[Federal Register Volume 63, Number 7 (Monday, January 12, 1998)]
[Proposed Rules]
[Pages 1804-1807]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 98-673]


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ENVIRONMENTAL PROTECTION AGENCY

40 CFR Part 52

[DE-12-1-5886; FRL-5948-9]


Approval and Promulgation of Air Quality Implementation Plans; 
Delaware--New Source Review

AGENCY: Environmental Protection Agency (EPA).

ACTION: Proposed rule.

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SUMMARY: The Environmental Protection Agency (EPA) is proposing 
conditional approval of the State Implementation Plan (SIP) revision 
submitted by the State of Delaware for the purpose of meeting certain 
requirements of the Clean Air Act (Act), as amended in 1990, with 
regard to new source review (NSR) in areas that have not attained the 
national ambient air quality standards (NAAQS). The changes primarily 
pertain to the ozone precursors, volatile organic compounds (VOCs) and 
nitrogen oxides (NOx). This SIP revision was submitted by 
Delaware to satisfy certain federal requirements for NSR in the State 
of Delaware. The proposed changes to the Delaware NSR regulation 
primarily address the definitions of major source size and the increase 
in emission offset ratios based upon the classifications of ozone 
nonattainment areas. EPA is proposing conditional approval because the 
NSR SIP revisions submitted by Delaware strengthen the SIP, but 
Delaware failed to revise the NSR regulations to adopt provisions 
relating to modifications in serious and severe ozone nonattainment 
areas, required by the 1990 Clean Air Act Amendments, and provisions 
relating to emission offsets and public participation, required by EPA 
regulations prior to the 1990 Clean Air Act Amendments.

DATES: Comments must be received on or before February 11, 1998.

ADDRESSES: Comments may be mailed to Ms. Kathleen Henry, Chief, Permit 
Programs Section, Air, Radiation, and Toxics Division (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; and Delaware Department of Natural Resources & 
Environmental Control, 89 Kings Highway, P.O. Box 1401, Dover, Delaware 
19903.

FOR FURTHER INFORMATION CONTACT: Ms. Robin Moran, (215) 566-2064, at 
the EPA Region III address above.

SUPPLEMENTARY INFORMATION:

I. Background

    For ozone nonattainment areas and ozone transport regions, sections 
182(a)(2)(C) and 184(b) require States to submit to EPA by November 15, 
1992, a revision that includes each of the following: (1) Provisions to 
require permits, in accordance with sections 172(c)(5) and 173 of the 
Act, for the construction and operation of each new or modified major 
stationary source

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(with respect to ozone) to be located in the area (section 
182(a)(2)(C)(i) of the Act); and (2) provisions to correct requirements 
in (or add requirements to) the plan concerning permit programs as were 
required under section 172(b)(6) of the Act (as in effect immediately 
before November 15, 1990) as interpreted in EPA regulations promulgated 
as of November 15, 1990 (section 182(a)(2)(C)(ii) of the Act).
    On January 11, 1993, the State of Delaware submitted a revision for 
Regulation 25, ``Requirements for Preconstruction Review,'' sections 1 
and 2 (pertaining to nonattainment NSR). The NSR-related revision 
consists of changes in the definitions of major source size and 
increases in the emission offset ratios based on the classifications of 
Delaware's ozone nonattainment areas. The changes primarily pertain to 
the ozone precursors, VOCs and NOX. The changes apply to New 
Castle, Kent, and Sussex Counties. New Castle and Kent Counties are 
designated nonattainment for ozone and classified as severe. See 56 FR 
56694 (Nov. 6, 1991) and 57 FR 56762 (Nov. 30, 1992), codified at 40 
CFR 81.308. Sussex County is designated as nonattainment for ozone and 
is classified as marginal. See 40 CFR 81.308. Delaware is located in 
the northeast ozone transport region (OTR). See section 184(a) of the 
Act. Because Delaware is located in the OTR, at a minimum, the NSR 
requirements applicable to moderate ozone nonattainment areas apply. 
Therefore, in Sussex County, the Act's NSR requirements for a moderate 
area apply and must be made part of the SIP.

II. Summary of Delaware's NSR Revisions

    For all classifications of ozone nonattainment areas and for the 
OTR, States must adopt the appropriate major source size thresholds and 
offset ratios. Under the Act, NOX as well as VOCs is 
regulated as an ozone precursor, and states must adopt provisions to 
ensure that any new or modified major stationary source of 
NOX in an ozone nonattainment area or the OTR satisfies the 
NSR requirements applicable to any major source of VOCs, unless a 
special NOX exemption is granted by the Administrator under 
the provisions of section 182(j).
    Delaware has established new major source size thresholds for NSR 
applicability and increased offset ratios for subject sources, in 
accordance with the Act as follows:
    1. Delaware Regulation 25 at section 2.2(B)(2) defines a major 
source size applicability threshold in Sussex County (a marginal ozone 
nonattainment area required to meet moderate area NSR provisions 
because it is located in the OTR) as 50 tons per year (TPY) potential 
to emit for VOCs and 100 TPY potential to emit for NOX. 
Section 2.3(C)(2) requires an offset ratio of 1.15 to 1 (which means 
that for every 1 ton increase in allowable emissions from a new major 
stationary source, 1.15 tons of actual emissions must be reduced from 
existing sources). These provisions satisfy the Act's NSR requirements 
for defining a major stationary source and for establishing the offset 
ratios in moderate ozone nonattainment areas.
    2. Delaware Regulation 25 at section 2.2(B)(1) defines the major 
source size applicability threshold for New Castle and Kent Counties 
(which are classified as severe nonattainment areas for ozone) as 25 
TPY potential to emit for VOCs and NOX. Section 2.3(C)(1) 
requires an offset ratio of 1.3 to 1 (which means that for every 1 ton 
increase in allowable emissions from a new major stationary source, 1.3 
tons of actual emissions must be reduced from existing sources).
    Delaware's plan submittal reflects appropriate modifications to 
applicability levels, including a de minimis level of 25 tons, as 
provided in Regulation 25, section 1.9(V)(1), definition of 
``Significant.'' This section provides that increases in net emissions 
shall not exceed 25 tons per year in New Castle and Kent Counties, or 
40 tons per year in Sussex County, when aggregated with all other net 
increases in emissions from the source over any period of five 
consecutive calendar years which includes the calendar year in which 
such increases occur. Delaware Regulation 25, section 1.9(V)(1), also 
provides that no emission reductions from major stationary sources will 
be creditable if they occurred prior to January 1, 1991, by specifying 
that no part of the five consecutive calendar year period shall extend 
before January 1, 1991.
    EPA believes that the above changes to Delaware's NSR regulation 
are consistent with the Act and strengthen the SIP. However, Delaware's 
SIP revision fails to fully meet the requirements of section 
182(a)(2)(C)(i) of the Act, because it does not address the additional 
requirements of the Clean Air Act Amendments summarized in section 
III.A. Further, EPA finds that Delaware's SIP revision fails to meet 
the requirements of section 182(a)(2)(C)(ii) of the Act, because it 
does not address several provisions related to emissions offsets and 
public participation which were required by the NSR regulations (40 CFR 
51.165) prior to the 1990 Clean Air Act Amendments. These deficiencies 
are summarized in section III.B.

III. NSR Deficiencies

A. 1990 Clean Air Act Amendment NSR Deficiencies

    Section 182(a)(2)(C)(i) requires that states must submit, by 
November 15, 1992, a revision to the SIP which contains provisions to 
require permits, in accordance with sections 172(c)(5) and 173 of the 
Act, for the construction and operation of each new or modified source 
(with respect to ozone) to be located in the area. EPA finds that 
Delaware's January 11, 1993 submittal does not meet the requirements of 
section 182(a)(2)(C)(i) because Regulation No. 25 does not include the 
following provisions:
    1. Consistent with sections 182(c) (7) and (8) of the Act, 
provisions for the special rule for modifications of sources in serious 
and severe ozone nonattainment areas. Section 182(c)(7) applies to 
facilities with potential emissions of VOC or NOX of less 
than 100 TPY, where the modification results in an other than de 
minimus increase in emissions. The owner or operator may choose to 
offset the emissions of the proposed source with those elsewhere in the 
same facility at a ratio of at least 1.3 to 1 in order to avoid having 
the proposed source be considered a modification. If the facility does 
not offset at the required ratio, the change shall be considered a 
modification, but the facility would be required to install Best 
Available Control Technology (BACT) instead of Lowest Achievable 
Emissions Rate (LAER) technology. Section 182(c)(8) applies to 
facilities with potential emissions of 100 TPY or more of VOC or 
NOX, where the modification results in an other than de 
minimus increase in emissions. The increase shall be considered a 
modification, but the source may choose to offset the emissions from 
the proposed source with emission reductions elsewhere in the same 
facility at an internal offset ratio of 1.3 to 1 in order to avoid 
installing LAER.

B. Pre-1990 NSR Deficiencies

    Section 182(a)(2)(C)(ii) requires that states must submit, by 
November 15, 1992, a revision to the SIP which contains provisions to 
correct requirements in (or add requirements to) the plan concerning 
permit programs as were required under section 172(b)(6) of the Act (as 
in effect immediately before November 15, 1990) as interpreted in EPA 
regulations promulgated as of November 15, 1990. EPA finds that

[[Page 1806]]

Delaware's January 11, 1993 submittal does not meet the requirements of 
section 182(a)(2)(C)(ii) because Regulation No. 25 does not include the 
following provisions:
    1. Public participation procedures consistent with 40 CFR 51.161. 
While section 3 of Delaware's Regulation No. 25, pertaining to the 
Prevention of Significant Deterioration of Air Quality, contains public 
participation procedures, Regulation No. 25 does not specify the public 
participation procedures to be used in issuing nonattainment NSR 
permits.
    2. A requirement that where the emissions limit under the SIP 
allows greater emissions than the potential to emit of the source, 
emission offset credit will be allowed only for control below this 
potential. See 40 CFR 51.165(a)(3)(ii)(A).
    3. Provisions for granting emission offset credit for fuel 
switching, consistent with 40 CFR 51.165(a)(3)(ii)(B).
    4. Requirements consistent with 40 CFR 51.165(a)(3)(ii)(C)(1) for 
the crediting of emission reductions achieved by shutting down an 
existing source or curtailing production or operating hours below 
baseline levels (shutdown credits). These requirements must include a 
provision that such reductions may be credited if they are permanent, 
quantifiable and federally-enforceable, and if the area has an EPA-
approved attainment plan.
    Delaware may also include provisions consistent with 40 CFR 
51.165(a)(3)(ii)(C)(2) which allow the use of shutdown credits in areas 
without an approved attainment demonstration. EPA notes that the Agency 
proposed two alternative revisions to these requirements in the NSR 
Reform Rulemaking. See 61 FR 38325 (July 23, 1996).
    5. A requirement that the shutdown or curtailment is creditable 
only if it occurred after the date of the most recent emissions 
inventory or attainment demonstration. See 40 CFR 
51.165(a)(3)(ii)(C)(1).
    6. A requirement that all emission reductions claimed as offset 
credit shall be federally enforceable. See 40 CFR 51.165(a)(3)(ii)(E).
    7. Requirements for the permissible location of offsetting 
emissions. See 40 CFR 51.165(a)(3)(ii)(F) and section 173(c)(1) of the 
Act.
    8. A requirement that credit for an emission reduction can be 
claimed to the extent that the State has not relied on it in issuing 
any permit under regulations approved pursuant to 40 CFR part 51 (i.e., 
the SIP), or the State has not relied on it in a demonstration of 
attainment or reasonable further progress. See 40 CFR 
51.165(a)(3)(ii)(G) and sections 173(c) (1) and (2) of the Act.
    Because of the deficiencies identified in Sections III.A. and 
III.B. above, EPA is proposing conditional approval of the Delaware SIP 
revision for the NSR regulation, amended Delaware Regulation 25, 
sections 1 and 2, which was submitted on January 11, 1993. EPA is 
soliciting public comments on the issues discussed in this notice or on 
other relevant matters. These comments will be considered before taking 
final action. Interested parties may participate in the Federal 
rulemaking procedure by submitting written comments to the EPA Regional 
office listed in the ADDRESSES section of this notice.

Proposed Action

    In light of the above deficiencies, EPA is proposing conditional 
approval of this SIP revision under section 110(k)(4) of the Act. EPA 
is proposing conditional approval of the Delaware NSR SIP if Delaware 
commits, in writing, within 30 days of EPA's proposal to correct the 
deficiencies identified in this rulemaking. If the State does not make 
the required written commitment to EPA within 30 days, EPA will 
withdraw this proposed conditional approval action. If the State does 
make a timely commitment, but the conditions are not met by the 
specified date within one year, EPA is proposing that the rulemaking 
will convert to a final disapproval. EPA would notify Delaware by 
letter that the conditions have not been met and that the conditional 
approval of the NSR SIP has converted to a disapproval. Each of the 
conditions must be fulfilled by Delaware and submitted to EPA as an 
amendment to the SIP.
    If Delaware corrects the deficiencies within one year of 
conditional approval, and submits a revised NSR SIP revision, EPA will 
conduct rulemaking to fully approve the revision. In order to make this 
NSR SIP approvable, Delaware must revise its NSR regulations to include 
the provisions described in section III of this document by no later 
than 12 months after EPA's final conditional approval.
    Nothing in this action should be construed as permitting or 
allowing or establishing a precedent for any future 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.

IV. Administrative Requirements

A. Executive Order 12866

    The Office of Management and Budget (OMB) has exempted this 
regulatory action from E.O. 12866 review.

B. Regulatory Flexibility Act

    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.
    Conditional approvals of SIP submittals 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 Act, 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).
    If the conditional approval is converted to a disapproval under 
section 110(k), based on the State's failure to meet the commitment, it 
will not affect any existing State requirements applicable to small 
entities. Federal disapproval of the State submittal does not affect 
its state-enforceability. Moreover, EPA's disapproval of the submittal 
does not impose a new Federal requirement. Therefore, EPA certifies 
that this disapproval action would not have a significant impact on a 
substantial number of small entities because it does not remove 
existing requirements nor does it substitute a new federal requirement.

C. Unfunded Mandates

    Under section 202 of the Unfunded Mandates Reform Act of 1995 
(``Unfunded Mandates Act''), signed into law on March 22, 1995, EPA 
must

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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 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 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 
requirements. Accordingly, no additional costs to State, local, or 
tribal governments, or to the private sector, result from this action.
    The Regional Administrator's decision to approve or disapprove this 
SIP revision regarding Delaware's NSR program will be based on whether 
it meets the requirements of section 110(a)(2)(a)-(K) and part D of the 
Clean Air Act, as amended, and EPA regulations in 40 CFR part 51.

List of Subjects in 40 CFR Part 52

    Environmental protection, Air pollution control, New source review, 
Nitrogen dioxide, Ozone, Reporting and recordkeeping requirements, 
Volatile organic compounds.

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

    Dated: December 18, 1997.
Thomas Voltaggio,
Acting Regional Administrator, Region III.
[FR Doc. 98-673 Filed 1-9-98; 8:45 am]
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