[Federal Register Volume 64, Number 73 (Friday, April 16, 1999)]
[Proposed Rules]
[Pages 18864-18870]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 99-9470]


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ENVIRONMENTAL PROTECTION AGENCY

40 CFR Part 81

[TX-81-1-7350; FRL-6324-3]


Clean Air Act Reclassification or Eligibility for Extension of 
Attainment Date, Texas; Beaumont/Port Arthur Ozone Nonattainment Area

AGENCY: Environmental Protection Agency (EPA).


[[Page 18865]]


ACTION: Proposed rule.

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SUMMARY: We propose to find that the Beaumont/Port Arthur moderate 
ozone nonattainment area has failed to attain the one-hour ozone 
National Ambient Air Quality Standard (NAAQS). This proposed finding is 
based on the requirements of the Federal Clean Air Act (the Act), and 
our review of monitored air quality data from the area. If we take 
final action on this proposed finding, the area would be reclassified 
as a serious ozone nonattainment area. Alternatively, we are proposing 
to extend the area's attainment date, if Texas, by November 15, 1999, 
submits a SIP that meets EPA's July 1998 transport policy. If Texas 
submits a SIP meeting these requirements, we will issue a supplemental 
proposal to extend the area's attainment date, as appropriate.

DATES: We must receive comments on or before May 17, 1999.

ADDRESSES: All comments should be addressed to: Lt. Mick Cote, EPA 
Region 6, 1445 Ross Avenue, Suite 1200, Dallas, Texas 75202.
    Copies of the Beaumont/Port Arthur monitored air quality data 
analyses, guidance on extension of attainment dates in downwind 
transport areas, our technical support document, and other relevant 
documents used in support of this proposal, are available at the 
following addresses for inspection during normal business hours: 
Environmental Protection Agency, Air Planning Section, 1445 Ross 
Avenue, Suite 700, Dallas, Texas 75202; Texas Natural Resource 
Conservation Commission, 12124 Park 35 Circle, Austin, Texas 78753. 
Please contact the appropriate office at least 24 hours in advance.

FOR FURTHER INFORMATION: Lt. Mick Cote at (214) 665-7219.

SUPPLEMENTARY INFORMATION:

Table of Contents

I. What action are we taking today?
II. What are the National Ambient Air Quality Standards?
III. What is the NAAQS for ozone?
IV. What is the Beaumont/Port Arthur ozone nonattainment area?
V. Why is the Beaumont/Port Arthur area currently classified as 
moderate?
VI. Why is EPA proposing to reclassify the Beaumont/Port Arthur 
area?
VII. Has air quality improved in the Beaumont/Port Arthur area in 
recent years?
VIII. What would a reclassification mean for Beaumont/Port Arthur?
IX. Can an extension of the attainment date be granted based on 1996 
air quality data?
X. What is EPA's new policy regarding extension of attainment dates 
for downwind transport areas?
XI. What does the July 1998 Transport policy require Texas to do?
XII. Can Beaumont/Port Arthur qualify for an attainment date 
extension under the transport policy?
XIII. When will EPA make a final decision on whether to bump-up or 
grant an extension for the Beaumont/Port Arthur area?
XIV. If the Beaumont/Port Arthur area is reclassified, what would 
its new schedule be?
XV. Administrative Requirements.

I. What Action Are We Taking Today?

    We are proposing to find pursuant to section 181(b)(2) of the Clean 
Air Act that the Beaumont/Port Arthur area has failed to attain the 
ozone one-hour NAAQS by the date prescribed under the Act for moderate 
ozone nonattainment areas, or November 15, 1996. If we finalize this 
finding, the Beaumont/Port Arthur area will be reclassified from 
moderate nonattainment to serious nonattainment.
    Alternatively, we are proposing to extend the attainment date, 
providing that Texas meets the criteria of our July 16, 1998 transport 
policy, Guidance on Extension of Attainment Dates for Downwind 
Transport Areas. If Texas submits a SIP by November 15, 1999, that 
meets the July 1998 transport policy, we will issue a supplemental 
proposal in a Federal Register notice to extend the Beaumont/Port 
Arthur area's attainment date as appropriate. If Texas does not submit 
by November 15, 1999, a SIP that meets the July 1998 transport policy, 
or fails to submit a SIP by this date, we would finalize this proposed 
finding of failure to attain, and the Beaumont/Port Arthur area would 
be reclassified as a serious ozone nonattainment area.

II. What Are the National Ambient Air Quality Standards?

    We have set NAAQS for six air pollutants: Carbon Monoxide (CO), 
Lead (Pb), Nitrogen Dioxide (NO2), Ozone (O3), 
Particulate matter (PM), and Sulfur Dioxide (SO2). The Act 
requires us to set these NAAQS at levels that protect public health and 
welfare with an adequate margin of safety. These NAAQS provide 
information to the American people about whether the air in their 
community is healthful. Also, the NAAQS present state and local 
governments with the minimum pollutant concentrations allowed to 
achieve clean air.
    For several pollutants, there are two types of NAAQS--primary and 
secondary. Primary NAAQS protect against adverse health effects; 
secondary NAAQS protect against welfare effects, such as damage to farm 
crops and vegetation and damage to buildings. Because different 
pollutants have varying effects, the form of NAAQS also varies. Some 
pollutants have NAAQS for both long-term and short-term averaging 
times. The short-term NAAQS are designed to protect against acute, or 
short-term, health effects, while the long-term NAAQS were established 
to protect against chronic health effects.

III. What Is the NAAQS for Ozone?

    The NAAQS for ozone is expressed in two forms, which are referred 
to as the one-hour and 8-hour standards. Table 1 summarizes the ozone 
NAAQS.

                                        Table 1.--Summary of Ozone NAAQS
----------------------------------------------------------------------------------------------------------------
        Standard                  Value                            Type                    Method of compliance
----------------------------------------------------------------------------------------------------------------
One-hour...............  0.12 ppm..............  Primary and Secondary..................  Must not be exceeded
                                                                                           on average more than
                                                                                           one day per year over
                                                                                           any three-year
                                                                                           period.
8-hour.................  0.08 ppm..............  Primary and Secondary..................  The 3-year average of
                                                                                           the annual fourth-
                                                                                           highest daily maximum
                                                                                           8-hour average ozone
                                                                                           concentration
                                                                                           measured at each
                                                                                           monitor within an
                                                                                           area.
----------------------------------------------------------------------------------------------------------------

    The one-hour ozone NAAQS of 0.12 parts per million has existed 
since 1979. The 8-hour ozone NAAQS was promulgated by EPA on July 18, 
1997 (62 FR 38856). The one-hour ozone NAAQS continues to apply for 
existing nonattainment areas until these areas attain the one-hour 
ozone NAAQS (40 CFR 50.9(b)). It is the classification of the Beaumont/
Port Arthur area relative to the one-hour ozone NAAQS that is addressed 
in this document.

[[Page 18866]]

IV. What Is the Beaumont/Port Arthur Ozone Nonattainment Area?

    The Beaumont/Port Arthur moderate ozone nonattainment area is 
located in Southeast Texas, and consists of Hardin, Jefferson, and 
Orange Counties.

V. Why Is the Beaumont/Port Arthur Area Currently Classified as 
Moderate?

    Each ozone area designated nonattainment for the one-hour ozone 
standard prior to enactment of the 1990 Act Amendments was designated 
nonattainment by operation of law upon enactment of the 1990 
Amendments. Under section 181(a) of the Act, each ozone area designated 
nonattainment under section 107(d) was also classified by operation of 
law as ``marginal,'' ``moderate,'' ``serious,'' ``severe,'' or 
``extreme,'' depending on the severity of the area's air quality 
problem. The design value for an area is represented by the fourth 
highest one-hour daily monitored ozone level in a given three-year 
period. Table 2 provides the design value ranges for each nonattainment 
classification. Ozone nonattainment areas with design values between 
0.138 and 0.160 parts per million (ppm), such as the Beaumont/Port 
Arthur area, were classified as moderate.1 These 
nonattainment designations and classifications were codified in 40 CFR 
part 81 (see 56 FR 56694, November 6, 1991).
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    \1\ The Beaumont/Port Arthur area (the area) was classified as a 
serious ozone nonattainment area by EPA on November 6, 1991 (56 FR 
56694). However, we corrected the ozone design value from 0.160 ppm 
to 0.158 ppm. Pursuant to section 110(k)(6) of the Act, which allows 
us to correct our actions, we corrected the classification of the 
area from serious to moderate (61 FR 14496, April 2, 1996).

              Table 2.--Ozone Nonattainment Classifications
------------------------------------------------------------------------
                                                              Attainment
          Area class                 Design value (ppm)          date
------------------------------------------------------------------------
Marginal.....................  0.121 up to 0.138............    11/15/93
Moderate.....................  0.138 up to 0.160............    11/15/96
Serious......................  0.160 up to 0.180............    11/15/99
Severe.......................  0.180 up to 0.280............    11/15/05
Extreme......................  0.280 and above..............    11/15/10
------------------------------------------------------------------------

    States containing areas that were classified as moderate 
nonattainment were required to submit SIPs which required control 
measures to reduce emissions, and to provide for attainment of the 
ozone standard no later than November 15, 1996. Moderate area SIP 
requirements are found primarily in section 182(b) of the Act.

VI. Why Is EPA Proposing To Reclassify the Beaumont/Port Arthur 
Area?

    Section 181(b)(2) of the Act provides that we determine, within 6 
months following the applicable attainment date, whether an ozone 
nonattainment area has attained the one-hour ozone standard. If we find 
that the nonattainment area has failed to attain the one-hour ozone 
standard by the applicable attainment date, then we are to publish a 
notice in the Federal Register identifying the area that we have 
determined has failed to attain, and the appropriate reclassification. 
In the case of Beaumont/Port Arthur, we have yet to make the 
determination as described above.
    We make attainment determinations for ozone nonattainment areas 
using quality-assured air quality data. In the case of the Beaumont/
Port Arthur area, the attainment determination is based on 1994-1996 
air quality data. The data show that for 1994-1996 four monitoring 
sites averaged more than one exceedance day per year. We propose to 
determine that the Beaumont/Port Arthur area's air quality has not met 
the one-hour ozone NAAQS by November 15, 1996, based upon all quality-
assured air quality data available to us for the years 1994-1996.
    Our data includes all data available from the State and local/
national air monitoring (SLAM/NAMS) network as submitted to our 
Aerometric Information Retrieval System, and all data available to us 
from special purpose monitoring (SPM) sites that meet our monitor 
siting criteria (40 CFR 58.13). Our policy on the use of ozone SPM data 
is described in the August 22, 1997, Memorandum from John Seitz, 
Director, Office of Air Quality Planning and Standards, to Regional Air 
Directors, entitled, Agency Policy on the Use of Ozone Special Purpose 
Monitoring Data.
    Table 3 lists the number of recorded exceedances of the one-hour 
ozone standard at each SLAMS/SPM monitoring site in the Beaumont/Port 
Arthur area for the period 1994 through 1998, and each monitor's design 
value for that period. A complete listing of the ozone exceedances at 
each monitor as well as EPA's calculations of the design values can be 
found in the technical support document.

                                               Table 3: Ozone Exceedances in the Beaumont/Port Arthur Area
--------------------------------------------------------------------------------------------------------------------------------------------------------
                                                                                                                               Site Design Value (ppm)
                      Site                                   Type                1994     1995     1996     1997     1998  -----------------------------
                                                                                                                              94-96     95-97     96-98
--------------------------------------------------------------------------------------------------------------------------------------------------------
Beaumont.......................................  SLAMS                               1        5        0        3        3     0.128     0.133     0.133
Port Arthur....................................  SLAMS                               0        5        0        0        0     0.139     0.139     0.118
West Orange....................................  SLAMS                               1        0        0        2        1     0.12      0.121     0.122
Sabine.........................................  SPM                                 2        1        7        2  .......     0.157     0.157  ........
Mauriceville...................................  SPM                                 0        0        0        2  .......     0.109     0.104  ........
Jefferson Co. Airport..........................  SPM                                 2        6        0        2  .......     0.139     0.139  ........
--------------------------------------------------------------------------------------------------------------------------------------------------------
--We do not have any data for 1998 from the three SPMs. However, data from the SLAMS sites alone indicates continued violation of the one-hour ozone
  NAAQS. Although our decision to propose reclassification does not depend on the SPM data for 1998, we have requested it from the State.

    If we finalize this proposed action, the new classification will be 
the higher of the next higher classification or the classification 
appropriate to the design value at the time the notice of 
reclassification is published. The next highest classification for the 
Beaumont/Port Arthur area is serious. The design value of the Beaumont/
Port Arthur area at the time of the proposed finding of failure to 
attain is based on air quality monitoring data from 1996 through 1998. 
This design value is .133 ppm. This design value correlates with a 
marginal classification, as taken from Table 2. Since the next higher 
classification is greater than what the current design value indicates, 
the correct classification would be serious nonattainment under the 
statutory scheme.

[[Page 18867]]

VII. Has Air Quality Improved in the Beaumont/Port Arthur Area in 
Recent Years?

    The air quality in the Beaumont/Port Arthur area has not improved 
in recent years. Two of the three SLAMS monitors listed in Table 3 have 
design values that have increased since 1994. Likewise, two of the 
three SPM monitors listed in Table 3 have design values that have 
increased between 1994 and 1997.

VIII. What Would a Reclassification Mean for Beaumont/Port Arthur?

    The Beaumont/Port Arthur area would need to reach the ozone NAAQS 
as expeditiously as practicable, but no later than November 15, 1999. 
Texas would also need to submit SIP revisions addressing the serious 
area requirements for the one-hour ozone standard in section 182(c) of 
the Act. The requirements for serious ozone nonattainment areas 
include, but are not limited to, the following:2
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    \2\ An enhanced vehicle Inspection and Maintenance (I/M) program 
would normally be listed as a requirement for a serious ozone 
nonattainment area. However, the Federal I/M Flexibility Amendments 
of 1995 determined that urbanized areas with populations less than 
200,000 for 1990 (such as Beaumont/Port Arthur) are not mandated to 
participate in the I/M program (60 FR 48033, September 18, 1995).
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    1. Attainment and Reasonable Further Progress demonstrations.
    2. Clean-fuel vehicle programs.
    3. A 50 ton-per-year major source threshold.
    4. More stringent new source review requirements.
    5. An enhanced monitoring program.
    6. Transportation Control Measures.
    7. Contingency provisions.

IX. Can an Extension of the Attainment Date Be Granted Based on 
1996 Air Quality Data?

    Two mechanisms exist for the Beaumont/Port Arthur area to obtain an 
extension of its attainment date. First, a State may request, and at 
our discretion we may grant, up to two one-year attainment date 
extensions. We may grant an extension under section 181(a)(5) of the 
Act only if:
    1. The State has complied with the requirements and commitments 
pertaining to the applicable implementation plan for the area.
    2. The area has measured no more than one exceedance of the ozone 
NAAQS at any monitoring site in the nonattainment area in the year in 
which attainment is required.
    On January 9, 1997, the Governor of the State of Texas submitted a 
request for a one-year extension of the attainment date for the 
Beaumont/Port Arthur area. The request was based on the absence of 
exceedances from SLAMS data in the area in 1996. However, the area had 
more than one exceedance at the Sabine SPM monitor in 1996, and 
numerous exceedances at SLAMS and SPM sites in 1997. Since the 1996 and 
1997 data show that the area failed to attain, and Texas has not 
submitted a plan providing for attainment, we are exercising our 
discretion to not grant a section 181(a)(5) extension. However, Texas 
has another mechanism available for obtaining an extension. This 
mechanism is discussed below.

X. What Is EPA's New Policy Regarding Extension of Attainment Dates 
for Downwind Transport Areas?

    A number of areas in the country that have been classified as 
moderate or serious are affected by pollutants that have traveled 
downwind from other areas. For these downwind areas, transport of 
pollutants from upwind areas has interfered with their ability to meet 
the ozone standard by the dates prescribed by the Act. As a result, 
many of these areas, such as Beaumont/Port Arthur, find themselves 
facing the prospect of being reclassified, or ``bumped up,'' to a 
higher classification for failing to meet the ozone standard by the 
specified date.
    On July 16, 1998, in consideration of these factors and the 
realization that many areas are unable to meet the mandated attainment 
dates due to transport 3, we issued a policy memorandum 
entitled Guidance on Extension of Air Quality Attainment Dates for 
Downwind Transport Areas. This policy outlines the criteria by which 
the attainment date for an area may be extended.
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    \3\  Through a two-year effort known as the Ozone Transport 
Assessment Group (OTAG), the EPA worked in partnership with the 37 
easternmost states and the District of Columbia, industry 
representatives, academia, and environmental groups to develop 
recommended strategies to address transport of ozone-forming 
pollutants across state boundaries.
    On November 7, 1997, the EPA acted on OTAG's recommendations and 
issued a proposal (the proposed NOx SIP call, 62 FR 60318) requiring 
22 states and the District of Columbia to submit state plans 
addressing the regional transport of ozone. These state plans, or 
SIPS, will decrease the transport of ozone across state boundaries 
in the eastern half of the United States by reducing emissions of 
nitrogen oxides (a precursor to ozone formation known as NOx). The 
EPA took final action on the NOx SIP call on October 27, 1998 (63 FR 
57356). The EPA expects the final NOx SIP call will assist many 
areas in attaining the 1-hour ozone standard.
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    Our July 1998 transport policy offers another opportunity for Texas 
to request an extension of the attainment date for the Beaumont/Port 
Arthur area. This policy draws on other provisions of the Act to 
authorize attainment date extensions for downwind transport areas.

XI. What Does the July 1998 Transport Policy Require Texas To Do?

    This transport policy outlines the steps Texas will need to take in 
order for us to consider extending the Beaumont/Port Arthur area's 
attainment date. The steps we believe Texas will need to take include:
    1. Demonstrate that the Beaumont/Port Arthur Area's air quality is 
affected by transport from (a) an upwind area in Texas with a later 
attainment date, or (b) an upwind area in another State, which 
significantly contributes to Beaumont/Port Arthur's continued ozone 
nonattainment.
    2. Submit to us an approvable attainment demonstration by November 
15, 1999. This demonstration must show that the Beaumont/Port Arthur 
area will attain as expeditiously as practicable, but no later than the 
attainment date of the upwind area.
    3. Submit any additional local control measures needed for 
expeditious attainment. Any additional measures must be adopted prior 
to November 15, 1999.
    4. Submit proof that all applicable local control measures required 
under the moderate classification have been adopted and implemented. In 
addition, submit any necessary changes to the State's existing rules 
for control of emissions from industrial wastewater and Synthetic 
Organic Chemical Industry batch processing operations. Some changes may 
be needed to ensure that these rules meet our Reasonably Available 
Control Technology requirements. Any necessary changes must be adopted 
prior to November 15, 1999.
    5. Provide that all newly adopted control measures will be 
implemented as expeditiously as practical. All measures must be 
implemented no later than the date that the upwind reductions needed 
for attainment will be achieved.
    We contemplate that when we act to approve an area's attainment 
demonstration, we will, as necessary, extend that area's attainment 
date to a date appropriate for that area in light of the schedule for 
achieving the necessary upwind reductions. The area would no longer be 
subject to reclassification or ``bump-up'' for failure to attain by its 
original attainment date under section 181(b)(2).

[[Page 18868]]

XII. Can Beaumont/Port Arthur Qualify for an Attainment Date 
Extension Under the Transport Policy?

    It is premature to say whether or not the Beaumont/Port Arthur area 
will qualify for an attainment date extension under the July 1998 
transport policy. We believe that the area may be affected by upwind 
transport. However, before the Beaumont/Port Arthur area can qualify 
for an attainment date extension under the July 1998 transport policy, 
all the criteria specified in the transport policy must be met.
    In October 1998, we notified the Governor of Texas of the 
availability of the July 1998 transport policy. We also requested that 
the Governor respond to us with a letter committing Texas to meet the 
requirements necessary to qualify for an attainment date extension 
under the July 1998 transport policy by November 15, 1999. We received 
the Governor's commitment letter on December 21, 1998.
    We are aware that local representatives are working closely with 
the TNRCC to meet the requirements of the July 1998 transport policy, 
and to improve the area's air quality. Their efforts have already 
resulted in the implementation of rules for oxides of nitrogen in the 
Beaumont/Port Arthur area.

XIII. When Will EPA Make a Final Decision on Whether To Bump-Up or 
Grant an Extension for the Beaumont/Port Arthur area?

    We will review Texas' proposed SIP submittal during the State's 
public comment period. If we receive it by November 15, 1999, we will 
publish a document in the Federal Register to address the approvability 
of the SIP submittal. If we propose approval, we would also propose to 
extend the attainment date for the Beaumont/Port Arthur area to an 
appropriate expeditious date. However, if Texas fails to meet the 
requirements of the extension policy by November 15, 1999, we will 
finalize the finding of failure to attain, and the Beaumont/Port Arthur 
area will be reclassified to Serious nonattainment.

XIV. If the Beaumont/Port Arthur Area Is Reclassified, What Would 
Its New Schedule Be?

    If the Beaumont/Port Arthur area is reclassified, Texas would be 
required to submit a SIP that adopts the serious area requirements. 
Under section 181(a)(1) of the Act, the new attainment deadline for 
moderate ozone nonattainment areas reclassified to serious under 
section 181(b)(2) would be as expeditious as practicable but no later 
than the date applicable to the new classification, i.e., November 15, 
1999. However, for the reasons given above, we do not expect to take 
final action on this proposed finding until after November 15, 1999. 
This will allow Texas adequate time to make a demonstration that an 
extension of the attainment date, instead of a reclassification, would 
be appropriate under the transport policy. As a practical matter, there 
would likely be insufficient time for Texas to submit a new attainment 
demonstration and actually demonstrate attainment of the one-hour ozone 
NAAQS by November 15, 1999.
    If the Beaumont/Port Arthur area is reclassified, and if we do not 
act until after its November submittal, it will plainly be too late for 
the area to demonstrate attainment by a date that will have already 
passed. We believe that the impossibility of meeting the November 15, 
1999, deadline for serious areas requires us to establish a new 
attainment date in the event that the area is reclassified to serious.
    November 15, 1999, is a date that is impossible to set as a date 
for the area to attain and for Texas to have made a SIP submission. 
Since it is impossible, the principles underlying what we do for areas 
that must submit 15 percent plans after the deadline for submission has 
passed should apply here. Consistent with what we have done with 
respect to setting new applicable deadlines for those plans, we believe 
that a deadline that is expeditious as possible would be appropriate.
    Section 182(i) states that the Administrator may adjust applicable 
deadlines (other than attainment dates) to the extent such adjustment 
is necessary or appropriate to assure consistency for submission of the 
new requirements applicable to an area which has been reclassified. 
Where an attainment date has already passed or is otherwise impossible 
to meet, we believe that the Administrator may also adjust an 
attainment date to assure fair and equitable treatment consistent with 
the provisions in section 182(i), notwithstanding the parenthetical 
clause.
    We also note another provision of the Act in section 110(k)(5) 
pertaining to findings of SIP inadequacy that allows the Administrator 
to adjust attainment dates when such have passed. Although this latter 
provision is not directly applicable to a reclassification, we believe 
that the provision illustrates a recognition by Congress of limited 
instances in which it becomes necessary to adjust attainment dates, 
particularly where it is otherwise impossible to meet the statutory 
date. For the Beaumont/Port Arthur area, we are proposing to construct 
a schedule consistent with recent reclassifications of other areas.
    We have recently reclassified other moderate ozone nonattainment 
areas, including Santa Barbara, California; Phoenix, Arizona; and 
Dallas-Fort Worth, Texas. In these cases, the new attainment date is 
November 15, 1999. The most recent reclassification was for the Dallas-
Fort Worth area. We published the notice reclassifying this area on 
February 18, 1998, thereby providing approximately 21 months for the 
area to attain the standard. We concluded that 21 months was an 
adequate period for a moderate attainment area to attain the standard 
where the new attainment date had not yet lapsed, but where there was 
less time remaining than the Act had contemplated. If we finalize this 
proposed reclassification, we suggest an attainment date with a similar 
time frame, and which would allow Texas an opportunity to make 
submissions to meet the serious area requirements and implement 
measures to attain the standard.
    Applying this approach to the Beaumont/Port Arthur area would 
result in a new attainment date 21 months from publication of the final 
reclassification notice. We welcome any comments on the appropriateness 
of this proposed time frame, and whether a shorter or later attainment 
date would be more appropriate.
    If we reclassify the Beaumont/Port Arthur area, we must also 
address the schedule by which Texas will be required to submit a SIP 
revision meeting the serious area requirements. We propose to have 
Texas submit this SIP within one year after a final action on the 
reclassification is taken. If the submission shows that the area can 
attain the ozone NAAQS sooner than the attainment date established in 
the final reclassification notice, we would adjust the attainment date 
to reflect the earlier date, consistent with the requirement in section 
181(a)(1) that the NAAQS be attained as expeditiously as practicable. 
We solicit comments on this proposed schedule.

XIV. Administrative Requirements

A. Executive Order 12866

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

[[Page 18869]]

B. Executive Order 12875

    Under E.O. 12875, Enhancing the Intergovernmental Partnership, the 
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 EPA complies by consulting, E.O. 12875 requires 
EPA to provide to the OMB 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, E.O. 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 proposals would not create a mandate on State, local, or 
tribal governments. These proposals do not impose any enforceable rules 
on any of these entities. The SIP submission requirements are not 
judicially enforceable. Accordingly, the requirements of section 1(a) 
of Executive Order 12875 do not apply to these proposals.

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, EPA 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.
    The EPA interprets E.O. 13045 as applying only to those regulatory 
actions that are based on health or safety risks, such that the 
analysis required under section 5-501 of the Order has the potential to 
influence the regulation. These proposals are not subject to E.O. 13045 
because they are not economically significant regulatory actions as 
defined by E.O. 12866. These proposals are not subject to E.O. 13045 
because they implement a previously promulgated health or safety-based 
Federal standard.

D. Executive Order 13084

    Under Executive Order 13084, Consultation and Coordination with 
Indian Tribal Governments, 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, Executive Order 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, Executive Order 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 proposals would not significantly or uniquely affect the 
communities of Indian tribal governments. These proposed actions would 
not impose any requirement that affects Indian tribes. Accordingly, the 
requirements of section 3(b) of Executive Order 13084 do not apply to 
these proposals.

E. Regulatory Flexibility Act

    The Regulatory Flexibility Act 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. 
The proposal to reclassify will not have a significant impact on a 
substantial number of small entities because a finding of failure to 
attain under section 182(b)(2) of the Act, and the establishment of a 
SIP submittal schedule for the reclassified area, do not, in and of 
themselves, directly impose any new requirements on small entities. See 
Mid-Tex Electric Cooperative, Inc. v. FERC, 773 F.2d 327 (D.C. Cir. 
1985)(agency's certification need only consider the rule's impact on 
entities subject to requirements of the rule). Instead, this proposal 
to reclassify proposes to make a determination and to establish a 
schedule for States to submit SIP revisions, and does not propose to 
directly regulate any entities.
    The alternative proposal to extend the attainment date if Texas 
meets the specified criteria does not directly impose any new 
requirements on small entities. To the extent that the area must adopt 
new regulations, we will review the effect of those actions at the time 
the State submits those regulations. Therefore, I certify that these 
proposed actions will not have a significant economic impact on a 
substantial number of small entities.

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.
    Sections 202 and 205 do not apply to today's action because the 
proposed determination that the Beaumont/Port Arthur area failed to 
reach attainment does not, in-and-of-itself, constitute a Federal 
mandate because it does not impose an enforceable duty on any entity. 
In addition, the Act does not permit EPA to consider the types of 
analyses described in section 202, in determining whether an area has 
attained the ozone standard or qualifies for an extension. Finally, 
section 203 does not apply to today's proposal because the SIP 
submittal schedule and the extension of the attainment date would 
affect only the state of Texas, which is not a small government.

List of Subjects in 40 CFR Part 81

    Environmental protection, Air pollution control, Area designations 
and

[[Page 18870]]

classifications, National parks, Wilderness areas.

    Authority: 42 U.S.C. 7401 et seq.

    Dated: April 6, 1999.
Gregg A. Cooke,
Regional Administrator, Region 6.
[FR Doc. 99-9470 Filed 4-15-99; 8:45 am]
BILLING CODE 6560-50-P