[Federal Register Volume 68, Number 247 (Wednesday, December 24, 2003)]
[Rules and Regulations]
[Pages 74483-74491]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 03-31586]


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ENVIRONMENTAL PROTECTION AGENCY

40 CFR Part 52

[AD-FRL-7601-5]
RIN 2060-AK28


Approval and Promulgation of Implementation Plans; Prevention of 
Significant Deterioration (PSD)

AGENCY: Environmental Protection Agency (EPA).

ACTION: Final rule.

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SUMMARY: This final action revises implementation plans concerning the 
Prevention of Significant Deterioration (PSD) program mandated by part 
C of title I of the Clean Air Act (CAA or Act). These revisions include 
changes to incorporate newly promulgated paragraphs in the Federal PSD 
rule into the Federal Implementation Plan (FIP) portion of the State 
plan where a State agency does not have an approved PSD State 
Implementation Plan (SIP) in place. Specifically, the revisions provide 
a category of equipment replacement activities that are not subject to 
Major New Source Review (NSR) requirements under the routine 
maintenance, repair and replacement (RMRR) exclusion. The changes are 
intended to provide greater regulatory certainty without sacrificing 
the current level of environmental protection and benefit derived from 
the NSR program, and to ensure comprehensive and consistent 
implementation of the Federal PSD program by State, local, and tribal 
agencies where EPA has determined that they have the responsibility to 
implement the Federal PSD program.

EFFECTIVE DATE: This final rule is effective on December 26, 2003.

ADDRESSES: Docket. Docket No. A-2002-04 is located at the EPA Docket 
Center, EPA West, U.S. EPA (6102T), 1301 Constitution Avenue, NW, Room 
B-102, Washington, DC 20460. The E-docket OAR-2002-0068 for this 
rulemaking is available electronically at http://www.epa.gov/edocket.

FOR FURTHER INFORMATION CONTACT: Mrs. Pamela S. Long, Information 
Transfer and Program Integration Division (C339-03), U.S. EPA Office of 
Air Quality Planning and Standards, Research Triangle Park, North 
Carolina 27711, telephone number (919) 541-0641, facsimile number (919) 
541-5509, electronic mail email address: [email protected].

SUPPLEMENTARY INFORMATION:

Regulated Entities

    Entities potentially affected by this final action include sources 
in all industry groups. The majority of sources potentially affected 
are expected to be in the following groups.

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               Industry group                 SIC a                                                 NAICS b
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Electric Services..........................      491  221111, 221112, 221113, 221119, 221121, 221122
Petroleum Refining.........................      291  32411
Industrial Inorganic Chemicals.............      281  325181, 32512, 325131, 325182, 211112, 325998, 331311, 325188
Industrial Organic Chemicals...............      286  325110, 325132, 325192, 325188, 325193, 325120, 325199
Miscellaneous Chemical Products............      289  325520, 325920, 325910, 325182, 325510
Natural Gas Liquids........................      132  211112
Natural Gas Transport......................      492  48621, 22121
Pulp and Paper Mills.......................      261  322110, 322121, 322122, 32213
Paper Mills................................      262  322121, 322122
Automobile Manufacturing...................      371  336111, 336112, 336211, 336992, 336322, 336312, 336330, 336340, 336350, 336399, 336212, 336213
Pharmaceuticals............................      283  325411, 325412, 325413, 325414
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a Standard Industrial Classification
b North American Industry Classification System.

    Entities potentially affected by this final action also include 
State, local, and tribal governments that are delegated authority to 
implement these regulations.
    The EPA has established an official public docket for this action 
under E-docket OAR-2002-0068 (Legacy Docket No. A-2002-04). The 
official public docket consists of the documents specifically 
referenced in this action, any public comments received, and other 
information related to this action. Although a part of the official 
docket, the public docket does not include Confidential Business 
Information or other information whose disclosure is restricted by 
statute. The official public docket is the collection of materials that 
is available for public viewing at the EPA Docket Center, EPA West, 
Room B-102, 1301 Constitution Avenue, NW, Washington, DC 20460. The 
Docket Center is open from 8:30 a.m. to 4:30

[[Page 74484]]

p.m., Monday through Friday, excluding legal holidays. The telephone 
number for the Reading Room is (202) 566-1744, and the telephone number 
for the Docket is (202) 566-1742. A reasonable fee may be charged for 
copying docket materials.
    Electronic Access. You may access this Federal Register document 
electronically through the EPA Internet under the Federal Register 
listings at http://www.epa.gov/fedrgstr/.
    Worldwide Web (WWW). In addition to being available in the docket, 
an electronic copy of today's final rule will also be available on the 
WWW through EPA's Technology Transfer Network (TTN). Following 
signature by the EPA Administrator, a copy of the rule will be posted 
on the TTN's policy and guidance page for newly proposed or promulgated 
rules at: http://www.epa.gov/ttn/oarpg. The TTN provides information 
and technology exchange in various areas of air pollution control. If 
more information regarding the TTN is needed, call the TTN HELP line at 
(919) 541-5384.

Judicial Review

    Under section 307(b) of the CAA, judicial review of the final rule 
is available only by filing a petition for review in the United States 
Court of Appeals for the District of Columbia Circuit February 23, 
2004. Under section 307(d)(7)(B) of the CAA, only an objection to the 
rule that was raised with reasonable specificity during the period for 
public comment can be raised during judicial review. Moreover, under 
section 307(b)(2) of the CAA, the requirements established by today's 
final action may not be challenged separately in any civil or criminal 
proceeding we bring to enforce these requirements.

Outline

    The information presented in this preamble is organized as follows:

I. Today's Final Action
    A. Background
    B. Revisions to Part 52
    C. Effective Date for Today's Final Action
II. Statutory and Executive Order Reviews
    A. Executive Order 12866--Regulatory Planning and Review
    B. Paperwork Reduction Act
    C. Regulatory Flexibility Analysis (RFA)
    D. Unfunded Mandates Reform Act of 1995
    E. Executive Order 13132--Federalism
    F. Executive Order 13175--Consultation and Coordination with 
Indian Tribal Governments
    G. Executive Order 13045--Protection of Children from 
Environmental Health Risks and Safety Risks
    H. Executive Order 13211--Actions Concerning Regulations That 
Significantly Affect Energy Supply, Distribution, or Use
    I. National Technology Transfer and Advancement Act of 1995
    J. Congressional Review Act

I. Today's Final Action

A. Background

    The 1970 CAA at section 110 required States to submit plans to 
provide for the implementation and maintenance of the national 
ambient air quality standards (NAAQS). While the 1970 CAA 
established requirements for protecting the NAAQS through SIP's, it 
did not address prevention of significant deterioration of air 
quality. On May 31, 1972 (37 FR 10842), the Administrator published 
initial approvals and disapprovals of SIP's submitted pursuant to 
section 110 of the CAA. On November 9, 1972 (37 FR 23836), all SIP's 
were disapproved insofar as they failed to provide for significant 
deterioration of air quality. This action was taken in response to a 
preliminary injunction issued by the District Court for the District 
of Columbia, which also required the Administrator to promulgate 
regulations as to any State plan that either permits the significant 
deterioration of air quality in any portion of any State, or fails 
to take the measures necessary to prevent significant deterioration.
    On July 16, 1973 (38 FR 18986), ``we'' \1\ proposed several 
alternative plans for prevention of significant deterioration. On 
December 5, 1974 (39 FR 42510), we promulgated the Federal PSD 
program, 40 CFR 52.21. These regulations established a Federal 
program under section 101(b)(1) of the 1970 CAA to conduct 
preconstruction review of specified source categories where State 
agencies fail to provide for prevention of significant deterioration 
of air quality. This final action also disapproved all State plans 
as lacking procedures or regulations for preventing significant 
deterioration of air quality and incorporated the Federal PSD 
regulations by reference into all State plans. Specifically, it 
incorporated the provisions of section 52.21 by reference into the 
SIP's in subparts B through DDD of part 52. (See 39 FR 42514 
concerning section 52.21(a), plan disapproval.)
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    \1\ In this preamble the term ``we'' refers to EPA and the term 
``you'' refers to major stationary sources of air pollution and 
their owners and operators. All other entities are referred to by 
their respective names (for example, reviewing authorities.)
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    On June 19, 1978 (43 FR 26388), we amended our PSD regulations 
to implement the new requirements of the Clean Air Act Amendments of 
1977 (Pub. L 95-95). These regulations built on the previous ones, 
but provided a more comprehensive program pursuant to part C 
(sections 160-165) of title I, which was added in the 1977 CAA 
Amendments. The 1977 CAA Amendments also added the specific 
requirement that the PSD program be implemented through SIP's 
submitted pursuant to CAA section 110. Our final rules in 1978 also 
amended section 52.21 to incorporate all of the new requirements of 
CAA sections 160-165 into the Federal PSD program. This final rule 
contained the same language concerning plan disapprovals that is 
contained in section 52.21(a)(1) as promulgated on December 31, 
2002, as follows:
    Section 52.21(a) Plan disapproval. The provisions of this 
section are applicable to any State implementation plan which has 
been disapproved with respect to prevention of significant 
deterioration of air quality in any portion of any State where the 
existing air quality is better than the national ambient air quality 
standards. Specific disapprovals are listed where applicable in 
subparts B through DDD of this part. The provisions of this section 
have been incorporated by reference into the applicable 
implementation plans for various States, as provided in subparts B 
through DDD of this part. Where this section is so incorporated, the 
provisions shall also be applicable to all lands owned by the 
Federal government and Indian reservations located in such State. No 
disapproval with respect to a State's failure to prevent significant 
deterioration of air quality shall invalidate or otherwise affect 
the obligation of States, emission sources, or other persons with 
respect to all portions of these plans approved or promulgated under 
this part (46 FR 26403).

    The 1978 final rule also incorporated section 52.21 by reference 
into the SIP's for 54 programs (50 States, Puerto Rico, Virgin Islands, 
American Samoa, and Guam) as follows:

    (a) The requirements of sections 160 through 165 of the Clean 
Air Act are not met, since the plan does not include approvable 
procedures for preventing the significant deterioration of air 
quality.
    (b) The provisions of section 52.21 (b) through (v) are hereby 
incorporated and made part of the applicable State plan for the 
State of------(see 43 FR 26410).

    On August 7, 1980 (43 FR 52676), we amended our PSD regulations in 
response to the decision by the U.S. Court of Appeals for the D.C. 
Circuit in Alabama Power Company v. Costle, 636 F.2d. 323 (D.C. Cir. 
1979). In addition to revising the PSD rules to respond to the court, 
this final rule disapproved a number of SIP's for PSD purposes and 
incorporated section 52.21 by reference into the Federal implementation 
plan portions of the SIP's for those programs. It also contained the 
same language concerning plan disapprovals that is contained in the 
December 31, 2002 provisions at section 52.21(a)(1), as well as the 
same language concerning incorporation by reference in the relevant 
subparts of part 52 (see 45 FR 52741).

B. Revisions to Part 52

    Today, we are making administrative amendments to the Federal 
implementation plan portions of State plans to update the reference to 
the PSD FIP that is already incorporated into these plans. When we 
proposed the

[[Page 74485]]

RMRR regulation, we indicated that the rule would impact State and 
local authorities implementing the Federal PSD program through 
delegations. In the rule that was published in the Federal Register on 
October 27, 2003 (68 FR 61248), consistent with the proposal, we 
unambiguously announced our intent to finalize an update to the State 
plans that had delegated FIPs for PSD. Today's final rule makes 
administrative amendments to the these delegated programs to 
incorporate the provisions published in the Federal Register on October 
27, 2003. This rule is similar in effect to the amendments published in 
the Federal Register on March 10, 2003 (68 FR 11316). In that action, 
EPA adjusted the citations incorporated into the Federal implementation 
plan portions of State plans so that all of the substantive amendments 
as of December 31, 2002 to the PSD regulations would become part of the 
Federal implementation plan portions of State plans. In today's action, 
we are further revising references for each FIP to incorporate the 
equipment replacement provision amendments into the Federal 
implementation plan portions of State plans.
    Today's rule differs in one respect from the previous action to 
revise the Federal implementation portions of State plans. In the 
previous rule, we incorporated the relevant subsection 52.21 by 
referring to the paragraphs as ``(a)(2) and (b) to (bb).'' The purpose 
of that reference was to incorporate all the substantive provisions of 
52.21. Today's rule adopts a different cross-referencing format--``40 
CFR 52.21 except paragraph (a)(1).'' Using this format, the Agency 
intends for the Federal implementation plan portions of State plans to 
automatically update whenever new sections are added to 52.21.
    No tribal government currently has an approved tribal 
implementation plan (TIP) under the CAA to implement the NSR program. 
The Federal government is currently the NSR reviewing authority in 
Indian country. Pursuant to section 52.21(a)(1), the provisions of 
section 52.21 are applicable to all lands owned by the Federal 
Government and Indian Reservations located in each State. Therefore, we 
are incorporating the PSD regulations in section 52.21 by reference 
into the FIP portion of SIP's where the requirements of CAA sections 
160-165 are not met for federally designated Indian lands. By this 
final action, we are not changing the authority for implementing and 
enforcing the Federal PSD permitting program for any sources located in 
Indian country. This incorporation by reference only applies to those 
sections of subparts B through DDD of part 52 that currently 
incorporate the PSD FIP program for Indian lands.

C. Effective Date for Today's Final Action

    Today's final regulations are effective on December 26, 2003. This 
is consistent with the December 26, 2003 effective date for the changes 
to the Federal PSD program in section 52.21 that were published in the 
Federal Register on October 27, 2003. (See 68 FR 61248.)

II. Statutory and Executive Order Reviews

A. Executive Order 12866--Regulatory Planning and Review

    Under Executive Order 12866, [58 FR 51735 (October 4, 1993)] the 
Agency must determine whether the regulatory action is ``significant'' 
and therefore subject to OMB review and the requirements of the 
Executive Order. The Order defines ``significant regulatory action'' as 
one that is likely to result in a rule that may:
    (1) Have an annual effect on the economy of $100 million or more or 
adversely affect in a material way the economy, a sector of the 
economy, productivity, competition, jobs, the environment, public 
health or safety, or State, local, or tribal governments or 
communities;
    (2) create a serious inconsistency or otherwise interfere with an 
action taken or planned by another agency;
    (3) materially alter the budgetary impact of entitlements, grants, 
user fees, or loan programs or the rights and obligations of recipients 
thereof; or
    (4) raise novel legal or policy issues arising out of legal 
mandates, the President's priorities, or the principles set forth in 
the Executive Order
    It has been determined that this rule is not a ``significant 
regulatory action'' under the terms of Executive Order 12866 and is 
therefore not subject to EO 12866 review.

B. Paperwork Reduction Act

    The information collection requirements for the final rule 
published October 27, 2003 (68 FR 61248) has been submitted for 
approval to OMB under the requirements of the Paperwork Reduction Act, 
44 U.S.C. 3501 et seq. An ICR document has been prepared by EPA (ICR 
No. 1230.14), and a copy may be obtained from Susan Auby, U.S. 
Environmental Protection Agency, Office of Environmental Information, 
Collection Strategies Division (2822T), 1200 Pennsylvania Avenue, NW., 
Washington, DC 20460-0001, by e-mail at [email protected], or by 
calling (202) 566-1672. A copy may also be downloaded off the Internet 
at http://www.epa.gov/icr. The information requirements included in ICR 
No. 1230.14 are not enforceable until OMB approves them.
    The information that ICR No. 1230.14 covers is required for the 
submittal of a complete permit application for the construction or 
modification of all major new stationary sources of pollutants in 
attainment and nonattainment areas, as well as for applicable minor 
stationary sources of pollutants. This information collection is 
necessary for the proper performance of EPA's functions, has practical 
utility, and is not unnecessarily duplicative of information we 
otherwise can reasonably access. We have reduced, to the extent 
practicable and appropriate, the burden on persons providing the 
information to or for EPA. In fact, we expect that this rule will 
result in less burden on industry and reviewing authorities since it 
streamlines the process of determining whether a replacement activity 
is RMRR.
    However, as we articulated in ICR No. 1230.14, we do anticipate an 
initial increase in burden for reviewing authorities as a result of the 
rule changes, to account for revising state implementation plans to 
incorporate these rule changes. As discussed above, we expect those 
one-time expenditures to be no more than $580,000 for the estimated 112 
affected reviewing authorities. For the number of respondent reviewing 
authorities, the analysis uses the 112 reviewing authorities count used 
by other permitting ICR's for the one-time tasks (for example, SIP 
revisions).
    Burden means the total time, effort, or financial resources 
expended by persons to generate, maintain, retain, or disclose or 
provide information to or for a Federal agency. This includes the time 
needed to review instructions; develop, acquire, install, and utilize 
technology and systems for the purpose of responding to the information 
collection; adjust existing ways to comply with any previously 
applicable instructions and requirements; train personnel to respond to 
a collection of information; search existing data sources; complete and 
review the collection of information; and transmit or otherwise 
disclose the information.
    An agency may not conduct or sponsor, and a person is not required 
to respond to, a collection of information unless it displays a 
currently valid OMB control number. The OMB control numbers for EPA's 
regulations are listed in 40 CFR part 9 and 48 CFR chapter 15.

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We will continue to present OMB control numbers in a consolidated table 
format to be codified in 40 CFR part 9 of the Agency's regulations, and 
in each CFR volume containing EPA regulations. The table lists the 
section numbers with reporting and recordkeeping requirements, and the 
current OMB control numbers. This listing of the OMB control numbers 
and their subsequent codification in the CFR satisfy the requirements 
of the Paperwork Reduction Act (44 U.S.C. 3501 et seq.) and OMB's 
implementing regulations at 5 CFR part 1320.

C. Regulatory Flexibility Analysis (RFA)

    The EPA has determined that it is not necessary to prepare a 
regulatory flexibility analysis in connection with this final rule. The 
EPA has also determined that this rule will not have a significant 
economic impact on a substantial number of small entities. For purposes 
of assessing the impacts of today's rule on small entities, small 
entity is defined as: (1) Any small business employing fewer than 500 
employees (based on Small Business Administration's size definition); 
(2) a small governmental jurisdiction that is a government of a city, 
county, town, school district, or special district with a population of 
less than 50,000; or (3) a small organization that is any not-for-
profit enterprise that is independently owned and operated and is not 
dominant in its field.
    After considering the economic impacts of today's final rule on 
small entities, we have concluded that this action will not have a 
significant economic impact on a substantial number of small entities. 
In determining whether a rule has a significant economic impact on a 
substantial number of small entities, the impact of concern is any 
significant adverse economic impact on small entities, since the 
primary purpose of the regulatory flexibility analyses is to identify 
and address regulatory alternatives ``which minimize any significant 
economic impact of the proposed rule on small entities'' (5 U.S.C. 
sections 603 and 604). Thus, an agency may conclude that a rule will 
not have a significant economic impact on a substantial number of small 
entities if the rule relieves regulatory burden, or otherwise has a 
positive economic effect, on all of the small entities subject to the 
rule.
    Today's rule will not have a significant economic impact on a 
substantial number of small entities because it will decrease the 
regulatory burden of the existing regulations and have a positive 
effect on all small entities subject to the rule. This rule improves 
operational flexibility for owners or operators of major stationary 
sources and clarifies applicable requirements for determining if a 
change qualifies as a major modification. We have therefore concluded 
that today's rule will relieve regulatory burden for all small 
entities.

D. Unfunded Mandates Reform Act of 1995

    Title II of the Unfunded Mandates Reform Act of 1995 (UMRA), Pub. 
L. 104-4, establishes requirements for Federal agencies to assess the 
effects of their regulatory actions on State, local, and tribal 
governments and the private sector. Under section 202 of the UMRA, EPA 
generally must prepare a written statement, including a cost-benefit 
analysis, for proposed and final rules with ``Federal mandates'' that 
may result in expenditures to State, local, and tribal governments, in 
the aggregate, or to the private sector, of $100 million or more in any 
1 year. Before promulgating an EPA rule for which a written statement 
is needed, section 205 of the UMRA generally requires EPA to identify 
and consider a reasonable number of regulatory alternatives and adopt 
the least costly, most cost effective or least burdensome alternative 
that achieves the objectives of the rule. The provisions of section 205 
do not apply when they are inconsistent with applicable law. Moreover, 
section 205 allows EPA to adopt an alternative other than the least 
costly, most cost effective or least burdensome alternative if the 
Administrator publishes with the final rule an explanation as to why 
that alternative was not adopted.
    Before EPA establishes any regulatory requirements that may 
significantly or uniquely affect small governments, including tribal 
governments, it must have developed under section 203 of the UMRA a 
small government agency plan. The plan must provide for notifying 
potentially affected small governments, enabling officials of affected 
small governments to have meaningful and timely input in the 
development of EPA regulatory proposals with significant Federal 
intergovernmental mandates, and informing, educating, and advising 
small governments on compliance with the regulatory requirements.
    We have determine that this rule does not contain a Federal mandate 
that may result in expenditures of $100 million or more for State, 
local, and tribal governments, in the aggregate, or the private sector 
in any 1 year. There is no burden for State, local, and tribal agencies 
in order for this rule to be included in the SIP, as this final action 
directly incorporates the changes into the SIP. Moreover, these 
revisions will ultimately provide greater operational flexibility to 
sources permitted by the States, which will in turn reduce the overall 
burden of the program on State and local authorities by reducing the 
number of required permit modifications. In addition, we believe the 
rule changes will actually reduce the regulatory burden associated with 
the major NSR program by improving the operational flexibility of 
owners and operators and improving the clarity of requirements. Thus, 
today's rule is not subject to the requirements of sections 202 and 205 
of the UMRA.
    For the same reasons stated above, we have determined that this 
rule contains no regulatory requirements that might significantly or 
uniquely affect small governments. Thus, today's rule is not subject to 
the requirements of section 203 of the UMRA.

E. Executive Order 13132--Federalism

    Executive Order 13132, entitled ``federalism'' (64 FR 43255, August 
10, 1999), requires EPA to develop an accountable process to ensure 
``meaningful and timely input by State and local officials in the 
development of regulatory policies that have federalism implications.'' 
``Policies that have federalism implications'' is defined in the 
Executive Order to include regulations that 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.''
    This final rule does not have federalism implications. It will 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. We do not expect this final rule 
to result in expenditures by the States. Today's final rules only apply 
in States that have been delegated the authority to implement the 
Federal PSD rules. Therefore, reviewing authorities will not incur a 
burden to revise their SIP's. Moreover, these revisions provide greater 
operational flexibility to sources permitted by the States, which will 
in turn reduce the overall burden of the program on State and local 
authorities by reducing the number of required permit modifications. 
Thus, Executive Order 13132 does not apply to this rule. Nevertheless, 
in the spirit of Executive Order 13132, and consistent with EPA policy 
to promote communications

[[Page 74487]]

between EPA and State and local governments, we specifically solicited 
comment on the proposed rule from State and local officials.

F. Executive Order 13175--Consultation and Coordination With Indian 
Tribal Governments

    Executive Order 13175, entitled ``Consultation and Coordination 
with Indian Tribal Governments'' (65 FR 67249, November 9, 2000), 
requires EPA to develop an accountable process to ensure ``meaningful 
and timely input by tribal officials in the development of regulatory 
policies that have tribal implications.'' We believe that this final 
rule does not have tribal implications as specified in Executive Order 
13175. Thus, Executive Order 13175 does not apply to this rule.
    The EPA began considering potential revisions to the NSR rules in 
the early 1990's and proposed changes in 1996. The purpose of today's 
final rule is to add greater flexibility to the existing major NSR 
regulations. These changes will benefit both reviewing authorities and 
the regulated community by providing increased certainty as to when the 
requirements apply, and by providing alternative ways to comply with 
the requirements. Taken as a whole, today's final rule should result in 
no added burden or compliance costs and should not substantially change 
the level of environmental performance achieved under the previous 
rules.
    No tribal government currently has an approved tribal 
implementation plan (TIP) under the CAA to implement the NSR program. 
The Federal government is currently the NSR reviewing authority in 
Indian country, thus tribal governments should not experience added 
burden, nor should their laws be affected with respect to 
implementation of this rule. Additionally, although major stationary 
sources affected by today's final rule could be located in or near 
Indian country and/or be owned or operated by tribal governments, such 
sources would not incur additional costs or compliance burdens as a 
result of this rule. Instead, the only effect on such sources should be 
the benefit of the added certainty and flexibility provided by the 
rule.
    We recognize the importance of including tribal consultation as 
part of the rulemaking process. Although we did not include specific 
consultation with tribal officials as part of our outreach process on 
this final rule, which was developed largely prior to issuance of 
Executive Order 13175 and which does not have tribal implications under 
Executive Order 13175, we will continue to consult with tribes on 
future rulemakings to assess and address tribal implications, and will 
work with tribes interested in seeking TIP approval to implement the 
NSR program to ensure consistency of tribal plans with this rule.

G. Executive Order 13045--Protection of Children From Environmental 
Health Risks and Safety Risks

    Executive Order 13045, entitled ``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 Executive Order 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 final rule is not subject to the Executive Order because it is 
not economically significant as defined in Executive Order 12866, and 
because the Agency does not have reason to believe the environmental 
health or safety risks addressed by this action present a 
disproportionate risk to children because we believe that this package 
as a whole will result in equal or better environmental protection than 
currently provided by the existing regulations, and do so in a more 
streamlined and effective manner.

H. Executive Order 13211--Actions Concerning Regulations That 
Significantly Affect Energy Supply, Distribution, or Use

    This rule is not subject to Executive Order 13211, Actions 
Concerning Regulations That Significantly Affect Energy Supply, 
Distribution, or Use (66 FR 28355 (May 22, 2001)) because it is not a 
significant regulatory action under Executive Order 12866.

I. National Technology Transfer and Advancement Act of 1995

    Section 12(d) of the National Technology Transfer and Advancement 
Act of 1995 (NTTAA), Pub. L. No. 104-113, 12(d) (15 U.S.C. 272 note) 
directs EPA to use voluntary consensus standards in its regulatory 
activities unless to do so would be inconsistent with applicable law or 
otherwise impractical.
    Voluntary consensus standards are technical standards (for example, 
materials specifications, test methods, sampling procedures, and 
business practices) that are developed or adopted by voluntary 
consensus standards bodies. The NTTAA directs EPA to provide Congress, 
through OMB, explanations when the Agency decides not to use available 
and applicable voluntary consensus standards.
    This action does not involve technical standards. This final rule 
does not create new requirements but, rather, revises an existing 
permitting program by providing a series of program options that 
affected facilities may choose to adopt. These options will reduce the 
regulatory burden associated with the major NSR program by improving 
the operational flexibility of owners and operators, improving the 
clarity of requirements, and providing alternatives that sources may 
take advantage of to further improve their operational flexibility. 
Therefore, EPA did not consider the use of any voluntary consensus 
standards.

J. Congressional Review Act

    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. The EPA submitted a report containing this rule and 
other required information to the U.S. Senate, the U.S. House of 
Representatives, and the Comptroller General of the 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). Therefore, this rule will be effective on December 26, 2003.

List of Subjects in 40 CFR Part 52

    Environmental protection, Administrative practices and procedures, 
Air pollution control, Carbon monoxide, Hydroocarbons, 
Intergovernmental relations, Nitrogen oxides, Ozone, Particular matter, 
Sulfur oxides.

    Dated: December 16, 2003.
Michael O. Leavitt,
Administrator.

0
For the reasons set out in the preamble, title 40, chapter I of the 
Code of Federal Regulations is amended as follows:

[[Page 74488]]

PART 52--[AMENDED]

0
1. The authority citation for part 52 continues to read as follows:

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

Subpart C--[Amended]

0
2. Section 52.96 is amended by revising paragraph (b) to read as 
follows:


Sec.  52.96  Significant deterioration of air quality.

* * * * *
    (b) The requirements of sections 160 through 165 of the Clean Air 
Act are not met for Indian reservations since the plan does not include 
approvable procedures for preventing the significant deterioration of 
air quality on Indian reservations and, therefore, the provisions of 
Sec.  52.21 except paragraph (a)(1) are hereby incorporated and made 
part of the applicable reservation in the State of Alaska.

Subpart D--[Amended]

0
3. Section 52.144 is amended by revising paragraph (b) to read as 
follows:


Sec.  52.144  Significant deterioration of air quality.

* * * * *
    (b) Regulation for preventing significant deterioration of air 
quality. The provisions of Sec.  52.21 except paragraph (a)(1) are 
hereby incorporated and made a part of the applicable State plan for 
the State of Arizona for that portion applicable to the Pima County 
Health Department and the Maricopa County Department of Health Services 
and sources locating on Indian lands.

Subpart E--[Amended]

0
4. Section 52.181 is amended by revising paragraph (b) to read as 
follows:


Sec.  52.181  Significant deterioration of air quality.

* * * * *
    (b) The requirements of sections 160 through 165 of the Clean Air 
Act are not met for federally designated Indian lands. Therefore, the 
provisions of Sec.  52.21 except paragraph (a)(1) are hereby 
incorporated and made a part of the applicable implementation plan and 
are applicable to sources located on land under the control of Indian 
governing bodies.

Subpart F--[Amended]

0
5. Section 52.270 is amended by revising paragraphs (a)(3), (b)(1) 
introductory text, (b)(2) introductory text, (b)(3) introductory text, 
and (b)(4) introductory text to read as follows:


Sec.  52.270  Significant deterioration of air quality.

    (a) * * *
    (3) The provisions of Sec.  52.21 except paragraph (a)(1) are 
hereby incorporated and made a part of the applicable State plan for 
the State of California.
    (b) * * *
    (1) The PSD rules for Sacramento County Air Pollution Control 
District are approved under Part C, Subpart 1, of the Clean Air Act. 
However, EPA is retaining authority to apply Sec.  52.21 in certain 
cases. The provisions of Sec.  52.21 except paragraph (a)(1) are 
therefore incorporated and made a part of the State plan for California 
for the Sacramento County Air Pollution Control District for:
* * * * *
    (2) The PSD rules for North Coast Unified Air Quality Management 
District are approved under Part C, Subpart 1, of the Clean Air Act. 
However, EPA is retaining authority to apply Sec.  52.21 in certain 
cases. The provisions of Sec.  52.21 except paragraph (a)(1) are 
therefore incorporated and made a part of the State plan for California 
for the North Coast Unified Air Quality Management District for:
* * * * *
    (3) The PSD rules for Mendocino County Air Pollution Control 
District are approved under Part C, Subpart 1, of the Clean Air Act. 
However, EPA is retaining authority to apply Sec.  52.21 in certain 
cases. The provisions of Sec.  52.21 except paragraph (a)(1) are 
therefore incorporated and made a part of the State plan for California 
for the Mendocino County Air Pollution Control District for:
* * * * *
    (4) The PSD rules for Northern Sonoma County Air Pollution Control 
District are approved under Part C, Subpart 1, of the Clean Air Act. 
However, EPA is retaining authority to apply Sec.  52.21 in certain 
cases. The provisions of Sec.  52.21 except paragraph (a)(1) are 
therefore incorporated and made a part of the State plan for California 
for the Northern Sonoma County Air Pollution Control District for:
* * * * *

Subpart G--[Amended]

0
6. Section 52.343 is amended by revising paragraph (b) to read as 
follows:


Sec.  52.343  Significant deterioration of air quality.

* * * * *
    (b) Regulations for preventing significant deterioration of air 
quality. The provisions of Sec.  52.21 except paragraph (a)(1) are 
hereby incorporated and made a part of the applicable State plan for 
the State of Colorado for the sources identified in paragraph (a) of 
this section as not meeting the requirements of sections 160-165 of the 
Clean Air Act.
* * * * *

Subpart H--[Amended]

0
7. Section 52.382 is amended by revising paragraph (b) to read as 
follows:


Sec.  52.382  Significant deterioration of air quality.

* * * * *
    (b) The increments for nitrogen dioxide promulgated on October 17, 
1988 (53 FR 40671), and related requirements in 40 CFR 52.21 except 
paragraph (a)(1), are hereby incorporated and made part of the 
applicable implementation plan for the State of Connecticut.

Subpart J--[Amended]

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8. Section 52.499 is amended by revising paragraph (b) to read as 
follows:


Sec.  52.499  Significant deterioration of air quality.

* * * * *
    (b) Regulations for preventing significant deterioration of air 
quality. The provisions of Sec.  52.21 except paragraph (a)(1) are 
hereby incorporated and made a part of the applicable State plan for 
the District of Columbia.

Subpart K--[Amended]

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9. Section 52.530 is amended by revising paragraph (d) introductory 
text to read as follows:


Sec.  52.530  Significant deterioration of air quality.

* * * * *
    (d) The requirements of sections 160 through 165 of the Clean Air 
Act are not met since the Florida plan, as submitted, does not apply to 
certain sources. Therefore, the provisions of Sec.  52.21 except 
paragraph (a)(1) are hereby incorporated by reference and made a part 
of the Florida plan for:
* * * * *

Subpart M--[Amended]

0
10. Section 52.632 is amended by revising paragraph (b) to read as 
follows:


Sec.  52.632  Significant deterioration of air quality.

* * * * *
    (b) Regulations for preventing significant deterioration of air 
quality. The provisions of Sec.  52.21 except

[[Page 74489]]

paragraph (a)(1) are hereby incorporated and made a part of the 
applicable State plan for the State of Hawaii.

Subpart N--[Amended]

0
11. Section 52.683 is amended by revising paragraphs (b) and (c) to 
read as follows:


Sec.  52.683  Significant deterioration of air quality.

* * * * *
    (b) The requirements of sections 160 through 165 of the Clean Air 
Act are not met for Indian reservations since the plan does not include 
approvable procedures for preventing significant deterioration of air 
quality on Indian reservations. Therefore, the provisions of Sec.  
52.21 except paragraph (a)(1) are hereby incorporated and made part of 
the applicable plan for Indian reservations in the State of Idaho.
    (c) The requirements of section 165 of the Clean Air Act are not 
met for sources subject to prevention of significant deterioration 
requirements prior to August 22, 1986, the effective date of EPA's 
approval of the rules cited in paragraph (a) of this section. 
Therefore, the provisions of Sec.  52.21 except paragraph (a)(1) are 
hereby incorporated and made part of the applicable plan for sources 
subject to Sec.  52.21 prior to August 22, 1986.

Subpart O--[Amended]

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12. Section 52.738 is amended by revising paragraph (b) to read as 
follows:


Sec.  52.738  Significant deterioration of air quality.

* * * * *
    (b) Regulations for preventing significant deterioration of air 
quality. The provisions of Sec.  52.21 except paragraph (a)(1) are 
hereby incorporated and made a part of the applicable State plan for 
the State of Illinois.
* * * * *

Subpart Q--[Amended]

0
14. Section 52.833 is amended by revising paragraph (b) to read as 
follows:


Sec.  52.833  Significant deterioration of air quality.

* * * * *
    (b) Regulations for preventing significant deterioration of air 
quality. The provisions of Sec.  52.21 except paragraph (a)(1) are 
hereby incorporated and made a part of the applicable State plan for 
the State of Iowa for sources wishing to locate on Indian lands; 
sources constructed under permits issued by EPA; and certain sources as 
identified in Iowa's April 22, 1987, letter.

Subpart T--[Amended]

0
15. Section 52.986 is amended by revising paragraph (b) to read as 
follows:


Sec.  52.986  Significant deterioration of air quality.

* * * * *
    (b) The requirements of sections 160 through 165 of the Clean Air 
Act are not met for federally designated Indian lands since the plan 
(specifically LAC: 33:III:509.A.1) excludes all federally recognized 
Indian lands from the provisions of this regulation. Therefore, the 
provisions of Sec.  52.21 except paragraph (a)(1) are hereby 
incorporated and made a part of the applicable implementation plan, and 
are applicable to sources located on land under the control of Indian 
governing bodies.

Subpart W--[Amended]

0
16. Section 52.1165 is amended by revising paragraph (b) to read as 
follows:


Sec.  52.1165  Significant deterioration of air quality.

* * * * *
    (b) Regulation for preventing significant deterioration of air 
quality. The provisions of Sec.  52.21 except paragraph (a)(1) are 
hereby incorporated and made a part of the applicable State plan for 
the State of Massachusetts.

Subpart X--[Amended]

0
17. Section 52.1180 is amended by revising paragraph (b) to read as 
follows:


Sec.  52.1180  Significant deterioration of air quality.

* * * * *
    (b) Regulations for preventing significant deterioration of air 
quality. The provisions of Sec.  52.21 except paragraph (a)(1) are 
hereby incorporated and made a part of the applicable State plan for 
the State of Michigan.
* * * * *

Subpart Y--[Amended]

0
18. Section 52.1234 is amended by revising paragraph (b) to read as 
follows:


Sec.  52.1234  Significant deterioration of air quality.

* * * * *
    (b) Regulations for preventing significant deterioration of air 
quality. The provisions of Sec.  52.21 except paragraph (a)(1) are 
hereby incorporated and made a part of the applicable State plan for 
the State of Minnesota.
* * * * *

Subpart BB--[Amended]

0
19. Section 52.1382 is amended by revising paragraph (b) to read as 
follows:


Sec.  52.1382  Prevention of significant deterioration of air quality.

* * * * *
    (b) Regulation for preventing significant deterioration of air 
quality. The provisions of Sec.  52.21 except paragraph (a)(1) are 
hereby incorporated and made a part of the Montana State implementation 
plan and are applicable to proposed major stationary sources or major 
modifications to be located on Indian Reservations.
* * * * *

Subpart CC--[Amended]

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20. Section 52.1436 is amended by revising the introductory text to 
read as follows:


Sec.  52.1436  Significant deterioration of air quality.

    The requirements of sections 160 through 165 of the Clean Air Act 
are met except as noted in paragraphs (a) and (b) of this section. The 
EPA is retaining Sec.  52.21 except paragraph (a)(1) as part of the 
Nebraska SIP for the following types of sources:
* * * * *

Subpart DD--[Amended]

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21. Section 52.1485 is amended by revising paragraph (b) to read as 
follows:


Sec.  52.1485  Significant deterioration of air quality.

* * * * *
    (b) Regulation for preventing significant deterioration of air 
quality. The provisions of Sec.  52.21 except paragraph (a)(1) are 
incorporated and made a part of the applicable State plan for the State 
of Nevada except for that portion applicable to the Clark County Health 
District.
* * * * *

Subpart FF--[Amended]

0
22. Section 52.1603 is amended by revising paragraph (b) to read as 
follows:


Sec.  52.1603  Significant deterioration of air quality.

* * * * *
    (b) Regulations for preventing significant deterioration of air 
quality. The provisions of Sec.  52.21 except paragraph (a)(1) are 
hereby incorporated and made a part of the applicable State plan for 
the State of New Jersey.

[[Page 74490]]

Subpart GG--[Amended]

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23. Section 52.1634 is amended by revising paragraph (b) to read as 
follows:


Sec.  52.1634  Significant deterioration of air quality.

* * * * *
    (b) The requirements of section 160 through 165 of the Clean Air 
Act are not met for federally designated Indian lands. Therefore, the 
provisions of Sec.  52.21 except paragraph (a)(1) are hereby 
incorporated and made a part of the applicable implementation plan, and 
are applicable to sources located on land under the control of Indian 
governing bodies.
* * * * *

Subpart HH--[Amended]

0
24. Section 52.1689 is amended by revising paragraph (b) to read as 
follows:


Sec.  52.1689  Significant deterioration of air quality.

* * * * *
    (b) Regulations for preventing significant deterioration of air 
quality. The provisions of Sec.  52.21 except paragraph (a)(1) are 
hereby incorporated and made a part of the applicable state plan for 
the State of New York.

Subpart JJ--[Amended]

0
25. Section 52.1829 is amended by revising paragraph (b) to read as 
follows:


Sec.  52.1829  Prevention of significant deterioration of air quality.

* * * * *
    (b) Regulation for preventing of significant deterioration of air 
quality. The provisions of Sec.  52.21 except paragraph (a)(1) are 
hereby incorporated and made a part of the North Dakota State 
implementation plan and are applicable to proposed major stationary 
sources or major modifications to be located on Indian Reservations.

Subpart LL--[Amended]

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26. Section 52.1929 is amended by revising paragraph (a) introductory 
text to read as follows:


Sec.  52.1929  Significant deterioration of air quality.

    (a) Regulation for preventing significant deterioration of air 
quality. The Oklahoma plan, as submitted, does not apply to certain 
sources in the State. Therefore the provisions of Sec.  52.21 except 
paragraph (a)(1) are hereby incorporated, and made part of the Oklahoma 
State implementation plan, and are applicable to the following major 
stationary sources or major modifications:
* * * * *

Subpart MM--[Amended]

0
27. Section 52.1987 is amended by revising paragraph (c) to read as 
follows:


Sec.  52.1987  Significant deterioration of air quality.

* * * * *
    (c) The requirements of sections 160 through 165 of the Clean Air 
Act are not met for Indian reservations since the plan does not include 
approvable procedures for preventing the significant deterioration of 
air quality on Indian reservations and, therefore, the provisions of 
Sec.  52.21 except paragraph (a)(1) are hereby incorporated and made 
part of the applicable plan for Indian reservations in the State of 
Oregon.

Subpart QQ--[Amended]

0
28. Section 52.2178 is amended by revising paragraph (b) to read as 
follows:


Sec.  52.2178  Significant deterioration of air quality.

* * * * *
    (b) Regulations for preventing significant deterioration of air 
quality. The provisions of Sec.  52.21 except paragraph (a)(1) are 
hereby incorporated and made a part of the applicable State plan for 
the State of South Dakota.
* * * * *

Subpart RR--[Amended]

0
29. Section 22.2233 is amended by revising paragraph (b) introductory 
text to read as follows:


Sec.  52.2233  Significant deterioration of air quality.

* * * * *
    (b) The requirements of Sec.  52.21 except paragraph (a)(1) are 
hereby incorporated and made part of the applicable SIP for the State 
of Tennessee for the following purposes:
* * * * *

Subpart SS--[Amended]

0
30. Section 52.2303 is amended by revising paragraphs (c) and (d) to 
read as follows:


Sec.  52.2303  Significant deterioration of air quality.

* * * * *
    (c) The requirements of section 160 through 165 of the Clean Air 
Act are not met for federally designated Indian lands. Therefore, the 
provisions of Sec.  52.21 except paragraph (a)(1) are hereby adopted 
and made a part of the applicable implementation plan and are 
applicable to sources located on land under the control of Indian 
governing bodies.
    (d) The requirements of section 160 through 165 of the Clean Air 
Act are not met for new major sources or major modifications to 
existing stationary sources for which applicability determinations 
would be affected by dockside emissions of vessels. Therefore, the 
provisions of Sec.  52.21 except paragraph (a)(1) are hereby adopted 
and made a part of the applicable implementation plan and are 
applicable to such sources.

Subpart TT--[Amended]

0
31. Section 52.2346 is amended by revising paragraph (b) to read as 
follows:


Sec.  52.2346  Significant deterioration of air quality.

* * * * *
    (b) Regulation for prevention of significant deterioration of air 
quality. The provisions of Sec.  52.21 except paragraph (a)(1) are 
hereby incorporated and made a part of the Utah State implementation 
plan and are applicable to proposed major stationary sources or major 
modifications to be located on Indian Reservations.
* * * * *

Subpart WW--[Amended]

0
32. Section 52.2497 is amended by revising paragraph
    (b) to read as follows:


Sec.  52.2497  Significant deterioration of air quality.

* * * * *
    (b) Regulations for preventing significant deterioration of air 
quality. The provisions of Sec.  52.21 except paragraph (a)(1) are 
hereby incorporated and made a part of the applicable State plan for 
the State of Washington.
* * * * *

Subpart YY--[Amended]

0
33. Section 52.2581 is amended by revising paragraph (e) to read as 
follows:


Sec.  52.2581  Significant deterioration of air quality.

* * * * *
    (e) Regulations for the prevention of the significant deterioration 
of air quality. The provisions of Sec.  52.21 except paragraph (a)(1) 
are hereby incorporated and made a part of the applicable State plan 
for the State of Wisconsin for sources wishing to locate in Indian 
country; and sources constructed under permits issued by EPA.

[[Page 74491]]

Subpart ZZ--[Amended]

0
34. Section 52.2630 is amended by revising paragraph (b) introductory 
text to read as follows:


Sec.  52.2630  Prevention of significant deterioration of air quality.

* * * * *
    (b) Regulation for preventing significant deterioration of air 
quality. The Wyoming plan, as submitted, does not apply to certain 
sources in the State. Therefore, the provisions of Sec.  52.21 except 
paragraph (a)(1) are hereby incorporated and made a part of the State 
implementation plan for the State of Wyoming and are applicable to the 
following proposed major stationary sources or major modifications:
* * * * *

Subpart AAA--[Amended]

0
35. Section 52.2676 is amended by revising paragraph (b) to read as 
follows:


Sec.  52.2676  Significant deterioration of air quality.

* * * * *
    (b) Regulations for preventing significant deterioration of air 
quality. The provisions of Sec.  52.21 except paragraph (a)(1) are 
hereby incorporated and made a part of the applicable State plan for 
the State of Guam.

Subpart BBB--[Amended]

0
36. Section 52.2729 is amended by revising paragraph (b) to read as 
follows:


Sec.  52.2729  Significant deterioration of air quality.

* * * * *
    (b) Regulations for preventing significant deterioration of air 
quality. The provisions of Sec.  52.21 except paragraph (a)(1) are 
hereby incorporated and made a part of the applicable State plan for 
the State of Puerto Rico.

Subpart CCC--[Amended]

0
37. Section 52.2779 is amended by revising paragraph (b) to read as 
follows:


Sec.  52.2779  Significant deterioration of air quality.

* * * * *
    (b) Regulations for preventing significant deterioration of air 
quality. The provisions of Sec.  52.21 except paragraph (a)(1) are 
hereby incorporated and made a part of the applicable State plan for 
the Virgin Islands.

Subpart DDD--[Amended]

0
38. Section 52.2827 is amended by revising paragraph (b) to read as 
follows:


Sec.  52.2827  Significant deterioration of air quality.

* * * * *
    (b) Regulations for preventing significant deterioration of air 
quality. The provisions of Sec.  52.21 except paragraph (a)(1) are 
hereby incorporated and made a part of the applicable State plan for 
American Samoa.

[FR Doc. 03-31586 Filed 12-23-03; 8:45 am]
BILLING CODE 6560-50-P