[Federal Register Volume 67, Number 193 (Friday, October 4, 2002)]
[Rules and Regulations]
[Pages 62184-62189]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 02-25154]


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ENVIRONMENTAL PROTECTION AGENCY

40 CFR Parts 52 and 81

[MA-075-7209a; A-1-FRL-7374-7]


Approval and Promulgation of Air Quality Implementation Plans; 
Massachusetts; Approval of PM10 State Implementation Plan (SIP) 
Revisions and Designation of Areas for Air Quality Planning Purposes

AGENCY: Environmental Protection Agency (EPA).

ACTION: Direct final rule.

-----------------------------------------------------------------------

SUMMARY: EPA is approving a State Implementation Plan revision 
submitted by the Commonwealth of Massachusetts. This revision replaces 
the standard for total suspended particulates (TSP) with a standard for 
particulate matter with a mean aerodynamic diameter of 10 microns or 
less (PM10) as the National Ambient Air Quality Standard for 
particulates. EPA also proposes to redesignate several areas of the 
state from ``nonattainment'' for TSP to ``cannot be classified.'' This 
action is being taken in accordance with the Clean Air Act.

DATES: This direct final rule is effective on December 3, 2002, without 
further notice, unless EPA receives relevant adverse comment by 
November 4, 2002. If EPA receives any relevant adverse comments, 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: Comments may be mailed to Steven Rapp, Manager, Air Permits 
Program Unit (mail code CAP), U.S. Environmental Protection Agency, 
EPA-New England, One Congress Street, Suite 1100, Boston, MA 02114-
2023. Copies of the documents relevant to this action are available for 
public inspection during normal business hours, by appointment at the 
Office of Ecosystem Protection, U.S. Environmental Protection Agency, 
EPA-New England, One Congress Street, 11th floor, Boston, MA; and the 
Division of Air Quality Control, Department of Environmental 
Protection, One Winter Street, 8th Floor, Boston, MA 02108.

FOR FURTHER INFORMATION CONTACT: Ian D. Cohen, (617) 918-1655.

SUPPLEMENTARY INFORMATION: On July 25, 1990, the Commonwealth of 
Massachusetts submitted a formal revision to its State Implementation 
Plan (SIP). On October 1, 1990, Massachusetts submitted additional 
information and requested that all areas designated as nonattainment 
for Total Suspended Particulates (TSP) be redesignated to ``Cannot be 
Classified.'' The SIP revision consists of changes to Massachusetts 
Rules 310 CMR 6.04, 7.00, 8.02 and 8.03.

I. Summary of SIP Revision

Why is This Action Necessary?

    On July 1, 1987, EPA promulgated revised National Ambient Air 
Quality Standards (NAAQS) for particulate matter, based upon 
measurement of particles having a mean aerodynamic diameter of 10 
microns or less (PM10) (52 FR 24634). The revised standards replace TSP 
as the national particulate

[[Page 62185]]

standard. In 1990, Massachusetts submitted a SIP revision which adopted 
the PM10 standard and made other changes in their program to reflect 
the new PM10 NAAQS. Massachusetts submitted this change as part of a 
larger package which also contained changes to their New Source Review 
program. At that time, although some areas in Massachusetts were not in 
attainment for TSP, no exceedences of the PM10 standard were monitored. 
Massachusetts has also requested that EPA redesignate these areas to 
``cannot be classified.''

What Did Massachusetts Submit?

    On July 25, 1990, Massachusetts submitted a formal request for a 
SIP Revision. This package revised four sections of 310 CMR, 
specifically 310 CMR 6.04, 7.00, 8.02 and 8.03. Some of these changes 
made PM10 the particulate standard. Other changes affected the New 
Source Review program, and EPA will consider them in a separate action. 
On October 1, 1990, Massachusetts also submitted a formal request to 
redesignate all TSP nonattainment areas to ``cannot be classified.''

What Specific Changes Is EPA Approving?

    EPA is approving changes to these sections of the Code of 
Massachusetts Rules: 310 CMR 6.04 7.00, 8.02 and 8.03. Specifically, 
Massachusetts is changing Section 6.04(2) to make PM10 the standard for 
particulate matter. In Section 7.00, Massachusetts adds definitions of 
PM10 and PM10 emissions. In Section 8.02, Massachusetts adds a 
definition of PM10. In Section 8.03, Massachusetts makes PM10 the 
particulate criteria used to determine air pollution episode alerts and 
warnings.

What Will These Changes Do?

    These changes will make Massachusetts law consistent with the 
Federal NAAQS. They will eliminate the possibility of using TSP as an 
outdated ambient air quality standard for particulate matter.

What Is the Redesignation Request?

    40 CFR 81.322 lists some areas in Massachusetts as being 
``nonattainment'' for TSP. Massachusetts requested to redesignate these 
areas from ``nonattainment'' to ``cannot be classified.'' Since TSP is 
no longer a criteria pollutant, this nonattainment designation is no 
longer meaningful. The areas cannot be redesignated to attainment, 
since TSP is no longer being measured. All of the areas are in 
attainment for PM10, but we cannot assume they are also in attainment 
for TSP. We encourage the states to designate these areas as ``cannot 
be classified'' to reflect this situation.

Why Does Massachusetts Need the Redesignation Request?

    The redesignation will allow Massachusetts to issue permits to new 
and modified sources under the rules of an attainment area. This will 
give Massachusetts more flexibility in its New Source Review (NSR) 
permitting program.

What Is EPA's Rationale for Redesignating a ``Non-attainment'' Area to 
``Cannot Be Classified'?

    There are multiple reasons for redesignating a ``non-attainment'' 
area to ``cannot be classified'' in this specific situation. First, 
Massachusetts no longer monitors for TSP. It has not monitored for TSP 
since 1989. The Commonwealth currently monitors for PM10 and there is 
evidence that all areas in the Commonwealth are in attainment for the 
PM10 NAAQS. Second, although Massachussetts no longer monitors for TSP, 
the last available TSP monitoring data indicated that Massachusetts was 
in attainment for TSP. However, in order to be able to redesignate an 
area to ``attainment,'' an attainment demonstration, which includes at 
least three years of data indicating that a state is in attainment, is 
required as part of the plan revision. Since the Commonwealth stopped 
monitoring for TSP it was never able to gather all the data required to 
substantiate the change. Therefore, Massachussetts is not able to meet 
the necessary requirements to redesignate the TSP nonattainment areas 
to attainment. Since the attainment designation is not an option, the 
Commonwealth is requesting that all the non-attainment areas be 
redesignated as ``cannot be classified.''
    Clean Air Act section 107(d)(3) sets out the requirements for 
redesignation of an area. 42 U.S.C. 7407(d)(3). For example, section 
107(d)(3)(A) indicates the basis upon which EPA may initiate a 
redesignation and sections 107(d)(3)(A)-(D), among other things, 
specify the affected state's role in the designation process, including 
authority for the state to initiate process. Sections 107(d)(3)(E) and 
(F) set out restrictions which apply to redesignation of a 
nonattainment area. Section 107(d)(3)(E) prohibits redesignation of an 
area from nonattainment to attainment unless five specific conditions 
are met. As mentioned above, Massachusetts cannot meet these 
conditions. Section 107(d)(3)(F) of the Act prohibits redesignation of 
an area from nonattainment to unclassifiable.
    Section 107(d)(4)(B) of the Act expressly provides that any 
designation for particulate matter (measured in terms of TSP) that the 
Administrator promulgated pursuant to section 107(d) prior to the date 
of enactment of the 1990 Amendments shall remain in effect for purposes 
of implementing the maximum allowable concentrations of particulate 
matter, until the Administrator determines that such designation is no 
longer necessary.
    It is EPA's view that the purpose for the TSP designations found in 
section 107(d)(4) are based on a congressional intent which is largely 
different from the purpose for the redesignation requirements found in 
section 107(d)(3). Section 107(d)(4) indicates that Congress envisioned 
that EPA would keep the TSP designations for the narrow purpose of 
implementing the particulate matter increments measured in terms of 
TSP. Section 107(d)(3) is, in part, directed to limiting redesignations 
consistent with the the statute's air quality goals by ensuring, for 
example, that before a nonattainment area is redesignated attainment, 
the applicable SIP requirements have been implemented and the area 
attains the applicable NAAQS. These requirements make sense and have 
force where there are relevant NAAQS in place. However, there are no 
TSP NAAQS and there is no TSP-directed SIP program. While at this time 
EPA believes that a TSP designation may be necessary to implement the 
particulate matter increments, this narrow purpose can be fostered with 
any designation for TSP. Therefore, EPA believes that it is reasonable 
to conclude that TSP redesignations are not subject to the section 
107(d)(3) requirements. Thus, among other things, an area could be 
redesignated from nonattainment to cannot be classified for TSP. Under 
these very limited circumstances, EPA has stated that on or after the 
date it approves a state's PM-10 SIP, it encourages and will approve 
state requests to redesignate TSP nonattainment areas to cannot be 
classified (52 FR 24670).
    Since TSP was replaced by PM10 as a criteria pollutant, the 
redesignation of the specified areas will benefit Massachusetts as it 
continues to monitor criteria pollutants and issue permits to new and 
modified sources under the current federal standards. Ultimately, the 
redesignations will have a beneficial effect on the air quality of 
Massachusetts.

[[Page 62186]]

Is This Action Affected by the Decision in American Trucking Assoc. v. 
U.S. EPA?

    This action is not affected by the court's decision in American 
Trucking Assoc. v. U.S. EPA, 175 F.3d 1027 (D.C. Cir.1999) (``American 
Trucking''), recv'd on other grounds, 531 U.S. 457 (2001). This action 
is based on the original PM10 NAAQS promulgated in 1987. The American 
Trucking decision questions EPA's revised NAAQS introducing the PM2.5 
(PM fine) standard. With regards to the relevant PM10 standard, the 
court stated that the record contains sufficient evidence to justify 
the Agency's decision to regulate coarse particle pollution: The 
relationship between PM 10 pollution and adverse health effects 
justifying the 1987 NAAQS is well established.

Did Massachusetts Request Other Changes to 310 CMR 7.00?

    Massachusetts requested several changes to their New Source Review 
program at the same time they made this request. The EPA will address 
the other changes in another Federal Register package.

II. Final Action

    EPA is approving revisions to 310 CMR 6.04, 7.00, 8.02, and 8.03 
and is redesignating all areas in Massachusetts currently designated as 
nonattainment for TSP to ``Cannot be Classified.'' The Agency has 
reviewed this request for revision of the federally-approved state 
implementation plan for conformance with the provisions of the 1990 
amendments enacted on November 15, 1990. The Agency has determined that 
this action conforms with those requirements irrespective of the fact 
that the submittal preceded the date of enactment.
    The EPA is publishing this action without prior proposal because 
the Agency views this as a noncontroversial amendment 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 
relevant adverse comments be filed. This rule will be effective 
December 3, 2002, without further notice unless the Agency receives 
relevant adverse comments by November 4, 2002.
    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 on the proposed rule. Parties 
interested in commenting on the proposed rule should do so at this 
time. If EPA receives no such comments, the public is advised that this 
rule will be effective on December 3, 2002, and the Agency will take no 
further action on the proposed rule. Furthermore, please note that if 
EPA receives relevant adverse comment on an amendment, paragraph, or 
section of this rule and if that provision may be severed from the 
remainder of the rule, EPA may adopt as final those provisions of the 
rule that are not the subject of a relevant adverse comment.

III. Administrative Requirements

    Under Executive Order 12866 (58 FR 51735, October 4, 1993), this 
action is not a ``significant regulatory action'' and therefore is not 
subject to review by the Office of Management and Budget. For this 
reason, this action is also not subject to Executive Order 13211, 
``Actions Concerning Regulations That Significantly Affect Energy 
Supply, Distribution, or Use'' (66 FR 28355, May 22, 2001). This action 
merely approves state law as meeting Federal requirements and imposes 
no additional requirements beyond those imposed by state law. 
Accordingly, the Administrator certifies that this rule will not have a 
significant economic impact on a substantial number of small entities 
under the Regulatory Flexibility Act (5 U.S.C. 601 et seq.). Because 
this rule approves pre-existing requirements under state law and does 
not impose any additional enforceable duty beyond that required by 
state law, it does not contain any unfunded mandate or significantly or 
uniquely affect small governments, as described in the Unfunded 
Mandates Reform Act of 1995 (Pub. L. 104-4).
    This rule also does not have tribal implications because it will 
not have a substantial direct effect on one or more Indian tribes, on 
the relationship between the Federal Government and Indian tribes, or 
on the distribution of power and responsibilities between the Federal 
Government and Indian tribes, as specified by Executive Order 13175 (65 
FR 67249, November 9, 2000). This action also does not have Federalism 
implications because it does not have substantial direct effects on the 
States, on the relationship between the national government and the 
States, or on the distribution of power and responsibilities among the 
various levels of government, as specified in Executive Order 13132 (64 
FR 43255, August 10, 1999), because it merely approves a state rule 
implementing a federal standard, and does not alter the relationship or 
the distribution of power and responsibilities established in the Clean 
Air Act. This rule also is not subject to Executive Order 13045 
``Protection of Children from Environmental Health Risks and Safety 
Risks'' (62 FR 19885, April 23, 1997), because it is not economically 
significant.
    In reviewing SIP submissions, EPA's role is to approve state 
choices, provided that they meet the criteria of the Clean Air Act. In 
this context, in the absence of a prior existing requirement for the 
state to use voluntary consensus standards (VCS), EPA has no authority 
to disapprove a SIP submission for failure to use VCS. It would thus be 
inconsistent with applicable law for EPA, when it reviews a SIP 
submission, to use VCS in place of a SIP submission that otherwise 
satisfies the provisions of the Clean Air Act. Thus, the requirements 
of section 12(d) of the National Technology Transfer and Advancement 
Act of 1995 (15 U.S.C. 272 note) do not apply. This rule does not 
impose an information collection burden under the provisions of the 
Paperwork Reduction Act of 1995 (44 U.S.C. 3501 et seq.)
    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. A major rule cannot 
take effect until 60 days after it is published in the Federal 
Register. This action is not a ``major rule'' as defined by 5 U.S.C. 
804(2).
    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 December 3, 2002. Interested 
parties should comment in response to the proposed rule rather than 
petition for judicial review, unless the objection arises after the 
comment period allowed for in the proposal. 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

[[Page 62187]]

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

40 CFR Part 52

    Environmental protection, Air pollution control, Incorporation by 
reference, Intergovernmental relations, Particulate matter, Reporting 
and recordkeeping requirements.

40 CFR Part 81

    Environmental protection, Air pollution control, National parks.

    Dated: August 29, 2002.
Robert W. Varney,
Regional Administrator.
    Part 52 of 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 W--Massachusetts

    2. Section 52.1120 is amended by adding paragraph (c)(120) to read 
as follows:


Sec.  52.1120  Identification of plan.

* * * * *
    (c) * * *
    (120) Revisions to the State Implementation Plan submitted by the 
Massachusetts Department of Environmental Protection on July 25, 1990.
    (i) Incorporation by reference.
    (A) 310 CMR 6.04, 7.00, and 8.02 and 8.03 (August 17, 1990).
* * * * *

    3. In Sec.  52.1167 Table 52.1167 is amended by adding new entries 
to existing state citations for 310 CMR 6.04, 7.00, 8.02, and 8.03; to 
read as follows:


Sec.  52.1167  EPA--approved Massachusetts State regulations.

* * * * *

                                                 Table 52.1167.--EPA-Approved Massachusetts Regulations
--------------------------------------------------------------------------------------------------------------------------------------------------------
                                                                                                                                           Comments/
       State citation              Title/Subject       Date submitted    Date approved by     Federal Register        52.1120(c)          unapproved
                                                          by State             EPA                citation                                 sections
--------------------------------------------------------------------------------------------------------------------------------------------------------
 
                                                                      * * * * * * *
310 CMR 6.04...............  Standards...............         7/25/90  10/04/02...........  [Insert FR citation  120................  Adopt PM10 as the
                                                                                             from published                            criteria
                                                                                             date].                                    pollutant for
                                                                                                                                       particulates.
310 CMR 7.00...............  Definitions.............         7/25/90  10/04/02...........  [Insert FR citation  120................  Add a definition
                                                                                             from published                            of PM10.
                                                                                             date].
 
                                                                      * * * * * * *
310 CMR 8.02...............  Definitions.............         7/25/90  10/04/02...........  [Insert FR citation  120................  Add a definition
                                                                                             from published                            of PM10.
                                                                                             date].
310 CMR 8.03...............  Criteria................         7/25/90  10/04/02...........  [Insert FR citation  120................  Make PM10 the
                                                                                             from published                            particulate
                                                                                             date].                                    criteria for
                                                                                                                                       determining
                                                                                                                                       emergeny
                                                                                                                                       episodes.
 
                                                                      * * * * * * *
--------------------------------------------------------------------------------------------------------------------------------------------------------

PART 81--[AMENDED]

    1. The authority citation for part 81 continues to read as follows:

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

Subpart C--Section 107 Attainment Status Designations

    2. Section 81.322 is amended by revising the table for 
Massachusetts TSP to read as follows:


Sec.  81.322  Massachusetts.

                                               Massachusetts--TSP
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                                                   Does not meet   Does not meet                    Better than
                 Designated area                      primary        secondary       Cannot be       national
                                                     standards       standards      classified       standards
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Berkshire AQCR:
    Adams.......................................  ..............  ..............              x   ..............
    North Adams.................................  ..............  ..............              x   ..............
    Pittsfield..................................  ..............  ..............              x   ..............
    All other cities and towns..................  ..............  ..............  ..............              x
Central Massachusetts AQCR:

[[Page 62188]]

 
    Worcester...................................  ..............  ..............              x   ..............
    Athol.......................................  ..............  ..............              x   ..............
    Gardner.....................................  ..............  ..............              x   ..............
    Gratton.....................................  ..............  ..............              x   ..............
    Leominster..................................  ..............  ..............              x   ..............
    Millbury....................................  ..............  ..............              x   ..............
    Shrewsbury..................................  ..............  ..............              x   ..............
    All other cities and towns..................  ..............  ..............  ..............              x
Merrimack Valley AQCR:
    Haverhill...................................  ..............  ..............              x   ..............
    Lawrence....................................  ..............  ..............              x   ..............
    All other cities and towns..................  ..............  ..............  ..............              x
Pioneer Valley AQCR:
    Springfiled.................................  ..............  ..............              x   ..............
    Chicopee....................................  ..............  ..............              x   ..............
    Holyoke.....................................  ..............  ..............              x   ..............
    Northampton.................................  ..............  ..............              x   ..............
    South Hadley................................  ..............  ..............              x   ..............
    West Springfiled............................  ..............  ..............              x   ..............
    All other cities and towns..................  ..............  ..............  ..............              x
Southeastern Massachusetts AQCR:
    Fall River..................................  ..............  ..............              x   ..............
    Attleboro...................................  ..............  ..............              x   ..............
    New Bedford.................................  ..............  ..............              x   ..............
    Taunton.....................................  ..............  ..............              x   ..............
    All other cities and towns..................  ..............  ..............  ..............              x
Metropolitan Boston AQCR:
    Topsfield...................................  ..............  ..............              x   ..............
    Wakefield...................................  ..............  ..............              x   ..............
    Walpole.....................................  ..............  ..............              x   ..............
    Watertown...................................  ..............  ..............              x   ..............
    Wayland.....................................  ..............  ..............              x   ..............
    Wellesley...................................  ..............  ..............              x   ..............
    Wenham......................................  ..............  ..............              x   ..............
    Weston......................................  ..............  ..............              x   ..............
    Westwood....................................  ..............  ..............              x   ..............
    Weymouth....................................  ..............  ..............              x   ..............
    Winchester..................................  ..............  ..............              x   ..............
    Winthrop....................................  ..............  ..............              x   ..............
    Boston......................................  ..............  ..............              x   ..............
    Danvers.....................................  ..............  ..............              x   ..............
    Cambridge...................................  ..............  ..............              x   ..............
    Framingham..................................  ..............  ..............              x   ..............
    Lynn........................................  ..............  ..............              x   ..............
    Marblehead..................................  ..............  ..............              x   ..............
    Norwood.....................................  ..............  ..............              x   ..............
    Medford.....................................  ..............  ..............              x   ..............
    Peabody.....................................  ..............  ..............              x   ..............
    Quincy......................................  ..............  ..............              x   ..............
    Revere......................................  ..............  ..............              x   ..............
    Swampscott..................................  ..............  ..............              x   ..............
    Waltham.....................................  ..............  ..............              x   ..............
    Arlington...................................  ..............  ..............              x   ..............
    Belmont.....................................  ..............  ..............              x   ..............
    Beverly.....................................  ..............  ..............              x   ..............
    Braintree...................................  ..............  ..............              x   ..............
    Brockton....................................  ..............  ..............              x   ..............
    Brookline...................................  ..............  ..............              x   ..............
    Canton......................................  ..............  ..............              x   ..............
    Chelsa......................................  ..............  ..............              x   ..............
    Dedham......................................  ..............  ..............              x   ..............
    Everett.....................................  ..............  ..............              x   ..............
    Malden......................................  ..............  ..............              x   ..............
    Marlborough.................................  ..............  ..............              x   ..............
    Melrose.....................................  ..............  ..............              x   ..............
    Middletown..................................  ..............  ..............              x   ..............
    Milton......................................  ..............  ..............              x   ..............
    Natick......................................  ..............  ..............              x   ..............
    Needham.....................................  ..............  ..............              x   ..............

[[Page 62189]]

 
    Newton......................................  ..............  ..............              x   ..............
    Salem.......................................  ..............  ..............              x   ..............
    Saugus......................................  ..............  ..............              x   ..............
    Somerville..................................  ..............  ..............              x   ..............
    Southborough................................  ..............  ..............              x   ..............
    Stonehamd...................................  ..............  ..............              x   ..............
    All other cities and towns..................  ..............  ..............  ..............              x
----------------------------------------------------------------------------------------------------------------

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[FR Doc. 02-25154 Filed 10-3-02; 8:45 am]
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