[Federal Register Volume 61, Number 205 (Tuesday, October 22, 1996)]
[Rules and Regulations]
[Pages 54734-54735]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 96-27004]


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ENVIRONMENTAL PROTECTION AGENCY

40 CFR Part 52

[WV017-6003a; WV040-6005a; FRL-5619-8]


Approval and Promulgation of Air Quality Implementation Plans; 
West Virginia; Prevention of Significant Deterioration: NO2 and 
PM-10 Increments

AGENCY: Environmental Protection Agency (EPA).

ACTION: Direct final rule.

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SUMMARY: EPA is approving two State Implementation Plan (SIP) revisions 
submitted by the State of West Virginia. The first revision amends West 
Virginia's Prevention of Significant Deterioration (PSD) regulation by 
amending definitions, establishing the maximum increase in ambient 
nitrogen dioxide concentrations allowed in an area above the baseline 
concentration (the increment) and updating the references to federal 
air quality modeling procedures. The second revision removes increment 
provisions for total suspended particulates (TSP) and replaces them 
with increment provisions for particulate matter with an aerodynamic 
diameter of less than or equal to a nominal 10 micrometers (PM-10). The 
second revision also updates the references to federal air quality 
modeling procedures and adds provisions for pollution control projects 
at electric utilities. The intended effect of this action is to approve 
revisions to West Virginia's PSD regulation as it meets federal 
requirements. This action is being taken under section 110 of the Clean 
Air Act.

DATES: This action is effective December 23, 1996 unless notice is 
received on or before November 21, 1996 that adverse or critical 
comments will be submitted. If the effective date is delayed, timely 
notice will be published in the Federal Register.

ADDRESSES: Comments may be mailed to Kathleen Henry, Chief, Permit 
Programs Section, Mailcode 3AT23, 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; the Air and 
Radiation Docket and Information Center, U.S. Environmental Protection 
Agency, 401 M Street, SW, Washington, DC 20460; and West Virginia 
Department of Environmental Protection, Office of Air Quality, 1558 
Washington Street, East, Charleston, West Virginia 25311.

FOR FURTHER INFORMATION CONTACT: Lisa M. Donahue, (215) 566-2062, 
[email protected].

SUPPLEMENTARY INFORMATION: On August 10, 1993, the State of West 
Virginia submitted formal revisions to its State Implementation Plan 
(SIP). Only the revisions to Title 45 Code of State Rules Series 14, 
Permits for Construction and major Modificatiion of Major Stationary 
sources of Air Pollution for the Prevention of Significant 
Deterioration (45 CFR 14) are the subject of this rulemaking notice. 
The other portions of the August 10, 1993 submittal, including 
amendments to 45 CSR 5, 19, 21, and 29, are the subjects of separate 
rulemaking notices. West Virginia submitted another formal revision to 
45 CSR 14 on May 20.
    The August 10, 1993 SIP revision consists of changes to 45 CSR 14 
which amend definitions, establish the maximum increase in ambient 
nitrogen dioxide concentrations allowed in an area above the baseline 
concentration (the increment) and update the references to federal air 
quality modeling procedures. The May 20, 1996 revision consists of 
additional changes to 45 CSR 14 which add provisions for a PM-10 
increment, further update the federal modeling guideline reference, and 
add provisions to facilitate pollution control projects at electric 
utilities.
    EPA evaluated West Virginia's SIP revisions and concluded that the 
revised regulations strengthen the SIP by providing for the protection 
of the PSD increments for nitrogen dioxide and PM-10, and meet the 
federal PSD requirements of 40 CFR 51.166.
    The revised regulations are enforceable by EPA, with the exception 
of the definition of ``potential to emit''. In the definition of 
``Potential to Emit'' (Sec. 45-14-2.6), the language is written to 
allow use of limitations on potential to emit (PTE) that would be 
enforceable by the West Virginia Chief of Air Quality, but not EPA. Two 
recent court decisions (National Mining Association v. EPA, 59 F.3d 
1351 (D.C. Cir. 1995) and Chemical Manufacturers Ass'n v. EPA, No. 89-
1514 (D.C. Cir. Sept. 15, 1995)) spoke to the limitations in the 
capacity of a source to emit a pollutant and whether those limitations 
must be federally enforceable. Since the Chemical Manufacturers Ass'n 
v. EPA ruling vacated the federally enforceable portion of the 
definition of PTE, EPA cannot require it in West Virginia's PSD 
program.
    A more detailed evaluation of the submitted revisions, including a 
discussion of the court rulings, is provided in two Technical Support 
Documents, which are available upon request from the Regional EPA 
office listed in the ADDRESSES section of this document.
    EPA is approving these SIP revisions without prior proposal because 
the Agency views these as noncontroversial amendments and anticipates 
no adverse comments. However, in a separate document in this Federal 
Register publication, EPA is proposing to approve the SIP revisions 
should adverse or critical comments be filed. This action will be 
effective December 23, 1996 unless, by November 21, 1996, adverse or 
critical comments are received.
    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. 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 on December 23, 1996.

Final Action

    EPA is approving the State of West Virginia's revisions to 45CSR14 
``Permits for Construction and Major Modification of Major Stationary 
Sources of Air Pollution for the Prevention of Significant 
Deterioration'' submitted on August 10, 1993 and May 20, 1996.
    Nothing in this action should be construed as permitting or 
allowing or establishing a precedent for any future

[[Page 54735]]

request for revision to any state implementation plan. Each request for 
revision to the state implementation plan shall be considered 
separately 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., 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 
Clean Air Act do not create any new requirements but simply approve 
requirements that the State is already imposing. Therefore, because the 
Federal SIP approval does not impose any new requirements, the 
Administrator certifies 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 flexibility 
analysis would constitute Federal inquiry into the economic 
reasonableness of state action. The Clean Air Act forbids EPA to base 
its actions concerning SIPs on such grounds. Union Electric Co. v. U.S. 
EPA, 427 U.S. 246, 255-66 (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 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 proposed/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.

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 this rule in today's 
Federal Register. This rule is not a ``major rule'' as defined by 5 
U.S.C. 804(2).
    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 Clean Air Act, petitions for 
judicial review of this action to approve revisions to West Virginia's 
Prevention of Significant Deterioration program (45 CSR 14) must be 
filed in the United States Court of Appeals for the appropriate circuit 
by December 23, 1996. 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).)

List of Subjects in 40 CFR Part 52

    Environmental protection, Air pollution control, Incorporation by 
reference, Intergovernmental relations, Nitrogen dioxide, Particulate 
matter.

    Dated: September 20, 1996.
Stanely L. Laskowski,
Acting Regional Administrator, Region III.

    40 CFR part 52, subpart XX of chapter I, title 40 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 XX--West Virginia

    2. Section 52.2520 is amended by adding paragraphs (c)(39) and 
(c)(40) to read as follows:


Sec. 52.2520  Identification of plan.

* * * * *
    (c) * * *
    (39) Revisions to the West Virginia Regulations 45 CSR 14 submitted 
on August 10, 1993 by the West Virginia Department of Commerce, Labor & 
Environmental Resources:
    (i) Incorporation by reference.
    (A) Letter of August 10, 1993 from the West Virginia Department of 
Commerce, Labor & Environmental Resources transmitting revisions to 45 
CSR 14 ``Permits for Construction and Major Modification of Major 
Stationary Sources of Air Pollution for the Prevention of Significant 
Deterioration''.
    (B) Revisions to 45 CSR 14, effective July 7, 1993, including 
revisions to definitions and the addition of NO2 increment 
provisions. Not included in this incorporation by reference are 45 CSR 
14 paragraphs 1.1, 1.2, 2.1, 2.4, 2.9, 2.11, 2.13, 2.13, 2.22, 2.26, 
2.27, 2.32, 2.33 to 2.38, 3.2, 4.1 to 4.3, 5.1, 7.1 to 7.4, 8.1, 10.1, 
10.4, 10.7, and 11.1.
    (40) Revisions to the West Virginia Regulations 45 CSR 14 submitted 
on May 20, 1996 by the West Virginia Division of Environmental 
Protection:
    (i) Incorporation by reference.
    (A) Letter of May 20, 1996 from the West Virginia Division of 
Environmental Protection transmitting revisions to 45 CSR 14 ``Permits 
for Construction and Major Modification of Major Stationary Sources of 
Air Pollution for the Prevention of Significant Deterioration''.
    (B) Revisions to 45 CSR 14, effective May 1, 1995, including the 
addition of PM-10 increment provisions, revisions to definitions, and 
preconstruction review requirements for electric steam generating 
units. Not included in this incorporation by reference are 45 CSR 14 
paragraphs 4.1 to 4.3, 7.3, 8.1, 10.1, 10.2, 10.4, and 11.1.

[FR Doc. 96-27004 Filed 10-21-96; 8:45 am]
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