[Federal Register Volume 62, Number 12 (Friday, January 17, 1997)]
[Rules and Regulations]
[Pages 2591-2593]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 97-1080]



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ENVIRONMENTAL PROTECTION AGENCY
40 CFR Part 52

[IN64-1a; FRL-5662-7]


Approval and Promulgation of Implementation Plans; Indiana

AGENCY: Environmental Protection Agency (EPA).

ACTION: Direct final rule.

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SUMMARY: On November 21, 1995, the State of Indiana submitted to EPA a 
rule for control of Non-Methane Organic Compounds (NMOC) emissions from 
municipal solid waste (MSW) landfills in Clark, Floyd, Lake, and Porter 
Counties, as a requested revision to the ozone State Implementation 
Plan (SIP). This rule is part of the State's 15 percent (%) Rate of 
Progress (ROP) plan to control Volatile Organic Compound (VOC) 
emissions in Clark and Floyd Counties, and is included in the VOC 
contingency plan for Lake and Porter Counties. Emissions of VOC react 
with nitrogen oxides in sunlight to form ground-level ozone, commonly 
known as smog. Exposure to high ozone concentrations causes respiratory 
irritation, especially to children, seniors, and people with asthma and 
other respiratory problems. Indiana expects that the control measures 
specified in this MSW landfills SIP will reduce VOC emissions by 1,132 
pounds per day (lbs/day) in Lake and Porter Counties and 345 lbs/day in 
Clark and Floyd Counties. In this action, EPA is approving Indiana's 
rule as a direct final action; the rationale for this approval is set 
forth below. Elsewhere in this Federal Register, EPA is proposing 
approval and soliciting comment on this direct final action; if adverse 
comments are received, EPA will withdraw the direct final and address 
the comments received in a new final rule. Unless this direct final is 
withdrawn, no further rulemaking will occur on this requested SIP 
revision.

DATES: The ``direct final'' is effective on March 18, 1997, unless EPA 
receives adverse or critical comments by February 18, 1997. If the 
effective date is delayed, timely notification will be published in the 
Federal Register.

ADDRESSES: Copies of the revision request are available for inspection 
at the following address: Environmental Protection Agency, Region 5, 
Air and Radiation Division, Air Programs Branch, 77 West Jackson 
Boulevard, Chicago, Illinois 60604. (It is recommended that you 
telephone Francisco J. Acevedo at (312) 886-6082 before visiting the 
Region 5 Office.)
    Written comments should be sent to: J. Elmer Bortzer, Chief, 
Regulation Development Section, Air Programs Branch (AR-18J), 
Environmental Protection Agency, 77 West Jackson Boulevard, Chicago, 
Illinois 60604.

FOR FURTHER INFORMATION CONTACT: Francisco J. Acevedo at (312) 886-
6061.

SUPPLEMENTARY INFORMATION:

I. Submittal Background

    Section 182(b)(1) of the Clean Air Act (the Act) requires all 
moderate and above ozone nonattainment areas to achieve a 15% reduction 
of 1990 emissions of VOC by November 15, 1996. In Indiana, Lake and 
Porter Counties are classified as ``severe'' nonattainment for ozone, 
while Clark and Floyd Counties are classified as ``moderate'' 
nonattainment. As such, these counties are subject to the 15% ROP 
requirement.
    The Act specifies under section 182(b)(1)(C) that the 15% emission 
reduction claimed under the ROP plan must be achieved through the 
implementation of control measures through revisions to the SIP, the 
promulgation of federal rules, or the issuance of permits under Title V 
of the Act, by November 15, 1996. Control measures implemented before 
November 15, 1990, are precluded from counting toward the 15% 
reduction.
    In addition, section 172(c)(9) requires moderate areas to adopt 
contingency measures by November 15, 1993. The General Preamble for the 
Implementation of Title I of the Clean Air Act Amendments of 1990 
(April 28, 1992, 57 FR at 18070), states that the contingency measures 
generally must provide reductions of 3% from the 1990 base-year 
inventory. While all contingency measures must be fully adopted rules 
or measures, the State can use these measures in two different ways. 
First, the State can use its discretion to implement a measure it wants 
before 1996. Alternatively, the State may decide not to implement a 
measure until the area has failed to either meet the 15% ROP 
requirement or attain the national ambient air quality standards. In 
that situation, the reductions must be achieved in the year following 
that in which the failure has been identified by the State.
    On November 21, 1995, and February 14, 1996, Indiana submitted 326 
IAC 8-8 as its MSW landfill rules for the control of NMOC, which 
include VOCs and hazardous air pollutants, as a requested revision to 
the ozone SIP. This rule establishes emission standards and guidelines 
which require certain MSW landfills to control emissions from landfills 
by installing a landfill gas collection and control system that either 
incinerates or recovers the gas. This rule is intended to be part of 
the 15% ROP plan for Clark and Floyd Counties, as well as included in 
the contingency plan for Lake and Porter Counties. (Rulemaking on the 
overall Clark and Floyd Counties 15% ROP plan and Lake and Porter 
Counties contingency plan SIP revisions will be taken in a subsequent 
Federal Register action).
    On July 12, 1995, the Indiana Air Pollution Control Board (IAPCB) 
adopted the MSW landfill rule. Public hearings on the rule were held on 
October 5, 1994 and July 12, 1995, in Indianapolis, Indiana. The rule 
was filed with the Secretary of State on December 19, 1995, and became 
effective on January 18, 1996; it was published in the Indiana State 
Register on February 1, 1996. The IDEM formally submitted the MSW 
landfill rule to EPA on November 21, 1995, as a revision to the Indiana 
SIP for ozone; supplemental documentation to this revision was 
submitted on February 14, 1996. EPA made a finding of completeness of 
the SIP submittals in a letter dated February 23, 1996.
    The November 21, 1995, and February 14, 1996, submittals include 
the following rules:

326 Indiana Air Code (IAC) 8-8 Municipal Solid Waste Landfills

(1) Applicability
(2) Definitions
(3) Requirements; incorporation by reference of federal standards
(4) Compliance deadlines

    The rule establishes NMOC control requirements for new and existing 
municipal solid waste landfills in Clark, Floyd, Lake, and Porter 
Counties. Indiana generally based its rules upon EPA's proposed MSW 
Landfill Standards of Performance for New Stationary Sources (NSPS) and 
Guidelines for Control of Existing Sources (EG), published in the 
Federal Register on May 30, 1991 (56 FR 24468).

II. Evaluation of Submittal

    As previously discussed, Indiana intends that this MSW Landfill SIP 
revision submittal will be one of the control measures under 15% ROP 
plan for Clark and Floyd Counties, and included in the contingency plan 
for Lake and Porter Counties. A review of what emission reduction this 
SIP achieves for purposes of the Indiana 15% ROP plan will be addressed 
when EPA takes rulemaking action on the Clark and Floyd Counties 15% 
ROP plan and Lake and Porter Counties contingency plan SIPs. (EPA will 
take rulemaking on these plans in a subsequent rulemaking action).

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    To determine the approvability of the Indiana MSW landfills SIP, 
the rule was reviewed for its consistency with the Act, including EPA's 
proposed and final MSW landfill rules published in the Federal Register 
on March 12, 1996 (61 FR 9905). A summary of the rule and discussion of 
EPA's analysis follows. For the complete requirements of this SIP 
revision, interested parties should see the 326 IAC 8-8 rule.

a. Applicability

    The rule's applicability criteria in section 1 provide that new and 
existing MSW landfills located in the subject counties are subject to 
the requirements of this rule if such operations emit greater than 
fifty-five (55) tons per day of non-methane organic compound, or if 
such landfills have a minimum design capacity of one hundred eleven 
thousand (111,000) tons (one hundred thousand (100,000) megagrams (Mg)) 
of solid waste.
    For purposes of this rule, ``Existing municipal solid waste (MSW) 
landfill'' is defined in section 2(c) to mean an existing MSW landfill 
that has accepted waste since November 8, 1987, or that has capacity 
available for future use and for which construction commenced prior to 
the effective date of the State rule (January 18, 1996). It may be 
active, which means it either is currently accepting waste, or it is 
having additional capacity to accept waste. Or, an existing landfill 
may be closed, which means it is no longer accepting waste or it does 
not have available capacity for future waste deposition. ``New MSW 
landfill'' is defined in section 2(d) to mean a landfill for which 
construction, modification, or reconstruction commences on or after the 
effective date of the State rule.
    The applicability criteria in section 1 clearly indicate the 
industry and activities subject to the rule. The rule's applicability 
criteria therefore, are approvable.

b. Definitions

    The rule's definitions are found in section 2 of the State rule. 
Section 2(a) states that, for purpose of the State landfill rule, the 
definitions listed in EPA's proposed rule (56 FR 24468, May 30, 1991) 
shall apply. The only exemptions to the above is the definition of 
``Administrator'' and ``U.S. Environmental Protection Agency''. Section 
2(b)(1) defines ``Administrator'' as the commissioner of IDEM, and 
``U.S. EPA'' as the IDEM for the purpose of this rule. The only other 
definitions listed in this section are ``Existing municipal solid waste 
(MSW) landfill'' and ``New MSW landfill''. Both definitions are 
discussed above in the applicability section. The definition section 
accurately describes the MSW Landfill industry and therefore, is 
approvable.

c. Compliance Dates

    Section 4 of the Indiana MSW landfill rule requires that landfills 
meeting the requirements of this rule shall comply with section 3 of 
the rule by no later than May 1, 1996.

d. Compliance Procedures, Record Keeping, and Reporting

    In Section 3(a) of the Indiana rule, the State air pollution 
control board has incorporated by reference the following provisions 
from EPA's May 30, 1991, proposed New Source Performance Standard 
(NSPS) and Emission Guideline (EG) for MSW landfills: (1) Standards for 
air emissions from MSW landfills; (2) Test methods and procedures; (3) 
Compliance provisions; (4) Monitoring operations; (5) Reporting 
requirements; (6) Record-keeping requirements; and (7) Design 
specifications for active vertical collection systems. (In addition to 
the above provisions, Indiana needs to submit additional rulemaking by 
December 12, 1996, to address subsequent requirements contained in 
EPA's final MSW Landfill rule published March 12, 1996, in the Federal 
Register, regarding statewide control of emissions from certain MSW 
landfill sources.)
    Section 3(b) of the State rule explains that all changes to MSW 
landfills made under this rule constitute minor modifications under 
IDEM's solid waste permitting program and must be made in accordance 
with the minor permit modification requirements under 329 IAC 2-8-11 
and the applicable fees as specified in IC 13-7-16.1-2(g). Compliance 
with the requirements of this rule is also subject to the provisions of 
326 IAC 2-1, Air Permitting Rules.

III. Final Action

    Based upon the analysis above, the EPA finds that Indiana's rule 
covering MSW landfill operations, 326 IAC 8-8, as submitted on November 
21, 1995, and February 14, 1996, is consistent with Federal 
requirements. EPA, therefore, is approving this SIP revision submittal 
for the Counties of Lake, Porter, Clark, and Floyd. (In addition to the 
rule approved by this action, Indiana will need to submit additional 
rules, by December 12, 1996, to address subsequent requirements 
contained in EPA's final MSW Landfill rule published March 12, 1996, in 
the Federal Register, regarding control of emissions from such sources 
in other counties statewide.)
    The EPA is publishing this action without prior proposal because 
EPA views this as a noncontroversial revision 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 on March 18, 1997 unless, by February 18, 1997, 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 rulemaking 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 on March 18, 1997.
    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 the SIP shall be considered 
separately in light of specific technical, economic, and environmental 
factors and in relation to relevant statutory and regulatory 
requirements.

IV. Administrative Requirements

A. Executive Order 12866

    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 D. Nichols, Assistant Administrator 
for Air and Radiation. The Office of Management and Budget (OMB) has 
exempted this regulatory action from Executive Order 12866 review.

B. Regulatory Flexibility

    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

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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, 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 Act, preparation of a flexibility analysis would 
constitute Federal inquiry into the economic reasonableness of the 
State action. The Clean Air Act forbids EPA to base its actions 
concerning SIPs on such grounds. Union Electric Co. v. EPA., 427 U.S. 
246, 256-66 (1976); 42 U.S.C. 7410(a)(2).

C. Unfunded Mandates

    Under Section 202 of the Unfunded Mandates Reform Act of 1995, 
signed into law on March 22, 1995, EPA must undertake various actions 
in association with 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. This Federal action approves pre-existing requirements under 
state or local law, and imposes no new requirements. Accordingly, no 
additional costs to state, local, or tribal governments, or the private 
sector, result from this action.

D. 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).

E. Petitions for Judicial Review

    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 March 18, 1997. 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, Hydrocarbons, 
Incorporation by reference, Intergovernmental relations, Ozone, 
Reporting and recordkeeping requirements.

    Dated: November 25, 1996.
Valdas V. Adamkus,
Regional Administrator.

    For the reasons stated in the preamble, 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.

    2. Section 52.770 is amended by adding paragraph (c)(110) to read 
as follows:


Sec. 52.770  Identification of Plan.

* * * * *
    (c)* * *
    (110) On November 21, 1995, and February 14, 1996, Indiana 
submitted Municipal Solid Waste (MSW) Landfill rules for Clark, Floyd, 
Lake, and Porter Counties as a revision to the State Implementation 
Plan. This rule requires MSW landfills that emit greater than fifty-
five tons per day of non-methane organic compound, or that have a 
minimum design capacity of one hundred eleven thousand tons (one 
hundred thousand megagrams) of solid waste, to install a landfill gas 
collection and control system that either incinerates the gas or 
recovers the gas for energy use.
    (i) Incorporation by reference. 326 Indiana Administrative Code 8-8 
Municipal Solid Waste Landfills, Section 1 Applicability, Section 2 
Definitions, Section 3 Requirements; incorporation by reference of 
federal standards, Section 4 Compliance deadlines. Adopted by the 
Indiana Air Pollution Control Board July 12, 1995. Filed with the 
Secretary of State December 19, 1995. Published at Indiana Register, 
Volume 19, Number 5, February 1, 1996. Effective January 18, 1996.

[FR Doc. 97-1080 Filed 1-16-97; 8:45 am]
BILLING CODE 6560-50-P