Street, S.W., Washington, D.C. 20460
New Mexico Environment Department, Air Monitoring and Control Strategy 
Bureau, 1190 St. Francis Drive, Room So. 2100, Santa Fe, New Mexico 
87503
Louisiana Department of Environmental Quality, Office of Air Quality, 
7290 Bluebonnet Boulevard, Baton Rouge, Louisiana 70810

    Anyone wishing to review this information at the Region 6 EPA 
office

[[Page 53640]]

should contact the person below to schedule an appointment 24 hours in 
advance.

FOR FURTHER INFORMATION CONTACT: Mr. Samuel R. Mitz, Air Permits 
Section (6PD-R), Environmental Protection Agency, Region 6, 1445 Ross 
Avenue, Dallas, Texas 75202-2733, telephone (214) 665-8370.

SUPPLEMENTARY INFORMATION:

Background

    In this document, EPA is acting on revisions to the PSD permitting 
programs for the States of Louisiana and New Mexico. The revisions were 
generally made to address the following changes in the Federal PSD 
permitting requirements in 40 CFR 51.166:
    A. The replacement of the TSP increments with increments for PM-10, 
which were promulgated by EPA on June 3, 1993 (58 FR 31622-31638); and
    B. The promulgation of revisions to the Federal PSD permitting 
requirements regarding utility pollution control projects that States 
could voluntarily adopt into their PSD regulations, which were 
promulgated by EPA on July 21, 1992 (57 FR 32314-32339).
    Specifically, the following submittals were made:
    The Governor of Louisiana submitted revisions to Louisiana 
Administrative Code 33:III. Chapter 5, Section 509 on March 22, 1995, 
to incorporate changes in the Federal PSD permitting regulations for 
PM-10 increments.
    The Governor of New Mexico submitted revisions to 20 New Mexico 
Administrative Code 2.74 on June 26, 1995, to incorporate changes in 
the Federal PSD permitting regulations for PM-10 increments.
    This document evaluates the States' submittals for conformity with 
the corresponding Federal regulations and the requirements of the Act. 
In addition, this document provides justification regarding the removal 
of the TSP designation tables in 40 CFR part 81 for Louisiana and New 
Mexico.

This Action

A. Analysis of State Submissions

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. 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.
    The 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, April 16, 1992). The EPA's completeness criteria for 
SIP submittals are set out at 40 CFR part 51, appendix V. The EPA 
attempts to make completeness determinations within 60 days of 
receiving a submission. However, a submittal is deemed complete by 
operation of law under section 110(k)(1)(B) if a completeness 
determination is not made by EPA within six months after receipt of the 
submission.
    Public hearings to entertain public comment of the initial PSD SIP 
revisions were held by Louisiana on November 29, 1994, and by New 
Mexico on April 21, 1995. After these respective public hearings, the 
rule revisions were adopted by each State. The rule revisions were 
formally submitted to EPA for approval on March 8, 1995, from Louisiana 
and June 26, 1995, from New Mexico. Each SIP revision was reviewed by 
EPA to determine completeness shortly after its submittal, in 
accordance with the completeness criteria referenced above. The 
submittals were found to be complete, and letters dated July 20, 1995, 
were forwarded to Louisiana and New Mexico indicating the completeness 
of each submittal and the next steps to be taken in the processing of 
each SIP submittal.
2. Evaluation of States' Submittals
    a. PM-10 Increment Revisions. As discussed above, EPA promulgated 
increments for PM-10 on June 3, 1993 (see 58 FR 31622-31638). The EPA 
promulgated revisions to the Federal PSD permitting regulations in 40 
CFR 52.21, as well as the PSD permitting requirements that State 
programs must meet in order to be approved into the SIP in 40 CFR 
51.166. The EPA or its delegated State programs were required to begin 
implementation of the increments by June 3, 1994, while the 
implementation date for States with SIP-approved PSD permitting 
programs (including Louisiana and New Mexico) will be the date on which 
EPA approves each revised State PSD program containing the PM-10 
increments. In accordance with 40 CFR 51.166(a)(6)(i), each State with 
SIP-approved PSD programs was required to adopt the PM-10 increment 
requirements within nine months of the effective date (or by March 3, 
1995). For further background regarding the PM-10 increments, see the 
June 3, 1993, FR document.
    (1) Louisiana's Submittal. In order to address the PM-10 
increments, the State of Louisiana revised the following sections of 
its PSD permitting regulations in the Regulation Louisiana 
Administrative Code: 33:III.Chapter 5, Section 509. The EPA has 
reviewed these revisions and has found that the revisions address all 
of the required regulatory revisions for PM-10 increments promulgated 
by EPA on June 3, 1993.
    (2) New Mexico's Submittal. In order to address the PM-10 
increments, the State of New Mexico revised the following sections of 
its PSD permitting regulations in the 20 New Mexico Administrative Code 
2.74. The EPA has reviewed these revisions and has found that the 
revisions address all of the required regulatory revisions for PM-10 
increments promulgated by EPA on June 3, 1993. Note that the State 
elected not to adopt 40 CFR 51.166(i)(12), which provides an exemption 
from addressing the new PM-10 increments for sources who have submitted 
a PSD permit application which the State has determined to be complete 
before the PM-10 increments take effect. New Mexico's rules do not 
contain this grandfathering clause, which is acceptable.
    b. TSP Area Deletions. Section 107(d) of the 1977 Amendments to the 
Act authorized each State to submit to the Administrator a list 
identifying those areas which, (1) do not meet a national ambient air 
quality standard (NAAQS) (nonattainment areas), (2) cannot be 
classified on the basis of available ambient data (unclassifiable 
areas), and (3) have ambient air quality levels better than the NAAQS 
(attainment areas). In 1978, EPA published the original list of all 
area designations pursuant to section 107(d)(2) (commonly referred to 
as ``section 107 areas''), including those designations for TSP, in 40 
CFR part 81.
    One of the purposes stated in the Act for the section 107 areas is 
for implementation of the statutory requirements for PSD. The PSD 
provisions of part C of the Act generally apply in all section 107 
areas that are designated attainment or unclassifiable (40 CFR 
52.21(i)(3)). Under the PSD program, the air quality in an attainment 
or unclassifiable area is not allowed to deteriorate beyond prescribed 
maximum allowable increases in pollutant concentrations (i.e., 
increments).
    The EPA revised the primary and secondary NAAQS for particulate 
matter on July 1, 1987 (52 FR 24634), eliminating TSP as the indicator 
for the NAAQS and replacing it with the PM-

[[Page 53641]]

10 indicator. However, EPA did not delete the section 107 areas for TSP 
listed in 40 CFR part 81 at that time because there were no increments 
for PM-10 promulgated at that time.1 States were required to 
continue implementing the TSP increments in order to prevent 
significant deterioration of particulate matter air quality until the 
PM-10 increments replaced the TSP increments. With the State adoption 
and implementation of the PM-10 increments becoming effective, the TSP 
area designations generally serve no useful purpose relative to the PSD 
program. Instead, the PM-10 area designations now serve to properly 
identify those areas where air quality is better than the NAAQS, i.e., 
``PSD areas,'' and to provide the geographic link necessary for 
implementation of the PM-10 increments.2
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    \1\ The EPA did not promulgate new PM-10 increments 
simultaneously with the promulgation of the PM-10 NAAQS. Under 
section 166(b) of the Act, EPA is authorized to promulgate new 
increments ``not more than 2 years after the date of promulgation of 
* * * standards.'' Consequently, EPA temporarily retained the TSP 
increments, as well as the section 107 areas for TSP.
    \2\ Note that 40 CFR part 81 does not presently list all section 
107 areas for PM-10. Only those areas designated ``nonattainment'' 
appear in the State listings. This is because under the listing 
published by EPA in the Federal Register on November 6, 1991, EPA's 
primary objective was to identify nonattainment areas designated as 
such by operation of law upon enactment of the 1990 Amendments. For 
States having no PM-10 nonattainment areas designated by operation 
of law, EPA did not include a new PM-10 listing. Nevertheless, 
section 107(d)(4)(B)(iii) mandates that all areas, not designated 
nonattainment for PM-10 by operation of law, are designated 
unclassifiable. The PM-10 increments apply in any area designated 
unclassifiable for PM-10.
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    Thus, in the June 3, 1993, FR document in which EPA promulgated the 
PM-10 increments, EPA stated that, for States with SIP-approved PSD 
programs, EPA would delete the TSP area designations at the same time 
EPA approves the revision to a State's plan incorporating the PM-10 
increments. For delegated PSD programs or in States where EPA 
administers the PSD program, the TSP area designations were to be 
deleted after the PM-10 increments became effective in those States 
(i.e., June 3, 1994). In deleting any State's TSP area designations, 
EPA must ensure that the deletion of those designations will not result 
in a relaxation of any control measures that ultimately protect the PM-
10 NAAQS.
    (1) Louisiana's TSP Areas. As stated above, Louisiana has adopted 
and submitted adequate PSD revisions for PM-10 increments. In addition, 
Louisiana had no TSP areas designated as nonattainment. Thus, deletion 
of the TSP area designations will not result in relaxation of any TSP 
controls that would impact the PM-10 NAAQS. Since Louisiana also has no 
PM-10 nonattainment areas designated in the State, there is no PM-10 
designation table currently in 40 CFR part 81 for Louisiana. Therefore, 
EPA is deleting the TSP area designation table and is creating a PM-10 
area designation table in 40 CFR 81.319. The EPA will retain for PM-10 
the three section 107 areas listed in the current TSP table for 
Louisiana, consistent with the June 3, 1993, FR document which requires 
retention of the TSP baseline areas for PM-10 unless revised by the 
State in accordance with 40 CFR 51.166.
    (2) New Mexico's TSP Areas. New Mexico has one area listed in 40 
CFR part 81 as nonattainment for the TSP standards but which is not 
designated nonattainment for PM-10. Portions of the City of Albuquerque 
were designated nonattainment for the primary TSP standard. The City of 
Albuquerque is located in Bernalillo County, which is under the 
jurisdiction of the Albuquerque/ Bernalillo County Air Quality Board. 
Consequently, the TSP designations for areas in Bernalillo County will 
be retained until EPA has approved PM-10 increments for Bernalillo 
County. All remaining areas in New Mexico are in attainment status for 
TSP. Consequently, EPA believes it is appropriate at this time to 
delete the TSP designations for these areas. If the State subsequently 
revises any of the particulate matter control strategies currently in 
the SIP for these areas, it must submit a SIP revision to EPA for 
approval that must meet all applicable requirements of the Act. The EPA 
will retain for PM-10 this section 107 area listed in the current TSP 
table for New Mexico, consistent with the June 3, 1993, FR document 
which requires retention of the TSP baseline areas for PM-10 unless 
revised by the State in accordance with 40 CFR 51.166.
    As stated above, the State has adopted adequate provisions in its 
PSD program for the implementation of the PM-10 increments. Therefore, 
EPA is deleting all parts of the State's existing TSP designation table 
in 40 CFR 81.332 except for those parts addressing areas in Bernalillo 
County.

Final Action

    Based on the review and justification provided in this document, 
EPA is approving the SIP revisions regarding PSD permitting submitted 
by the States of Louisiana and New Mexico on March 22, 1995, and June 
26, 1995, respectively.
    In addition, EPA is deleting the TSP area designation tables and 
revising the PM-10 area designation tables in 40 part 81 as follows:
    A. For Louisiana, EPA is deleting the TSP area designation table 
and is creating a PM-10 designation table listing the ``AQCR 019'' 
area, the ``AQCR 022'' area, and the ``AQCR 106'' area as 
unclassifiable for PM-10 in 40 CFR 81.319.3
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    \3\  At this time, the EPA is designating the PM-10 areas as 
unclassifiable, rather than attainment, to be consistent with 
section 107(d)(4)(B) of the Act which stated that any area which was 
not initially designated as nonattainment for PM-10 shall be 
designated unclassifiable. The EPA will consider redesignating these 
areas to ``attainment'' status at a later date. Both 
``unclassifiable'' and ``attainment'' areas have the same status for 
PSD purposes.
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    B. For New Mexico, EPA is deleting all parts of the State's 
existing TSP designation table in 40 CFR 81.332 except for those parts 
addressing areas in Bernalillo County.
    In these States' PM-10 area designation tables, EPA is clarifying 
that the ``Rest of State'' areas denote a single area designation for 
PSD baseline area purposes.
    The EPA is publishing this action without prior proposal because 
EPA views this as a noncontroversial amendment and anticipates no 
adverse comments. However, in a separate document in this FR 
publication, EPA is proposing to approve the SIP revision should 
adverse or critical comments be filed. This action will be effective 
December 16, 1996, unless adverse or critical comments are postmarked 
by November 14, 1996. If 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 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 such 
comments are received on this action, the public is advised that this 
action will be effective December 16, 1996.

Regulatory Process

    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, under 5 U.S.C. 605(b), EPA may certify that the rule 
will not have a significant impact on a substantial number of small 
entities (see 46 FR 8709). Small entities include small businesses, 
small not-for-profit enterprises, and governmental entities

[[Page 53642]]

with jurisdiction over populations of less than 50,000. The 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 small entities. 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 EPA from 
basing 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).
    Under section 307(b)(1) of the Act, petitions for judicial review 
of this action must be filed in the United States Court of Appeals for 
the appropriate circuit by December 16, 1996. Filing a petition for 
reconsideration of this final rule by the Administrator does not affect 
the finality of this rule for purposes of judicial review; nor does it 
extend the time within which a petition for judicial review may be 
filed, or postpone the effectiveness of this rule. This action may not 
be challenged later in proceedings to enforce its requirements (see 
section 307(b)(2)).
    Nothing in this action shall be construed as permitting, allowing, 
or establishing a precedent for any future request for a 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.

Unfunded Mandates

    Under sections 202, 203, and 205 of the Unfunded Mandates Reform 
Act of 1995, signed into law on March 22, 1995, EPA must undertake 
various actions in association with proposed or final rules that 
include a Federal mandate that may result in estimated costs of $100 
million or more to the private sector, or to State, local, or tribal 
governments in the aggregate.
    Through submission of this SIP or plan revision approved in this 
action, the State and any affected local or tribal governments have 
elected to adopt the program provided for under section 110 of the Act. 
The rules and commitments approved in this action may bind State, 
local, and tribal governments to perform certain actions and also 
require the private sector to perform certain duties. To the extent 
that the rules and commitments being approved by this action will 
impose or lead to the imposition of any mandate upon the State, local, 
or tribal governments, either as the owner or operator of a source or 
as a regulator, or would impose or lead to the imposition of any 
mandate upon the private sector, EPA's action will impose no new 
requirements; such sources are already subject to these requirements 
under State law. Accordingly, no additional costs to State, local, or 
tribal governments, or to the private sector, result from this action. 
Therefore, EPA has determined that this final action does not include a 
mandate that may result in estimated costs of $100 million or more to 
State, local, or tribal governments in the aggregate or to the private 
sector.

Submission to Congress and the General Accounting Office

    Under 5 U.S.C. 801(a)(1)(A) as added by the Small Business 
Regulatory Enforcement Fairness Act of 1996, EPA submitted a report 
containing this rule and other required information to the U.S. Senate, 
the U.S. House of Representatives and the Comptroller General of the 
General Accounting Office prior to publication of the rule in today's 
Federal Register. This rule is not a ``major rule'' as defined by 5 
U.S.C. 804(2).

Office of Management and Budget (OMB) Review

    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 OMB has exempted this regulatory action from 
Executive Order 12866 review.

List of Subjects

40 CFR Part 52

    Environmental protection, Air pollution control, Incorporation by 
reference, Particulate matter, Reporting and recordkeeping 
requirements, Volatile organic compounds.

40 CFR Part 81

    Air pollution control, National parks, Wilderness areas.

    Dated: August 27, 1996.
Jerry Clifford,
Acting Regional Administrator (6RA-D).

    40 CFR Parts 52 and 81 are 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 T--Louisiana

    2. Section 52.970 is amended by adding paragraph (c)(69) to read as 
follows:


Sec. 52.970  Identification of plan.

* * * * *
    (c) * * *
    (69) The Governor of Louisiana submitted revisions to Regulation 
Louisiana Administrative Code on March 22, 1995 to incorporate changes 
in the Federal PSD permitting regulations for PM-10 increments.
    (i) Incorporation by reference.
    (A) Revisions to Regulation Louisiana Administrative Code 
33:III.Chapter 5, Section 509, effective February 20, 1995: Section B. 
Definitions: Baseline Date; Section B. Definitions: Net Emissions 
Increase; Section D. Ambient Air Increments; Section E.8.a.; Section 
K.2.; and Section P.4.
* * * * *

Subpart GG--New Mexico

    3. Section 52.1620 is amended by adding paragraph (c)(62) to read 
as follows:


Sec. 52.1620  Identification of plan.

* * * * *
    (c) * * *
    (62) The Governor of New Mexico submitted revisions to 20 New 
Mexico Administrative Code 2.74 on June 26, 1995, to incorporate 
changes in the Federal PSD permitting regulations for PM-10 increments.
    (i) Incorporation by reference.
    (A) Revisions to 20 New Mexico Administrative Code 2.74, effective 
July 20, 1995.

PART 81--[AMENDED]

    1. The authority citation for part 81 continues to read as follows:

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


Secs. 81.319, 81.332  [Amended]

    2. Section 81.319 is amended by removing the TSP table.
    3. Section 81.319 is further amended by adding a new table for PM-
10 to read as follows:


Sec. 81.319  Louisiana.

* * * * *

[[Page 53643]]



                                                Louisiana--PM-10                                                
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                                                 Designation                           Classification           
          Designated area          -----------------------------------------------------------------------------
                                       Date               Type                Date               Type           
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AQCR 019..........................   11/15/90  Unclassifiable                                                   
AQCR 022..........................   11/15/90  Unclassifiable                                                   
AQCR 106..........................   11/15/90  Unclassifiable                                                   
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    4. Section 81.332 is amended by revising the TSP table to read as 
follows:


Sec. 81.332  New Mexico.

* * * * *

                                                 New Mexico--TSP                                                
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                                                             Does not meet                        Better than   
            Designated area               Does not meet        secondary         Cannot be          national    
                                        primary standards      standards        classified         standards    
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AQCR 152:                                                                                                       
    Bernalillo County:                                                                                          
        Portions of City of                                                                                     
         Albuquerque..................                 X   ................  ................  .................
        Remainder of County...........  .................  ................  ................                 X 
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[FR Doc. 96-26204 Filed 10-11-96; 8:45 am]
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