[Federal Register Volume 64, Number 49 (Monday, March 15, 1999)]
[Rules and Regulations]
[Pages 12751-12759]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 99-6259]


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ENVIRONMENTAL PROTECTION AGENCY

40 CFR Part 52

[OR-61-7276; FRL-6307-5]


Approval and Promulgation of Implementation Plans: Oregon

AGENCY: Environmental Protection Agency.

ACTION: Direct final rule.

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SUMMARY: Environmental Protection Agency (EPA) approves the State 
implementation plan (SIP) revision submitted by the State of Oregon for 
the purpose of bringing about the attainment of the national ambient 
air quality standard (NAAQS) for particulate matter with an aerodynamic 
diameter less than or equal to a nominal 10 micrometers (PM-10). The 
implementation plan was submitted by the State to satisfy certain 
Federal requirements for an approvable moderate nonattainment area PM-
10 SIP for the Oakridge, Oregon, PM-10 nonattainment area. The 
rationale for the approval is set out both in this action and in 
supporting technical information which is available at the address 
indicated. The final action to approve this plan would have the effect 
of making requirements adopted by the State of Oregon, federally 
enforceable by EPA.

DATES: This direct final rule is effective on May 14, 1999, without 
further notice, unless EPA receives adverse comment by April 14, 1999. 
If adverse comment is received, EPA will publish a timely withdrawal of 
the direct final rule in the Federal Register and inform the public 
that the rule will not take effect.

ADDRESSES: Written comments should be addressed to: Montel Livingston, 
SIP Manager, Office of Air Quality (OAQ-107), EPA, 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, D.C. 20460. Copies of material submitted to EPA 
may be examined during normal business hours at the following 
locations: EPA, Region 10, Office of Air Quality (OAQ-107), 1200 Sixth 
Avenue, Seattle, Washington 98101, and the Oregon Department of 
Environmental Quality, 811 SW Sixth Avenue, Portland, Oregon 97204-
1390.

FOR FURTHER INFORMATION CONTACT: Rindy Ramos, EPA, Region 10 Office of 
Air Quality (OAQ-107), 1200 Sixth Avenue, Seattle, Washington 98101, 
(206) 553-6510.


[[Page 12752]]


SUPPLEMENTARY INFORMATION:

I. Background

    The area within the Oakridge, Oregon, Urban Growth Boundary (UGB) 
was designated nonattainment for PM-10 and classified as moderate under 
section 107(d)(3) of the Clean Air Act (CAA),1 on December 
21, 1993. See 57 FR 43846 (September 22, 1992), 58 FR 67334 (December 
21, 1993) and 40 CFR 81.338. The Oakridge designation became effective 
on January 20, 1994. The air quality planning requirements for moderate 
PM-10 nonattainment areas 2 are set out in Subparts 1 and 4 
of Title I of the Act.3 EPA has issued a ``General 
Preamble'' describing EPA's preliminary views on how EPA intends to 
review SIPs and SIP revisions submitted under Title I of the Act, 
including those State submittals containing PM-10 nonattainment area 
SIP requirements (see generally 57 FR 13498 (April 16, 1992) and 57 FR 
18070 (April 28, 1992)). Because EPA is describing its interpretations 
here only in broad terms, the reader should refer to the General 
Preamble for a more detailed discussion of the interpretations of Title 
I advanced in this document and the supporting rationale. In this 
rulemaking action for the PM-10 SIP for the Oakridge nonattainment 
area, EPA's action is consistent with its interpretations, discussed in 
the General Preamble, and takes into consideration the specific factual 
issues presented in the SIP. Additional information supporting EPA's 
action on this particular area is available for inspection at the 
address as indicated above.
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    \1\ The 1990 Amendments to the Clean Air Act made significant 
changes to the Act. See Pub. L. 101-549, 104 Stat. 2399. References 
herein are to the Clean Air Act, as amended (``the Act''). The Clean 
Air Act is codified, as amended, in the U.S. Code at 42 U.S.C. 7401, 
et seq.
    \2\ The requirements which are the subject of this document 
arise under the pre-existing PM NAAQS. EPA promulgated a new PM 
NAAQS on July 18, 1997, which became effective on September 16, 
1997.
    \3\ Subpart 1 contains provisions applicable to nonattainment 
areas generally and Subpart 4 contains provisions specifically 
applicable to PM-10 nonattainment areas. At times, Subpart 1 and 
Subpart 4 overlap or conflict. EPA has attempted to clarify the 
relationship among these provisions in the ``General Preamble'' and, 
as appropriate, in today's notice and supporting information.
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    A State containing a moderate PM-10 nonattainment area designated 
after the 1990 Amendments is required to submit, among other things, 
the following provisions within 18 months of the effective date of the 
designation (i.e., these provisions were due for the Oakridge area by 
July 20, 1995):
    1. Provisions to assure that reasonably available control measures 
(RACM) (including such reductions in emissions from existing sources in 
the area as may be obtained through the adoption, at a minimum, of 
reasonably available control technology (RACT)) shall be implemented no 
later than four years after designation (i.e., January 20, 1998);
    2. Either a demonstration (including air quality modeling) that the 
plan will provide for attainment as expeditiously as practicable but no 
later than the end of the sixth calendar year after the effective date 
of designation (i.e., December 31, 2000), or a demonstration that 
attainment by that date is impracticable;
    3. Quantitative milestones which demonstrate reasonable further 
progress (RFP) toward the attainment date (i.e., December 31, 2000 for 
Oakridge). Since the SIP for a new nonattainment area is due 18 months 
after the area is designated as nonattainment, the first 3-year 
milestone is to be achieved 4\1/2\ years after nonattainment 
designation (i.e., July 20, 1998 for Oakridge) and the second milestone 
must be achieved three years after the first milestone or 7\1/2\ years 
after nonattainment designation (i.e., July 20, 2001);
    4. Provisions to assure that the control requirements applicable to 
major stationary sources of PM-10 also apply to major stationary 
sources of PM-10 precursors except where the Administrator determines 
that such sources do not contribute significantly to PM-10 levels which 
exceed the NAAQS in the area. See sections 172(c), 188, and 189 of the 
Act; and
    5. Contingency measures which consist of other available measures 
that are not part of the area's control strategy. These measures must 
take effect without further action by the State or EPA, upon EPA's 
determination that the area has failed to make RFP or attain the PM-10 
NAAQS by the applicable deadline. See section 172(c)(9) of the Act.

II. This Action

    Section 110(k) of the Act sets out provisions governing EPA's 
review of SIP submittals (see 57 FR 13565-13566). The State of Oregon 
submitted the Oakridge PM-10 SIP on December 9, 1996. The Oakridge 
moderate area attainment plan includes, among other things, technical 
analyses, control measures to satisfy the RACM requirement, and a 
demonstration (including air quality modeling) that attainment and 
maintenance of the PM-10 NAAQS will be achieved by the required dates. 
In this final rulemaking, EPA announces its approval of those elements 
of the Oakridge PM-10 SIP which were due on July 20, 1995, and 
submitted on December 9, 1996.
    In addition, EPA has determined that major sources of precursors of 
PM-10 do not contribute significantly to PM-10 levels in excess of the 
NAAQS in Oakridge.4
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    \4\ The consequences of this finding are to exclude these 
sources from the applicability of PM-10 nonattainment area control 
requirements. Note that EPA's finding is based on the current 
character of the area including, for example, the existing mix of 
sources in the area. It is possible, therefore, that future growth 
could change the significance of precursors in the area.
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A. Analysis of State Submission

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.5 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.
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    \5\ Also Section 172(c)(7) of the Act requires that plan 
provisions for nonattainment areas meet the applicable provisions of 
Section 110(a)(2).
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    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). EPA's completeness criteria for SIP submittals are 
set out at 40 CFR part 51, appendix V. EPA attempts to make 
completeness determinations within 60 days of receiving a submission. 
However, a submittal is deemed complete by operation of law if a 
completeness determination is not made by EPA six months after receipt 
of the submission.
    The State of Oregon and the Lane Regional Air Pollution Authority 
(LRAPA) held a concurrent public hearing on the Oakridge attainment 
plan on July 18, 1996. As a result of the hearing, the plan was adopted 
by the LRAPA Board of Directors on August 13, 1996. The plan was 
subsequently adopted by the Oregon Environmental Quality Commission 
(OEQC) on October 11, 1996, and became state effective November 4, 
1996.
2. Accurate Emission Inventory
    Section 172(c)(3) of the Act requires that nonattainment plan 
provisions include a comprehensive, accurate, current inventory of 
actual emissions from all sources of relevant pollutants in the 
nonattainment area. The emission

[[Page 12753]]

inventory also should include a comprehensive, accurate, and current 
inventory of allowable emissions in the area. See section 110(a)(2)(K). 
Because the submission of such inventories is a necessary adjunct to an 
area's attainment demonstration (or demonstration that the area cannot 
practicably attain), the emission inventories must be received with the 
submission (see 57 FR 13539).
    The base year for analysis was 1991. This year was chosen because 
the highest observed ambient PM-10 concentration occurred in 1991. 
There were nine exceedances of the 24-hour NAAQS with a high of 187 
g/m3. In addition to the base year inventory (1991), an 
interim year inventory (1997), a design year inventory (2000 attainment 
year), and a maintenance demonstration year inventory (2003) was 
developed.
    The 1991 inventory identified that, on a 24-hour, worst case day, 
the major sources of PM-10 emissions are residential wood combustion 
(76.3%), paved roads (12.6%), unpaved roads (7.6%), winter road sanding 
(0.9%), transportation (1.9%), industrial point source (0.6%) and other 
(.3%) with total PM-10 emissions equaling 983.1 pounds per day.
    After implementation of all control measures, LRAPA estimates that 
the 24-hour 2000 attainment year inventory will be as follows: 
residential wood combustion (72%), paved roads-including sanding (21%), 
unpaved roads (3.0%), transportation (3.0%), industrial point source 
(.01%), and other (less than .01%) with total PM-10 emissions equaling 
655.1 pounds per day.
    The emission inventory was originally reviewed and commented on by 
EPA in 1995 while in draft form. The issues raised by EPA during that 
time were resolved before the December 9, 1996, submittal.
    EPA is approving the emission inventory because it is accurate and 
comprehensive, and provides a sufficient basis for determining the 
adequacy of the attainment demonstration for this area consistent with 
the requirements of sections 172(c)(3) and 110(a)(2)(K) of the 
Act.6
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    \6\ EPA issued guidance on PM-10 emissions inventories prior to 
the enactment of the Clean Air Act Amendments in the form of the 
1987 PM-10 SIP Development Guideline. The guidance provided in this 
document appears to be consistent with the revised Act.
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    The December 9, 1996, submittal also establishes an emission budget 
for the Oakridge nonattainment area, which is to be used for Federal 
conformity purposes. The PM-10 mobile source emission budget for 2000 
is 175 pounds per day and for 2003 is 178.8 pounds per day.
3. RACM (Including RACT)
    As noted, the moderate PM-10 nonattainment areas, designated after 
the 1990 Amendments, must submit provisions to assure that RACM 
(including RACT ) are implemented no later than January 20, 1998 (see 
sections 172(c)(1) and 189(a)(1)(C)) of the Clean Air Act. The General 
Preamble contains a detailed discussion of EPA's interpretation of the 
RACM (including RACT) requirement (see 57 FR 13539-13545 and 13560-
13561). In broad terms, the State should identify available control 
measures and evaluate them for their reasonableness in light of the 
feasibility of the controls and the attainment needs of the area. See 
57 FR 13540-13544. A State may reject an available control measure if 
the measure is technologically infeasible or the cost of the control is 
unreasonable. In addition, RACM does not require controls on emissions 
from sources that are insignificant (i.e., de minimis) and does not 
require the implementation of all available control measures where an 
area demonstrates timely attainment and the implementation of 
additional controls would not expedite attainment. Thus, RACT does not 
require additional controls for the stationary sources in the Oakridge 
nonattainment area because point source emissions in the area are de 
minimis and additional control of such sources would not expedite 
attainment of the PM-10 NAAQS.
    Based on the control measures adopted (described below), the SIP 
demonstrates attainment of the PM-10 NAAQS by December 31, 2000. The 
SIP also demonstrates continued maintenance of the PM-10 NAAQS between 
December 2000 and December 2003. Accordingly, the attainment 
demonstration does not include additional industrial controls beyond 
those currently required by the Oregon SIP. The Plan's attainment 
demonstration, contingency measures, and RFP are discussed in more 
detail later in this document.
    Because the area has not violated the annual standard, LRAPA did 
not specifically develop or implement control measures designed to 
reduce annual emissions. However, reductions achieved on an annual 
basis as a result of the control measures designed to reduce 24-hour 
emissions, will assist in keeping the area in attainment with the 
annual NAAQS.
    Attainment of the 24-hour PM-10 standard is based on the following: 
(1) woodstove replacement program, (2) voluntary wood burning 
curtailment program, (3) reduction in winter road sanding, and (4) road 
paving.

                     Summary--Attainment Strategies
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                                              Credit         Emission
-----------------------------------------    requested      reductions
                                             (percent)       #per day
         Control Measures--2000          -------------------------------
                                              24-Hour         24-Hour
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Woodstove Removal.......................              12              86
Voluntary Curtailment Program...........              25             157
Winter Road Sanding.....................              75               7
Unpaved Roads...........................              75              56
                                         -------------------------------
    Total Reductions....................  ..............             306
    Reductions Needed by 12/31/00.......  ..............             294
                                         -------------------------------
    Excess Reductions...................  ..............              12
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[[Page 12754]]

A. Woodstove Replacement Program

    Oakridge's woodstove replacement program started in 1993 with 
funding from EPA, ODEQ, and LRAPA. The program was structured to 
provide up to $2,500 per low or moderate income households for 
installation of approved alternative heat sources, either as no 
interest loans or grants.
    LRAPA estimates that on a worse-case day basis, 86 pounds per day 
of PM-10 will be removed from the airshed. These reductions were 
calculated based on the number of woodstoves replaced, and what type of 
heating system replaced them. As of July 1996, a total of 130 
uncertified woodstoves had been replaced resulting in an estimated 12% 
reduction in emissions.
    Of the first 115 uncertified stoves that were replaced, 42% opted 
for pellet stoves, 40% opted for EPA certified stoves, 11% opted for 
heat pumps or electric furnaces, 3% opted for propane gas furnaces, and 
3% opted for oil furnaces.
    Accordingly, EPA accepts LRAPA's 12% credit on a 24-hour basis and 
believes the woodstove removal program meets the RACM requirement.

B. Voluntary Woodstove Curtailment Program

    A voluntary wood burning advisory program has provided daily wood 
burning advisories during the wood burning season in Oakridge since 
1989. The program is operated by LRAPA, in cooperation with the City of 
Oakridge and local news media and utilizes a ``red-yellow-green'' 
system. In 1993, the public education component of the program was 
enhanced in an effort to keep the program a voluntary one.
    Daily wood heating advisories are disseminated by LRAPA via local 
television and radio stations, an advisory information telephone line, 
and are published each day in the regional newspaper throughout 
November and February each winter season. LRAPA also maintains an 
advisory phone line. During the 1996/1997 season, over 480 60-second 
spots were aired on area radio stations between December 1 and January 
31. These announcements covered topics such as clean burning, using 
seasoned wood, and the health affects of wood smoke.
    In addition, LRAPA contracted with an Oakridge resident to carry 
out public education strategies such as, but not limited to, (1) 
manning a booth at Oakridge's Health Fair, (2) conducting door-to-door 
visitation to homes with smokey chimneys and, (3) conducting drive-by 
surveys during green, yellow and red days. A ``tarp giveaway'' campaign 
was also implemented. In exchange for participating in a short survey, 
residents were given tarps to cover their wood to keep it dry.
    Woodburning curtailment advisories are made daily during the 
woodheating season (November 1 through February 28). The advisory is 
based on measured air quality, expressed as the standard Air Pollution 
Index (API) and forecast meteorological conditions. A forecast of 
either ``green'', ``yellow'', or ``red'' is determined and provided to 
radio stations between 12:00 and 4:00 p.m. and to the city for 
inclusion on a cable access station by 4:00 p.m. A green advisory is 
issued when NAAQS exceedances are unlikely and the API is less than 63. 
A yellow advisory is made when the API is greater than 63 but less than 
75 and the forecast is for marginal smokie dispersion conditions. Under 
this advisory, residents are advised to burn wood sparingly, and only 
if alternatives are unavailable. A red advisory is make when the API is 
greater than 75, and the forecast is for marginal or poor smoke 
dispersion conditions. Under a red advisory, residents are requested 
not to burn wood unless they do not have an alternative heat source.
    The Oakridge curtailment program includes a surveillance and 
tracking element. LRAPA's contractor conducts drive-by compliance 
surveys on green, yellow, and red days using established survey routes. 
But, since the program in voluntary and not mandatory, enforcement 
action is not taken against residents who do not comply with the 
advisories. However, in-home field visits are conducted when the 
contractor observes activities such as dense smoke being emitted from a 
chimney. The purpose of these visits is to educate the home owner in 
the proper use of a woodstove, (e.g. using clean, dry wood etc.).
    Considering the above program elements, length of time the program 
has been in place (since 1989 with an enhanced program enacted in 
1995), LRAPA's belief that the public is ``acceptive'' of the program 
demonstrated by home owner's response to a tarp give-away and in-home 
visits, EPA believes that the 25% credit on a 24-hour basis is 
achievable and is being achieved. EPA, therefore, accepts the credit 
claimed and has determined that the voluntary curtailment program is 
sufficient to meet RACM.

C. Winter Road Sanding

    The second largest source of PM-10 emissions in the Oakridge 
nonattainment area is paved road dust of which winter road sanding is a 
contributor. Winter road sanding emissions peak during periods when 
temperatures drop below freezing and U.S. Highway 58 is icy or snowy. 
During these periods, the Highway Division of the Oregon Department of 
Transportation (the Highway Department) applies grit to aid traction 
along the heavily traveled 1.9 miles of U.S. Highway 58 that traverses 
the length of the nonattainment area. LRAPA estimated that on a worst 
case day in the 1991 base year, PM-10 emissions from the sanding 
practices accounted for 8.6 pounds.
    The strategy developed to reduce road sanding emissions is for the 
Highway Department to use a chemical de-icing compound, calcium 
magnesium acetate (CMA) on Highway 58 instead of grit. The material is 
to be applied either in pellet form or dissolved in water. It 
effectively inhibits ice formation down to temperatures normally 
encountered in Oakridge and eventually is washed off the roadway 
without residual particulate. The use of CMA has been specified for use 
in Oakridge since 1995. The Highway Department is committed to using 
the anti-icing chemicals within the City of Oakridge into the future.
    EPA accepts the above strategy as being RACM and grants the 75% 
emission reduction credit.

D. Road Paving

    Prior to the 1991 base year, there were approximately 2.4 miles of 
unpaved roads within the nonattainment area. LRAPA estimated that 
emissions from unpaved roads accounted for 10.6 tons per year (74 
pounds per day). Due to an ongoing paving program, between 1991 and 
1995, virtually all of Oakridge's unpaved roads and numerous unpaved 
commercial driveways and parking lots have been paved.
    LRAPA requests an estimated 75% net emission reduction credit from 
this strategy. Converting an unpaved road to a paved road will not 
reduce emission on a roadway 100%. This is because in time, materials 
from other activities such as track out, will become deposited on the 
recently paved surfaces resulting in an increase in paved road 
emissions. However, any resulting emissions are insignificant compared 
to the reduction in unpaved road emissions.
    EPA accepts LRAPA's 75% net reduction credit as being conservative 
and approves this measure as being RACM.
    RACM does not require additional controls on other area sources 
since the plan demonstrates attainment of the NAAQS and implementation 
of

[[Page 12755]]

additional controls would not further expedite attainment. However, the 
State of Oregon through their smoke management plan, has established a 
special protection zone (SPZ) around the nonattainment area. Prescribed 
burning in the SPZ is allowed only when the smoke management 
meteorologist believes there will be no measurable smoke impacts within 
the PM-10 nonattainment area. The SPZ encompasses the area within a 
twenty mile radius of the nonattainment area. Other burning 
restrictions apply on ``red'' advisory days. See Appendix VII of the 
Oakridge attainment plan for further details. LRAPA does not request 
credit for this measure but a revision to Oregon's Smoke Management 
Plan establishing the SPZ around Oakridge, is pending before EPA.
    EPA has reviewed LRAPA's submittal and associated documentation and 
concluded that they adequately justify the control measures to be 
implemented. Implementation of the Oakridge PM-10 attainment plan 
control strategy will result in the attainment of the PM-10 NAAQS as 
expeditiously as practicable and no later than December 31, 2000. In 
addition, EPA believes it is reasonable and adequate to assume that 
protection of the 24-hour standard will be sufficient to protect the 
annual standard as well. By this document, EPA is approving LRAPA's 
control strategy as satisfying the RACM (including RACT) requirement.
4. Demonstration
    As noted, moderate PM-10 nonattainment areas designated subsequent 
to enactment of the 1990 Amendments must submit a demonstration 
(including air quality modeling) showing that the plan will provide for 
attainment as expeditiously as practicable, but no later than the end 
of the sixth calendar year after an area's designation to attainment 
(see section 188(c)(1) of the Act). In the case of Oakridge, this 
attainment deadline is December 31, 2000, or the State must show that 
attainment by December 31, 2000, is impracticable.
    The attainment demonstration presented in the December 9, 1996, 
submittal indicates that the PM-10 NAAQS will be attained by 2000 in 
the Oakridge area. The 24-hour PM-10 NAAQS is 150 micrograms/cubic 
meter (g/m3 ), and the standard is attained when 
the expected number of days per calendar year with a 24-hour average 
concentration above 150 g/m3 is equal to or less 
than one (see 40 CFR 50.6). The annual PM-10 NAAQS is 50 g/
m3, and the standard is attained when the expected annual 
arithmetic mean concentration is less than or equal to 50 g/
m3 (id.).
    Generally, EPA recommends that attainment be demonstrated according 
to the PM-10 SIP Development Guideline (June 1987), which presents 
three methods. Federal regulations require demonstration of attainment 
``by means of a proportional model or dispersion model or other 
procedure which is shown to be adequate and appropriate for such 
purposes'' (40 CFR 51.112). The preferred method is the use of both 
dispersion and receptor modeling in combination. The regulation and the 
guideline also allows the use of dispersion modeling alone, or the use 
of two receptor models in combination with proportional rollback.
    In addition, EPA has developed a supplemental attainment 
demonstration policy for airsheds where receptor modeling, coupled with 
proportional (rollback) modeling, is adequate to identify source 
contributions and demonstrate attainment.7 The policy states 
that:

    \7\ July 5, 1990, memorandum entitled PM-10 SIP Demonstrations 
for Small Isolated Areas With Spatially Uniform Emissions, from 
Robert D Bauman, Chief, SO2/Particulate Matter Programs Branch (MD-
14) and Joseph A. Tikvart, Chief, Source Receptor Analysis Branch 
(MD-14) to Chief, Air Branch, Regions I-X.
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    It is appropriate in certain situations to rely on a receptor 
mode (RM) demonstration (i.e., use of receptor modeling, emission 
inventories, design value obtained by air quality monitoring, and 
proportional modeling) as the basis for a control strategy 
demonstration.

    It is EPA's Regional Offices' responsibility to decide whether or 
not that a receptor modeling demonstration is adequate to demonstrate 
attainment. In making its' decision, EPA must consider the following: 
(1) the spatial representativeness of the monitoring network and the 
spacial uniformity of emissions, (2) the temporal representativeness of 
the monitoring network, and (3) the impact of only a few, relatively 
well characterized source categories.
    During development of the Oakridge moderate area PM-10 attainment 
plan, LRAPA did not use dispersion modeling to estimate the design 
values or in the attainment and maintenance demonstrations. Instead, 
LRAPA conducted an attainment demonstration based upon receptor 
modeling-proportional roll-back calculations to estimate the emission 
reductions required in 2000 to achieve the NAAQS. EPA reviewed LRAPA's 
demonstration in accordance with the above criteria and has determined 
the demonstration approach to be acceptable. See the technical support 
document for this action for more details.
    LRAPA conducted PM-10 saturation studies in 1991 and 1994 to 
evaluate the location of the monitoring site near the Willamette 
Activities Center (WAC). These studies, in general, showed that 
although the WAC site was located near the area of highest 
concentrations, three other areas measured higher concentrations during 
the saturation studies. The site which measured the highest values is 
referred to as the Cline Street site. It was located in a neighborhood 
area west and a little south of the WAC site. Concentrations measured 
at the Cline Street site were about 20% higher than those measured at 
the WAC site. Even though the relationship between the WAC and Cline 
Street values is not linear, the 20% relationship does occur at the 
higher concentrations of interest. To account for this difference, the 
attainment year design value was adjusted upward.
    LRAPA utilized EPA's ``table look-up'' method to estimate the 1991 
baseline design concentration. This method allows the use of the fourth 
highest actual base year measured value to be used. The fourth highest 
measured concentration at the WAC site for the calendar years 1991, 
1992, and 1993 was 178 g/m\3\. To account for the difference 
between the WAC site and the levels measured during the saturation 
studies at the Cline Street site, the table look-up value was increased 
by 20%. This resulted in an adjusted base year design value of 214 
g/m\3\. (178 x 1.2 = 213.6).
    Based on the above design values, LRAPA estimates that year 2000 
worst case day emissions must be reduced by 30.6%, which equals 294.1 
pounds per day. The previously discussed control measures are designed 
to reduce projected 2000 worst case day emissions by 306 pounds per day 
(11.9 pounds per day beyond the amount needed for attainment). 
According to the principle of proportional roll-back modeling, a 
reduction of 294.1 pounds from Oakridge's PM-10 emission sources will 
result in a year 2000 worst case day ambient concentration of 119.7 
g/m\3\ at the WAC site, and 147.3 g/m\3\ at the Cline 
Street site. See the technical support document for this action for 
more details.
    EPA is approving the attainment demonstration. It is EPA's opinion 
that the appropriate air quality model was used and all significant 
emission sources and impacts were considered. The attainment plan 
demonstrates that the area will attain the 24-hour PM-10

[[Page 12756]]

NAAQS by December 31, 2000. And, the annual standard which has never 
been exceeded, will continue to be maintained. EPA has also considered 
the fact that the area has not experienced an exceedance of the 24-hour 
NAAQS in the last five years (1993 through 1998).
5. PM-10 Precursors
    The control requirements that are applicable to major stationary 
sources of PM-10 also apply to major stationary sources of PM-10 
precursors, unless EPA determines such sources do not contribute 
significantly to PM-10 levels which exceed the NAAQS in that area (see 
section 189(e) of the Act). The General Preamble contains guidance 
addressing how EPA intends to implement section 189(e) (57 FR 13539-
13542).
    LRAPA's technical analysis of potential candidate control measures 
indicated that emissions from industrial point sources were 
insignificant--approximately 5.5 pounds per day equaling 0.6% 
contribution on a 24-hour worst case day basis. Also, historical 
violations of the 24-hour standard have occurred during periods of 
extensive poor ventilation (stagnation conditions) and cold 
temperatures.
    Therefore, EPA believes that sources of PM-10 precursors do not 
contribute significantly to PM-10 levels in excess of the NAAQS and 
hereby grants the exclusion from control requirements authorized under 
section 189(e) for major stationary sources of PM-10 precursors.
    Note that, while EPA is making a general finding for the Oakridge 
area about precursor contribution to PM-10 NAAQS exceedances, this 
finding is based on the current character of the area including, for 
example, the existing mix of sources in the area. It is possible, 
therefore, that future growth could change the significance of 
precursors in the area.
6. Quantitative Milestones and Reasonable Further Progress
    The PM-10 nonattainment area plans demonstrating attainment must 
contain quantitative emission reduction milestones which are to be 
achieved every three years until the area is redesignated attainment 
and which demonstrate reasonable further progress (RFP), as defined in 
section 171(1) of the Act, toward timely attainment. While section 
189(c) plainly provides that quantitative milestones are to be achieved 
until an area is redesignated attainment, it is silent in indicating 
the starting point for counting the first three-year period or how many 
milestones must be initially addressed. In the General Preamble, EPA 
addressed this statutory gap indicating that the starting point would 
begin from the due date for the applicable implementation plan revision 
containing the control measures for the area (i.e., November 15, 1991 
for initial moderate PM-10 nonattainment areas) and that at least two 
milestones must be initially addressed. See 57 FR 13539.
    States containing moderate nonattainment areas designated 
subsequent to enactment of the 1990 Amendments are expected to 
initially submit two milestones. States are required to submit SIP's 
for these areas 18 months after their redesignation as nonattainment. 
The attainment date for new PM-10 nonattainment areas is ``as 
expeditiously as practicable'' but no later than the end of the sixth 
calendar year after the effective date of an area's designation as 
nonattainment. Oakridge was designated as nonattainment effective on 
January 24, 1994, therefore the attainment date for Oakridge is 
December 31, 2000.
    Because the SIP revision, including the quantitative milestones 
element, for a new nonattainment area is due 18 months after the area 
is designated as nonattainment, the first 3-year milestone is to be 
achieved 4 \1/2\ years after the nonattainment redesignation. Since 
Oakridge's redesignation became effective on January 20, 1994, the 
first 3-year milestone must be achieved by July 20, 1998 (i.e., 1\1/2\ 
years prior to the attainment deadline). The second quantitative 
milestone must be achieved three years after the first milestone or 
7\1/2\ years after the nonattainment designation. For Oakridge, the 
second quantitative milestone must be achieved by July 20, 2001. The 
second quantitative milestone should provide for continued emission 
reduction progress toward attainment and should provide for continued 
maintenance of the NAAQS after the attainment date for the 
area.8
---------------------------------------------------------------------------

    \8\ Section 189(c) of the Act provides that quantitative 
milestones are to be achieved ``until the area is redesignated 
attainment''. However, this endpoint for quantitative milestones is 
speculative because redesignation of an area as attainment is 
contingent upon several factors and future events. Therefore, EPA 
believes it is reasonable for States to initially address at least 
the first two milestones. Addressing two milestones will ensure that 
the State continues to maintain the NAAQS beyond the attainment date 
for at least some period during which an area could be redesignated 
attainment. However, in all instances, additional milestones must be 
addressed if an area is not redesignated attainment.
---------------------------------------------------------------------------

    This SIP demonstrates attainment of the PM-10 NAAQS by December 31, 
2000, and maintenance of the NAAQS through the year 2003, satisfying 
two milestones. In addition, all controls measures were implemented by 
August 1996. Therefore, EPA is approving the submittal as meeting the 
quantitative milestone requirement currently due. Finally, once a 
milestone date has passed, the State will have to demonstrate that the 
milestone was, in fact, achieved for the Oakridge area as provided in 
Section 189(c)(2) of the Act.
7. Enforceability Issues
    All measures and other elements in the SIP must be enforceable by 
the LRAPA, ODEQ and EPA (see sections 172(c)(6), 110(a)(2)(A) of the 
Act and 57 FR 13556). The EPA criteria addressing the enforceability of 
SIPs and SIP revisions were stated in a September 23, 1987 memorandum 
(with attachments) from J. Craig Potter, Assistant Administrator for 
Air and Radiation, et al. (see 57 FR 13541). Nonattainment area plan 
provisions also must contain a program to provide for enforcement of 
control measures and other elements in the SIP (see section 
110(a)(2)(C) of the Act).
    The particular control measures contained in the SIP were addressed 
above under the section headed ``RACM (including RACT)''. These control 
measures apply to each of the identified major sources of PM-10 
emissions in the Oakridge area, including woodstoves and road dust. The 
SIP provides that the control measures apply throughout the entire 
nonattainment area. EPA has carefully reviewed the control measures for 
each of the major PM-10 sources and determined that the proposed SIP as 
a whole, provides for adequate control of these sources.
    During EPA's review of a SIP revision involving Oregon's statutory 
authority, a problem was detected which affected the enforceability of 
point source permit limitations. Even though this SIP revision does not 
contain additional point source controls to attain the standard, 
existing and federally approved point source emission limitations are 
relied upon to maintain and demonstrate attainment with the PM-10 NAAQS 
in the Oakridge area.
    EPA determined that, because the five-day advance notice provision 
required by ORS 468.126(1) (1991) bars civil penalties from being 
imposed for certain permit violations, ORS 468 fails to provide the 
adequate enforcement authority that a state must demonstrate to obtain 
SIP approval, as specified in Section 110 of the Clean Air Act and 40 
CFR 51.230. Accordingly, the requirement to provide such notice would 
preclude federal approval of a PM-10 nonattainment area SIP revision.

[[Page 12757]]

    EPA notified Oregon of the deficiency. To correct the problem the 
Governor of Oregon signed into law new legislation amending ORS 468.126 
on September 3, 1993. This amendment added paragraph 468.126(2)(e) 
which provides that the five-day advance notice required by ORS 
468.126(1) does not apply if the notice requirement will disqualify a 
state program from federal approval or delegation. ODEQ responded to 
EPA's understanding of the application of 468.126(2)(e) and agreed 
that, if federal statutory requirements preclude the use of the five-
day advance notice provision, no advance notice will be required for 
violations of SIP requirements contained in permits.
    Another enforcement issue is Oregon's audit privilege and immunity 
law. Nothing in this action should be construed as making any 
determination or expressing any position regarding Oregon's Audit 
Privilege Act, ORS 468.963 enacted in 1993, or its impact upon any 
approved provision in the SIP, including the revision at issue here. 
The action taken herein does not express or imply any viewpoint on the 
question of whether there are legal deficiencies in this or any other 
Clean Air Act Program resulting from the effect of Oregon's audit 
privilege and immunity law. A state audit privilege and immunity law 
can affect only state enforcement and cannot have any impact on federal 
enforcement authorities. EPA may at any time invoke its authority under 
the Clean Air Act, including, for example, sections 113, 167, 205, 211 
or 213, to enforce the requirements or prohibitions of the state plan, 
independently of any state enforcement effort. In addition, citizen 
enforcement under section 304 of the Clean Air Act is likewise 
unaffected by a state audit privilege or immunity law.
    In regard to a separate enforceability issue, the following is a 
summary of the state, city, and interagency commitments which EPA is 
approving as part of the SIP.
    A. Voluntary Woodstove Curtailment Program. This program was 
adopted by LRAPA on July 18, 1996, and the State of Oregon on October 
11, 1996. Details of the program are discussed in the TSD to this 
action and the SIP revision.
    B. Winter Road Sanding Program, Oregon Department of Transportation 
Highway Division Commitment. Sanding and maintenance of U.S. Highway 58 
through Oakridge is the responsibility of the Oregon Department of 
Transportation, Highway Division, Region 3. Since 1995, a chemical de-
icing compound has been specified for use in Oakridge. The Highway 
Department is committed to and intends on using anti-icing chemicals 
within the City of Oakridge into the future.
    The Governor of Oregon designated the Lane Regional Air Pollution 
Authority as lead organization for implementing, maintaining, and 
enforcing PM-10 control strategies in Lane County. The TSD contains a 
discussion of the personnel and funding intended to support effective 
implementation of the control strategy. Thus, EPA has determined that 
the control measures contained in the SIP revision for Oakridge are 
sufficient and the LRAPA has adequate enforcement capabilities to 
ensure compliance with those control measures.
8. Contingency Measures
    The Clean Air Act requires each state containing PM-10 
nonattainment areas to adopt contingency measures for such areas that 
will take effect without further action by the state or EPA's 
Administrator upon a determination by EPA that an area has failed to 
make reasonable further progress (RFP) or to attain the standards, as 
described in Section 172(c)(9) of the CAA. Pursuant to Section 172(b), 
the Administrator has determined that Oakridge shall include 
contingency measures with their Attainment Plan no later than July 20, 
1995 (see 57 FR 13510-13512, 13543-13544, and 58 FR 67344-67341). EPA 
guidance recommends that the emission reductions expected from 
implementation of the contingency measures equal twenty-five percent of 
the total reduction in actual emissions in the plan's control strategy 
(57 FR 13544). However, the CAA does not specify how many contingency 
measures are needed or the magnitude of emissions reductions that must 
be provided by these measures (57 FR 13511). EPA believes that, 
consistent with the statutory scheme, contingency measures must at a 
minimum provide for continued progress toward the attainment goal in 
the interim period after an area fails to attain and while additional 
measures required as a result of being reclassified to serious are 
being adopted (57 FR 13511).
    On August 15, 1996, the Oakridge City Council passed Ordinance No. 
815. This ordinance granted the city the authority to implement a 
mandatory woodstove curtailment program. A mandatory program would be 
implemented if the city's voluntary program did achieve the necessary 
emission reductions needed to satisfy the attainment plan's first 
milestone, or if the area did not attain the 24-hour PM-10 NAAQS by the 
December 31, 2000 attainment.
    EPA is approving the contingency measure for the Oakridge 
nonattainment area. The authority to implement the above measures will 
go into effect upon a determination by EPA that the area has failed to 
attain, or prior to the attainment date, if milestones for the area are 
not being met.

III. Implications of This Action

    EPA is approving the December 9, 1996, PM-10 attainment plan for 
the Oakridge nonattainment area. Among other things, LRAPA has 
demonstrated that the Oakridge moderate PM-10 nonattainment area will 
attain the PM-10 NAAQS by December 31, 2000. Note that EPA's action 
includes approval of the contingency measure for the Oakridge 
nonattainment area.
    EPA is publishing this rule without prior proposal because the 
Agency views this as a noncontroversial action and anticipates no 
adverse comments. However, in the proposed rules section of this 
Federal Register publication, EPA is publishing a separate document 
that will serve as the proposal to approve the SIP revision should 
adverse comments be filed. This rule will be effective May 14, 1999, 
without further notice unless the Agency receives adverse comments by 
April 14, 1999.
    If the EPA receives such comments, then EPA will publish a notice 
withdrawing the final rule and informing the public that the rule will 
not take effect. All public comments received will then be addressed in 
a subsequent final rule based on the proposed rule. The EPA will not 
institute a second comment period. Parties interested in commenting 
should do so at this time. If no such comments are received, the public 
is advised that this rule will be effective on May 14, 1999, and no 
further action will be taken on the proposed rule.

IV. Administrative Requirements

A. Executive Order 12866

    The Office of Management and Budget (OMB) has exempted this 
regulatory action from Executive Order (E.O.) 12866, entitled 
``Regulatory Planning and Review.''

B. Executive Order 12875

    Under Executive Order 12875, Enhancing the Intergovernmental 
Partnership, EPA may not issue a regulation that is not required by 
statute and that creates a mandate upon a State, local or tribal 
government, unless the Federal government provides the funds necessary 
to pay the direct compliance costs incurred by those governments, or 
EPA consults with those governments. If

[[Page 12758]]

EPA complies by consulting, Executive Order 12875 requires EPA to 
provide to the Office of Management and Budget a description of the 
extent of EPA's prior consultation with representatives of affected 
State, local and tribal governments, the nature of their concerns, 
copies of any written communications from the governments, and a 
statement supporting the need to issue the regulation. In addition, 
Executive Order 12875 requires EPA to develop an effective process 
permitting elected officials and other representatives of State, local 
and tribal governments to provide meaningful and timely input in the 
development of regulatory proposals containing significant unfunded 
mandates.
    Today's rule does not create a mandate on State, local or tribal 
governments. The rule does not impose any enforceable duties on these 
entities. Accordingly, the requirements of section 1(a) of E.O. 12875 
do not apply to this rule.

C. Executive Order 13045

    Protection of Children from Environmental Health Risks and Safety 
Risks (62 FR 19885, April 23, 1997), applies to any rule that: (1) is 
determined to be ``economically significant'' as defined under E.O. 
12866, and (2) concerns an environmental health or safety risk that EPA 
has reason to believe may have a disproportionate effect on children. 
If the regulatory action meets both criteria, the Agency must evaluate 
the environmental health or safety effects of the planned rule on 
children, and explain why the planned regulation is preferable to other 
potentially effective and reasonably feasible alternatives considered 
by the Agency.
    This rule is not subject to E.O. 13045 because it does not involve 
decisions intended to mitigate environmental health or safety risks.

D. Executive Order 13084: Consultation and Coordination With Indian 
Tribal Governments

    Under E.O. 13084, EPA may not issue a regulation that is not 
required by statute, that significantly or uniquely affects the 
communities of Indian tribal governments, and that imposes substantial 
direct compliance costs on those communities, unless the Federal 
government provides the funds necessary to pay the direct compliance 
costs incurred by the tribal governments, or EPA consults with those 
governments. If EPA complies by consulting, E.O. 13084 requires EPA to 
provide to the Office of Management and Budget, in a separately 
identified section of the preamble to the rule, a description of the 
extent of EPA's prior consultation with representatives of affected 
tribal governments, a summary of the nature of their concerns, and a 
statement supporting the need to issue the regulation. In addition, 
E.O. 13084 requires EPA to develop an effective process permitting 
elected officials and other representatives of Indian tribal 
governments to provide meaningful and timely input in the development 
of regulatory policies on matters that significantly or uniquely affect 
their communities.
    Today's rule does not significantly or uniquely affect the 
communities of Indian tribal governments. Accordingly, the requirements 
of section 3(b) of E.O. 13084 do not apply to this rule.

E. Regulatory Flexibility Act

    The Regulatory Flexibility Act (RFA) generally requires an agency 
to conduct a regulatory flexibility analysis of any rule subject to 
notice and comment rulemaking requirements unless the agency certifies 
that the rule will not have a significant economic impact on a 
substantial number of small entities. Small entities include small 
businesses, small not-for-profit enterprises, and small governmental 
jurisdictions. This final rule will not have a significant impact on a 
substantial number of small entities because 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 
create any new requirements, I certify that this action will not have a 
significant economic impact on a substantial number of small entities. 
Moreover, due to the nature of the Federal-State relationship under the 
Clean Air Act, preparation of 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).

F. 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 prepare a budgetary impact statement to accompany any proposed or 
final rule that includes a Federal mandate that may result in estimated 
annual 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 promulgated does not 
include a Federal mandate that may result in estimated annual 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.

G. Submission to Congress and the Comptroller General

    The Congressional Review Act, 5 U.S.C. 801 et seq., as added by the 
Small Business Regulatory Enforcement Fairness Act of 1996, generally 
provides that before a rule may take effect, the agency promulgating 
the rule must submit a rule report, which includes a copy of the rule, 
to each House of the Congress and to the Comptroller General of the 
United States. EPA will submit 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 United States prior 
to publication of the rule in the Federal Register. This rule is not a 
``major'' rule as defined by 5 U.S.C. 804(2).

H. Petitions for Judicial Review

    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 May 14, 1999. 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, Particulate matter.

    Note: Incorporation by reference of the Implementation Plan for 
the State of Oregon

[[Page 12759]]

was approved by the Director of the Office of Federal Register on 
July 1, 1982.

    Dated: February 20, 1999.
Chuck Findley,
Acting Regional Administrator, Region 10.

    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 et seq.

Subpart MM--Oregon

    2. Section 52.1970 is amended by adding paragraph (c)(127) to read 
as follows:


Sec. 52.1970  Identification of plan.

* * * * *
    (c) * * *
    (127) December 9, 1996, letter from the Director, Oregon Department 
of Environmental Quality, to the Region 10 Regional Administrator, EPA, 
submitting the Attainment Plan for the Oakridge, Oregon PM-10 
nonattainment area as a revision to its SIP.
    (i) Incorporation by reference.
    (A) State Implementation Plan for PM-10 in Oakridge, dated August 
1996, and Appendices XII, XIII and XIV.
    (ii) Additional Material: Appendix I through VI and VIII through XI 
of the State Implementation Plan for PM-10 in Oakridge dated August 
1996.

[FR Doc. 99-6259 Filed 3-12-99; 8:45 am]
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