[Federal Register Volume 72, Number 28 (Monday, February 12, 2007)]
[Notices]
[Pages 6641-6656]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: E7-2241]


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DEPARTMENT OF TRANSPORTATION

FEDERAL AVIATION ADMINISTRATION


Federal Presumed to Conform Actions Under General Conformity

AGENCY: Federal Aviation Administration (FAA), DOT.

ACTION: Draft notice; request for comment.

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SUMMARY: The Clean Air Act (CAA) section 176(c), 42 U.S.C. 7506(c) and 
Amendments of 1990 \1\ require that all Federal actions conform to an 
applicable State Implementation Plan (SIP). The U.S. Environmental 
Protection Agency (EPA) has established criteria and procedures for 
Federal agencies to use in demonstrating conformity with an applicable 
SIP that can be found at 40 CFR 93.150 et.seq. (``The Rule'').
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    \1\ Clean Air Act Title I Air Pollution Prevention and Control, 
Part D, Subpart 1, Section 176 Limitation on Certain Federal 
Assistance.
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    The Rule allows Federal agencies to develop a list of actions that 
are presumed to conform to a SIP \2\ for the criteria pollutants and 
their precursors that are identified in 40 CFR 93.153(b)(1) and (b)(2) 
and in the National Ambient Air Quality Standards (NAAQS) under 40 CFR 
50.4-50.12.\3\

[[Page 6642]]

The criteria pollutants of concern for local airport air quality are 
ozone (O3) and its two major precursors (volatile organic 
compounds (VOC) and nitrogen oxides (NOX)), carbon monoxide 
(CO), nitrogen dioxide (NO2), sulfur dioxide 
(SO2),\4\ and particulate matter consisting of small 
particulates with a diameter less than or equal to 2.5 micrometers 
(PM2.5) and larger particulates with a diameter of up to 10 
micrometers (PM10).\5\
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    \2\ 40 CFR Part 93, Sec.  93.153(f).
    \3\ NAAQS established by the EPA represent maximum concentration 
standards for criteria pollutants to protect human health (primary 
standards) and to protect property and aesthetics (secondary 
standards).
    \4\ FAA calculated SOX is considered equal to 
SO2.
    \5\ Smaller PM2.5 particulate matter is a subset of 
PM10. Levels for PM2.5 are included in the 
NAAQS but not yet established for purposes of general conformity (no 
de minimis threshold or SIPs). Therefore, references in this Notice 
to PM10 also apply to PM2.5 for purposes of 
presumed to conform actions.
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    According to the Rule,\6\ Federal agencies must meet the criteria 
for establishing activities that are presumed to conform by either:
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    \6\ 40 CFR Part 93, Sec.  93.153(g).
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    (1) Clearly demonstrating that the total of direct and indirect 
emissions from the type of activities that would be presumed to conform 
would not:
    (i) Cause or contribute to any new violation of any standard in any 
area;
    (ii) Interfere with provisions in the applicable SIP for 
maintenance of any standard;
    (iii) Increase the frequency or severity of any existing violation 
of any standard in any area; or
    (iv) Delay timely attainment of any standard or any required 
interim emission reductions or other milestones in any area including 
emission levels specified in the applicable SIP; \7\ or
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    \7\ 40 CFR Part 93, Sec.  93.153(g)(1).
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    (2) Providing documentation that emissions from the types of 
actions that would be presumed to conform are below the applicable de 
minimis levels established in 40 CFR 93.153(b)(1) and (b)(2).\8\ This 
documentation may be based on similar actions that the agency has taken 
over recent years.\9\ Besides documenting the basis for presumed to 
conform activities, Federal agencies must fulfill procedural 
requirements under the Rule relating to publication in the Federal 
Register, notification to Federal/State/local agencies, opportunity for 
public comment, and availability of responses to public comments.\10\
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    \8\ Title 40 CFR Part 93, 93.153(g)(2).
    \9\ Ibid.
    \10\ Title 40 CFR Part 93, 93.153(h).
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    In this Notice, the Federal Aviation Administration (FAA) is 
proposing categories of actions involving agency approval and financial 
assistance for airport projects that would be presumed to conform. The 
benefits of this process include the elimination of unnecessary agency 
costs associated with evaluating actions with few if any emissions. As 
a result, the agency will be able to streamline the environmental 
process by applying more of its resources to actions that have the 
potential to reach regulated emission levels or adversely impact air 
quality.
    Addressing the need for efficiency and streamlining, the EPA states 
that the provisions allowing Federal agencies to establish categories 
of actions that are presumed to conform are ``intended to assure that 
these Rules are not overly burdensome and Federal agencies would not 
spend undue time assessing actions that have little or no impact on air 
quality.'' \11\ Furthermore, the EPA states that ``Federal actions 
which are de minimis should not be required by this Rule to make an 
applicability analysis. A different interpretation could result in an 
extremely wasteful process which generates vast numbers of useless 
conformity statements.'' \12\ Consequently, the Rule allows individual 
Federal agencies to present categories of actions that have been 
documented to be de minimis and, therefore should be ``presumed to 
conform'' to the Rule under 40 CFR 93.153(f).
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    \11\ 58 FR 63228 (Nov. 30, 1993).
    \12\ 12 58 FR 63229 (Nov. 30, 1993).
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    This Notice contains a summary of documentation and analysis which 
demonstrates that actions described below will not exceed the 
applicable de minimis emission levels for nonattainment and maintenance 
areas, as specified under 40 CFR 93.153(b). In relation to the agency's 
demonstration of presumed to conform actions, the EPA has defined broad 
categories of actions in 40 CFR 93.153(c)(2) that are exempt from the 
Rule because the actions result in no emissions increase or an increase 
in emissions that is clearly de minimis. In this Notice, the FAA 
distinguishes various airport-related actions that are exempt under the 
Rule from those that the FAA proposes to be presumed to conform.

DATES: Written comments must be received on or before 45 days after the 
date of publication in the Federal Register.

ADDRESSES: Address your comments to the individual identified under FOR 
FURTHER INFORMATION CONTACT.

FOR FURTHER INFORMATION CONTACT: Dr. Jake A. Plante, Planning and 
Environmental Division, Federal Aviation Administration, 800 
Independence Avenue, APP-400, SW., Room 616, Office of Airports, 
Washington, DC 20591, [email protected], phone (202) 493-4875, fax 
(202) 267-8821.

SUPPLEMENTARY INFORMATION:

Comments Invited

    The FAA invites comments on the following descriptions and 
justifications of agency actions that would be presumed to conform. We 
will accept comments, data, views, or arguments by letter, fax, or e-
mail. Send your comments to the person identified under FOR FURTHER 
INFORMATION CONTACT. Mark your comments, ``Federal Presumed to Conform 
Actions under General Conformity.''
    Use the following format when preparing comments:

--Organize your comments issue-by-issue.
--For each issue, state what specific change you are requesting to the 
proposed policy.
--Include justification, reasons, or data for each change you are 
requesting.

    The FAA will consider all communications received on or before the 
closing date for comments. We will respond by e-mail or other 
appropriate means to all comments received. Our responses to public 
comments will be documented and made available to the public upon 
request through the person identified under FOR FURTHER INFORMATION 
CONTACT.
    Table of Contents: The major sections of this document are as 
follows:

I. Background
II. Existing Exemptions
III. Presumed to Conform Project Descriptions and Justifications
IV. How to Apply Presumed to Conform Actions

I. Background

    Under the Rule (40 CFR 93.153(g)(h)), the FAA and other agencies 
are entitled to develop a list of proposed actions that are presumed to 
conform. The process of establishing presumed to conform 
classifications is predicated on the concept of conformity. Conformity 
assures that an activity that is presumed to conform does not cause or 
contribute to any new violation of the NAAQS or interfere with 
provisions contained in applicable SIPS.
    The administration and enforcement of conformity regulations are 
delegated by the EPA to the individual States through provisions in 
each SIP. A SIP is the written plan submitted to the EPA detailing each 
State's strategy to control air emissions to meet and maintain the 
NAAQS in geographic areas that are designated as nonattainment areas. 
The

[[Page 6643]]

EPA requires each State to devise such a plan for each criteria 
pollutant causing violations or the EPA will impose a Federal 
implementation plan (``FIP'') for the State. When a nonattainment area 
achieves compliance with the NAAQS, it becomes a maintenance area for 
at least 10 years with ongoing State responsibility to ensure continued 
attainment.\13\
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    \13\ CAA, Sec.  175A, 42 U.S.C. Sec.  7505a.
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    General conformity. General conformity refers to the process of 
demonstrating that a general Federal action conforms to the applicable 
SIP. A general Federal action is defined more by what it is not, rather 
than by what it is. A general Federal action is any Federal action that 
is not a Federal ``transportation'' action and consequently not subject 
to the conformity requirements established for Federal highway or 
transit actions, referred to as ``transportation conformity.'' A 
Federal transportation action is an action related to transportation 
plans, programs, and projects that are developed, funded, or approved 
under Title 23 United States Code (U.S.C.) or the Federal Transit Act 
(FTA).\14\ Since FAA actions do not meet the definition of a 
transportation action, they are general actions by default and thus 
subject to the General Conformity Rule.
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    \14\ 49 U.S.C. 1601 et seq.
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    The FAA and other Federal agencies subject to general conformity 
must make a determination that the Federal action conforms to the SIP's 
purpose to meet and maintain the NAAQS before the action is taken. If 
the proposed actions are not specifically exempt or classified as 
presumed to conform, it is necessary to conduct an applicability 
analysis to determine if emissions are likely to equal or exceed the 
established screening criteria emission rates known as the de minimis 
thresholds. A general conformity determination is required for each 
pollutant identified as nonattainment or maintenance when the total of 
direct and indirect emissions caused by a Federal action equals or 
exceeds any of the applicable de minimis thresholds.\15\
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    \15\ 40 CFR Part 93, Sec.  93.153(b).
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    FAA airport development actions subject to general conformity. The 
FAA is responsible for deciding whether its actions involving an 
airport located in a nonattainment or maintenance area require a 
general conformity evaluation.\16\ FAA actions that require a 
conformity evaluation include unconditional approval of any or all 
parts of an airport layout plan (ALP), final Airport Improvement 
Program (AIP) grant approvals, and approvals for use of Passenger 
Facility Charges (PFCs). Other FAA actions that may require a 
conformity evaluation include proposed actions for which an 
environmental assessment (EA) or environmental impact statement (EIS) 
is prepared under the requirements of the National Environmental Policy 
Act.
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    \16\ ``Conformity evaluation'' refers to the overall process of 
assessing whether an action/project is subject to general conformity 
requirements, which may include an applicability analysis needed to 
make a conformity determination. See Question 1, EPA and 
FAA General Conformity Guidance for Airports: Questions and Answers, 
September 25, 2002.
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    Notification requirements for establishing a list of presumed to 
conform actions. Under procedures prescribed in the Rule, the FAA must 
notify the appropriate EPA regional offices, State and local air 
quality agencies, and Metropolitan Planning Organizations (MPO).\17\ In 
addition, the FAA must publish the proposed list in the Federal 
Register, allowing a minimum of 30 days for public comment.\18\ The FAA 
is required to document its response to all comments received and to 
make these comments and responses available to the public upon 
request.\19\ Finally, the FAA must publish its final list of presumed 
to conform actions in the Federal Register to complete the process.\20\
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    \17\ 40 CFR Part 93, Sec.  93.153(h)(2).
    \18\ 40 CFR Part 93, Sec. Sec.  93.153(h)(1)-(2).
    \19\ 40 CFR Part 93, Sec.  93.153(h)(3).
    \20\ 40 CFR Part 93, Sec.  93.153(h)(4).
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II. Existing Exemptions

    For the FAA to provide the proper context and baseline for 
identifying and proposing a list of presumed to conform Federal 
actions, it is important to consider the extent to which FAA airport-
related actions and activities may qualify for exemption from general 
conformity requirements. The EPA has defined broad categories of exempt 
actions under 40 CFR 93.153(c)(2) that result in no emissions increase 
or increases in emissions that are clearly de minimis. These actions 
are not subject to further analysis for applicability, conformity, or 
regional significance under the Rule.
    As part of this Federal Register Notice, the FAA has interpreted 
how the exemptions in the Rule apply to FAA actions associated with 
airport facilities and aviation planning. The following discussion 
addresses the most relevant examples of these exemptions regarding FAA 
actions for airport development.
(1) Rulemaking and Policy Development [40 CFR 93.153(c)(2)(iii)]
    The FAA develops rules and policies to address issues of safety, 
aviation noise abatement, and systematic improvements to efficiency. 
This includes issuance of airport policy and planning documents for the 
National Plan of Integrated Airport Systems (NPIAS), the Airport 
Capital Improvement Program (ACIP), and Advisory Circulars on planning, 
design, and development programs. These documents provide 
administrative and technical guidance to the airport community and the 
public and are not intended for direct implementation. The actual 
process of rulemaking or policy development is typically administrative 
in nature and does not cause an increase in air emissions.
(2) Routine Maintenance and Repair Activities [40 CFR 93.153(c)(2)(iv)]
    In conformance with FAA standards and regulations, the airport 
sponsor must maintain airport facilities and the airfield in a manner 
that ensures the safe operation of the airport. These activities 
constitute Federal actions when Federal funding from the FAA is 
involved. Airport maintenance, repair, removal, replacement, and 
installation work that matches the characteristics, size, and function 
of a facility as it existed before the replacement or repair activity 
typically qualifies as routine maintenance and repair for purposes of 
general conformity. Such activity does not increase the capacity of the 
airport or change the operational environment of the airport.
    The FAA does not consider major runway reconstruction to qualify as 
exempt under the Rule if the reconstruction results in a runway that is 
hardened, lengthened, or widened to support a larger class of aircraft. 
Proposed funding for such a project would require analysis of emission 
levels to determine the applicability of general conformity 
requirements.
    Routine maintenance for existing runways, taxiways, aprons, ramps, 
fillets, and airport roadways includes in-kind resurfacing,\21\ re-
marking of existing runways, taxiways, apron areas, etc., and runway 
grooving and rubber removal projects. Other areas of routine 
replacement, maintenance, and repair work that may be considered exempt 
from the Rule include:
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    \21\ Depending on numerous factors affecting surface conditions, 
airports will generally resurface asphalt runways every 7-10 years.
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     Existing signage.
     Existing lighting systems.
     Existing pavement markings.

[[Page 6644]]

     Wind or landing direction indicators.
     Existing airport security access control.
     Existing buildings and structures.
     Existing heating, ventilation, and air conditioning (HVAC) 
systems.
     Existing infrastructure such as sanitary sewer or 
electrical systems.
     General landscaping, erosion control, and grading.
(3) The Routine, Recurring Transportation of Materiel and Personnel [40 
CFR 93.153(c)(2)(vii)]
    The transport of materiel and personnel both within airport 
environs and to facilities affiliated with the routine operation of 
airports may be considered exempt under the Rule.
(4) Routine Movement of Mobile Assets, Such As * * * Aircraft * * * for 
Repair or Overhaul [40 CFR 93.153(c)(2)(viii)]
    The movement of aircraft to/from airports with maintenance and test 
facilities for repair and overhaul may be considered exempt from the 
Rule.
(5) Planning, Studies, and Provisions of Technical Assistance [40 CFR 
93.153(c)(2)(xii)]
    Planning and information-related actions do not represent 
implementation of operational changes at the airport and therefore do 
not result in emission increases. Consequently, actions such as those 
listed below may be considered exempt from the Rule:
     FAA funding and acceptance of Master Plans and Updates
     FAA funding of System Planning Studies
     FAA acceptance of noise exposure maps and approval of 
noise compatibility programs pursuant to 49 U.S.C. 47501 et seq., as 
implemented by 14 CFR Part 150
     FAA approval of noise and access restrictions on 
operations by Stage 3 aircraft under 49 U.S.C. 47524, as implemented by 
14 CFR Part 161
(6) Routine Operation of Facilities, Mobile Assets and Equipment [40 
CFR 93.153(c)(2)(xiii)]
    Normal day-to-day activities that occur at airports, such as 
vehicle movements, building operations, and aircraft movements that do 
not increase the capacity of the airport or change the operational 
environment of the airport may be considered exempt from the Rule.
(7) Transfers of Ownership, Interests, and Titles in Land, Facilities, 
and Real and Personal Properties, Regardless of the Form or Method of 
the Transfer [40 CFR 93.153(c)(2)(xiv)] and
(8) Actions (or Portions Thereof) Associated With Transfers of Land, 
Facilities, Title, and Real Properties Through an Enforceable Contract 
or Lease Agreement Where the Delivery of the Deed Is Required To Occur 
Promptly After a Specific, Reasonable Condition Is Met, Such as 
Promptly After the Land Is Certified as Meeting the Requirements of 
Comprehensive Environmental Response, Compensation and Liability Act 
(CERCLA), and Where the Federal Agency Does Not Retain Continuing 
Authority To Control Emissions Associated With the Lands, Facilities, 
Title, or Real Properties [40 CFR 93.153(c)(2)(xix)]
    Actions by the FAA to transfer or acquire land or equipment do not 
increase the capacity of the airport or change the operational 
environment affecting air emissions. Such actions include funding or 
approving transfers, acquisitions, or releases by airport sponsors, 
\22\ or preparing and executing related contracts or written 
agreements. Related actions that may be considered exempt from the Rule 
are:
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    \22\ Airport ``sponsors'' are planning agencies, public 
agencies, or private airport owners/operators that have the legal 
and financial ability to carry out the program requirements for FAA 
financial assistance.
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     Facilities and equipment purchases.
     Land acquisition and relocation assistance.
     Land releases for which there is no reasonable expectation 
of a change in land use.
     Avigation easement acquisition.
     Acquisition of an existing privately owned airport 
involving only change of ownership.
(9) Alterations and Additions of Existing Structures as Specifically 
Required By New or Existing Applicable Environmental Legislation or 
Environmental Regulations (e.g., Hush Houses for Aircraft Engines* * *) 
[40 CFR 93.153(d)(4)]
    Actions that are initiated in response to specific environmental 
laws and regulations (e.g., energy efficiency, noise abatement 
structures and equipment) may be considered exempt from the Rule. These 
actions include:
     Equipment purchases.
     Protective noise barriers.
     Required noise mitigation actions including the 
installation and operation of hush houses for aircraft and engine 
maintenance.
(10) Federal Actions Which Are Part of a Continuing Response to an 
Emergency or Disaster [40 CFR 93.153(d)(2) and (e)]
    Actions in response to emergencies, natural disasters, etc., that 
involve overriding concerns for public health and welfare, national 
security interests, or foreign policy commitments may be exempt from 
general conformity requirements for six months and possibly longer if 
justified in writing by the agency.\23\
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    \23\ Airports located in nonattainment or maintenance areas with 
small regional emission budgets may need to check whether a proposed 
exempt action might be regionally significant under 40 CFR Part 93, 
Sec.  93.153(i).
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III. Presumed to Conform Project Descriptions and Justifications

    The FAA began the process of developing and documenting presumed to 
conform actions with a detailed environmental survey of airport 
projects. The survey was conducted by all FAA regional offices, which 
identified approved airport projects over a recent two-year period that 
received a categorical exclusion (CATEX) or Finding of No Significant 
Impact (FONSI).\24\ This information was requested only for airports 
included in areas designated as nonattainment or maintenance by the 
EPA. Information compiled from these surveys described about 600 
completed projects at over 100 airports.
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    \24\ FAA Order 1050.1E, Chapter 3 (CATEX) and Chapter 4, section 
406 (FONSI), pursuant to the National Environmental Policy Act.
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    The survey information was processed by assigning each airport 
planning and development project into one of two categories: (1) 
Projects that are exempt from the requirements of the Rule as defined 
by 40 CFR 93.153(e); or (2) projects that require an applicability 
analysis before being defined as de minimis (i.e., presumed to 
conform), according to 40 CFR 93.153(c)(1). Specific information on the 
application of these two project categories is presented in Section II 
and Section III of this document, respectively.
    In the analysis of the survey results, any airport project that 
exceeded de minimis levels even once was considered ineligible for the 
presumed to conform list. Follow-up communications with airports and 
FAA regional representatives helped to clarify terminology and confirm 
the reliability of the presumptions. In addition, the FAA performed 
detailed worst-case analyses where practicable in areas where project 
size and implementation could conceivably result in the exceedance of 
de minimis levels.

[[Page 6645]]

    The airport project survey data and other agency experience in 
implementing similar actions taken over recent years provide the 
fundamental basis for all of the presumed to conform classifications. 
The FAA conducted additional quantitative analyses for specific project 
areas, as practicable. These analyses are summarized in Section III, 
and include the following: Pavement markings; terminal upgrades; 
commercial vehicle staging areas; non-runway paving; heating, 
ventilation, and air conditioning (HVAC) systems; and low-emission 
technology and alternative fuel vehicles.
    Based on the survey of airport projects, the additional 
evaluations, and quantitative analyses, only those project categories 
that were proven to be reliably and consistently de minimis were 
classified as presumed to conform. In general, FAA presumed to conform 
actions involve maintenance, navigation, construction, safety, security 
activities, and new technology and vehicle systems that do not modify 
or increase airport capacity or change the operational environment of 
the airport in such a way as to increase air emissions above de minimis 
thresholds.
    Presented below are the airport project descriptions and 
justifications for FAA actions that are presumed to conform. There are 
fifteen project categories, which are discussed in the following order:
    1. Pavement Markings.
    2. Pavement Monitoring Systems.
    3. Non-Runway Pavement Work.
    4. Aircraft Gate Areas on Airside.
    5. Lighting Systems.
    6. Terminal and Concourse Upgrades.
    7. New HVAC Systems, Upgrades, and Expansions.
    8. Airport Security.
    9. Airport Safety.
    10. Airport Maintenance Facilities.
    11. Airport Signage.
    12. Commercial Vehicle Staging Areas.
    13. Low-Emission Technology and Alternative Fuel Vehicles.
    14. Air Traffic Control Activities and Adopting Approach, Departure 
and Enroute Procedures for Air Operations.
    15. Routine Installation and Operation of Aviation Navigation Aids.

1. Pavement Markings

    Airport sponsors apply paint on paved surfaces, such as runways, 
taxiways, apron areas, cargo areas, and parking lots to ensure the safe 
operation of aircraft during approach and landing and to provide safe 
direction for surface vehicles. Most pavement marking projects are 
considered routine maintenance activities, qualifying as exempt from 
the Rule (see Section II, number 2 of this Notice). These actions are 
designed to restore and improve painted surfaces that have deteriorated 
due to time, use, and weather.
    Federal actions that alter airport use through new pavement 
markings are not routine maintenance but are presumed to conform if 
such actions do not increase airport capacity or introduce a larger 
class of aircraft at the airport. For example, new runway markings for 
improved flight procedures from visual flight rules (VFR) to instrument 
flight rules (IFR) are presumed to conform if normal traffic flow is 
maintained.
    Pollutant emissions due to the paint application process are 
primarily composed of VOC from the paint, and NOX emitted 
from the trucks and application compressors required to prepare the 
surface and apply the paint. Emissions of both VOC and NOX 
are considered precursors to the development of ozone in the 
atmosphere. Therefore, emissions from the application of painted 
pavement markings pertain most importantly to ozone nonattainment and 
maintenance areas.
    A worst-case calculation of emissions was performed based on 
equipment and types of paint required to mark a Category III 13,000-
foot runway with an instrument lighting system (ILS) to FAA 
specifications. The calculation of emissions included the removal of 
existing markings using water pressure through a compressor mounted on 
a diesel truck, a pavement sweeper truck to remove debris, the 
application of the paint using an air compressor mounted on a diesel 
truck, and a small hand sprayer for detailed markings, such as squared 
corners. A total of 2,492 gallons of paint (a combination of white, 
yellow, and black) were applied to the representative runway at a rate 
of 115 square feet per gallon of paint. The trucks transporting the 
paint and compressors were assumed to be similar to a single axle, 
Class 7 diesel pickup truck.\25\ The sweeper was assumed to be a 
regenerative diesel air power model, using a chassis engine and an 
auxiliary engine to power the brushes. Manufacturers' Material Safety 
Data Sheets were referenced for the VOC emissions factors for the three 
colors of latex paint. Emissions factors for the criteria and precursor 
pollutants were obtained from the EPA Nonroad Engine and Vehicle 
Emission Study-Report.\26\ Load factors and horsepower ratings were 
obtained from the EPA Nonroad Engine and Vehicle Emission Study-Report 
and Median Life, Annual Activity, and Load Factor Values for Nonroad 
Engine Emissions Modeling.\27\
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    \25\ The Gross Vehicle Weight Rating (GVWR) system defines a 
Class 7 diesel truck as one that can carry 26,001 to 33,000 pounds 
of weight on two axles.
    \26\ EPA Report 460/3-91-02, November 1991, Nonroad Engine and 
Vehicle Emission Study--Report.
    \27\ EPA Report NR-005A, December 9, 1997, revised June 15, 
1998, Median Life, Annual Activity, and Load Factor Values for 
Nonroad Engine Emissions Modeling.
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    The maximum volume of paint that could be applied without equaling 
or exceeding the de minimis thresholds for any nonattainment and 
maintenance classification was calculated.\28\ For instance, an airport 
located within an extreme nonattainment area for ozone is limited to 
net project emissions of 10 tons of VOC per year. This translates into 
an annual application of 21,890 gallons of paint, which also causes 
0.21 tons \29\ of NOX emissions. For example, this volume of 
paint would mark eight Category III 13,000-foot ILS runways. A volume 
of paint on the order of one million gallons is required to cause 
emissions of NOX to equal 10 tons per year. Likewise, a 
volume of paint on the order of five million to 176 million gallons is 
required in order to be sufficient to exceed the de minimis thresholds 
for CO, SO2, or PM10. Therefore, VOCs are the 
limiting pollutant \30\ for the application of paint at airports and 
emissions of NOX, CO, SO2, and PM10 
are considerably less. Table III-1 provides the gallon application 
limits, which include the use of construction equipment for pavement 
markings in nonattainment and maintenance areas.
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    \28\ Calculations of maximum paint volume include consideration 
of construction equipment.
    \29\ Short tons, where one ton equals 2,000 lbs.
    \30\ The limiting pollutant is defined as the criteria pollutant 
that first exceeds de minimis levels for a given project.
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BILLING CODE 4910-13-P

[[Page 6646]]

[GRAPHIC] [TIFF OMITTED] TN12FE07.000

BILLING CODE 4910-13-C

2. Pavement Monitoring Systems

    Airports have the option of installing a pavement monitoring system 
to indicate when the durability and strength of the pavement needs to 
be reinforced. These systems are implemented for safety reasons to 
ensure that an airport's runway, taxiway, and apron network are 
sufficiently able to support the weight of aircraft. Minor construction 
work is required for the installation of the monitoring system. 
Assuming the installation requires the use of a pickup truck, a utility 
truck, an excavator, an asphalt paver, a compactor, and a small 
generator, construction would have to proceed continuously (eight hours 
per day, 20 days per month) for more than

[[Page 6647]]

a year (1.1 years) in order to produce emissions near the level of 10 
tons of NOX. For the remaining criteria pollutants and 
precursors, construction on the order of several years would be 
required to approach the de minimis thresholds. Pavement monitoring 
systems are installed in less than a week; therefore, project 
construction emissions are well below de minimis and presumed to 
conform.

3. Non-Runway Pavement Work

    Airfield pavement must be constructed to withstand the weight of 
aircraft and to produce a firm, stable, smooth, year-round, all-weather 
surface. The pavement must be of such quality and thickness that it 
will not fail under the weight of aircraft and it must possess 
sufficient inherent stability to withstand, without damage, the 
abrasive action of aircraft traffic and adverse weather conditions.\31\ 
These pavement specifications apply to non-runway areas of the airfield 
where aircraft operate, including taxiways, apron areas, and gate 
areas. The specific pavement requirements are satisfied by applying 
rigid pavement consisting of layers of crushed stone bound and pressed 
into a smooth surface.
    Airfield construction projects considered to be presumed to conform 
are limited to areas of the airfield intended to accommodate aircraft 
for purposes of loading or unloading passengers or cargo, refueling, or 
aircraft parking, and are generally referred to as apron areas. These 
types of airfield projects do not include projects intended to increase 
airport capacity or those that are otherwise defined as routine 
maintenance for existing apron areas.
    Pollutant emissions due to airfield construction are solely from 
the use of construction equipment and are primarily comprised of 
NOX, a precursor to ozone development, and CO resulting from 
the trucks operated to haul the large amounts of stone and gravel that 
must be used to form the support layers for the paving material.
    The evaluation of emissions from airfield paving was based on a 
representative project in the FAA Eastern Region. The project required 
equipment and materials to construct approximately 600,000 square feet 
of airfield and concrete shoulder area with an assumed surface design 
life of 20 years.\32\ The conservative calculation of emissions 
included the preparation of the site allowing for a four-inch 
geotextile layer of subgrade soil, a four-inch frost protection layer 
of crushed stone, a four-inch sub base layer of finely crushed stone, 
an eight-inch base layer of gravel mixed with a stabilizer such as 
cement,\33\ and the application of a six-inch layer of Portland cement 
concrete.\34\ This type of construction design allows for a total 
pavement thickness of 26 inches; the minimum total pavement thickness 
for the accommodation of jet aircraft weighing 100,000 pounds or more 
is 20 inches.\35\ Also included in the construction emissions inventory 
is the installation of a drainage system.
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    \31\ FAA AC 150/5320-6D, September 7, 1995, Airport Pavement 
Design and Evaluation.
    \32\ As recommended under FAA AC 150/5320-16, October 22, 1995, 
Airport Pavement Design for the Boeing 777 Airplane.
    \33\ Stabilized base layers as necessary for new pavements 
designed to accommodate jet aircraft weighting 100,000 pounds or 
more. FAA AC 150/5320-6D, September 7, 1995, Airport Pavement Design 
and Evaluation.
    \34\ Portland cement is a hydraulic cement made by heating a 
mixture of limestone and clay in a kiln and pulverizing the 
resulting material.
    \35\ FAA AC 150/5320-6D, September 7, 1995, Airport Pavement 
Design and Evaluation.
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    Emissions factors for construction equipment were obtained from the 
EPA's 1991 Nonroad Engine and Vehicle Emission Study--Report.\36\ Load 
factors and horsepower ratings for the construction equipment were 
obtained from the EPA's 1991 Nonroad Engine and Vehicle Emission 
Study--Report and the EPA's 1997 Median Life, Annual Activity, and Load 
Factor Values for Nonroad Engine Emissions Modeling.\37\
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    \36\ EPA Report 460/3-91-02, November 1991, Nonroad Engine and 
Vehicle Emission Study--Report. Table 2-07 Emission Factors.
    \37\ EPA Report NR-005A, December 9, 1997, revised June 15, 
1998, Median Life, Annual Activity, and Load Factor Values for 
Nonroad Engine Emissions Modeling.
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    The maximum allowable square footage of airfield construction was 
calculated for each nonattainment and maintenance category. The 
analysis showed that NOX was the limiting pollutant for 
airfield paving projects and that emissions of VOC, CO, SO2, 
and PM10 are considerably less in comparison with 
NOX.
    Table III-1 provides the area limits for non-runway airfield 
construction in nonattainment and maintenance areas. For instance, an 
airport located within an area designed as extreme nonattainment for 
ozone, which limits net project emissions to the rate of 10 tons per 
year of NOX, is limited to constructing 219,368 square feet 
(5.04 acres) of apron area, which also causes 0.93 tons of VOC 
emissions. As a reference, four acres is generally sufficient to 
provide remote or ``hardstand'' (non-gate) parking for three narrow-
body aircraft. Construction of an airfield/apron area on the order of 
2.38 million square feet (54.7 acres) causes emissions of VOC up to 10 
tons per project, creating emissions of NOX of approximately 
109 tons. New airfield construction on the order of 150 to 600 acres 
would be required to exceed the de minimis thresholds for CO, 
SO2 and PM10. Generally speaking, emissions of 
NOX are on the order of three times the emissions of CO for 
these types of projects and are more than 10 times the emissions of the 
remaining criteria pollutants.

4. Aircraft Gate Areas on Airside

    Aircraft gate areas refer to the area outside of the terminals and 
concourses where jetways are used to link parked aircraft to the 
terminal building. Federal actions to improve aircraft gate areas can 
be part of airport modernization efforts involving new airline tenants 
or the introduction of newer and more efficient technology. Aircraft 
gate areas involve a wide range of activities from aircraft loading and 
unloading of passengers and cargo to the servicing of aircraft by 
lavatory, food supply, and maintenance vehicles.
    Upgrades to the aircraft gate area are often needed to accommodate 
changing flight schedules and daily activity. The addition or 
modification of jetways to existing terminal buildings is typically 
done to adjust to changes in air travel demand and airline 
requirements. Such projects are intended to improve passenger terminal 
service by reducing passenger queuing and waiting times. Actions to 
approve or fund the upgrading of aircraft gate areas are presumed to 
conform provided such actions do not increase aircraft operations or 
introduce a larger class of aircraft at the airport.

5. Lighting Systems

    Airport sponsors may need to install new lighting systems to 
maintain proper illumination of roadways, taxiways, runways, and 
parking areas. The data from the FAA surveys indicated that airport 
upgrading and installing of new lighting systems is done on an as-
needed basis.
    Minor mechanical work is required for the installation effort, 
followed by electrical work that does not require large off-road 
construction equipment. Assuming the installation requires the use of a 
pickup truck, a utility truck, an excavator, and a small generator, the 
construction will have to proceed continuously (eight hours a day, 20 
days a month) for more than 17 months (1.4 years) in order to produce 
emissions near the level of 10 tons of NOX. For the 
remaining criteria pollutants and precursors, construction on the order 
of

[[Page 6648]]

several years would be required to approach the de minimis thresholds. 
Runway and other lighting systems can be installed in less than two 
weeks; therefore, project construction emissions are well below de 
minimis and presumed to conform.

6. Terminal and Concourse Upgrades

    The opportunity to expand or upgrade terminals and/or concourses 
for the purpose of improving passenger convenience typically involves 
increasing the interior terminal space in areas such as hold rooms, 
concessions, restrooms, and gate areas. Qualifying projects in this 
category do not have the effect of attracting more passengers. Nor do 
they have the effect of increasing the airport's ability to accommodate 
additional numbers or types of aircraft or to increase passenger 
loading on scheduled flights. Major terminal and/or concourse expansion 
projects that are designed to increase passenger usage or to support 
increased airfield capacity through new aircraft gates, runways, 
taxiways, etc. require an inventory of direct and indirect emissions to 
determine the applicability of general conformity.
    Construction vehicles and equipment are the only source of 
emissions when expanding or upgrading terminals. A conservative 
approach to quantifying construction emissions was used to determine 
the appropriate limits for this type of activity. The emission limits 
are presented in Table III-1 under ``Terminal Upgrades'' according to 
the de minimis thresholds.
    A proposed terminal expansion project located in the FAA's Southern 
Region was used as the representative project. The terminal was 
proposed to have an additional footprint of 381,000 square feet. This 
proposed project was purposely selected to provide a conservative 
estimate of construction emissions normally released from this type 
airport improvement activity, even though this presumed to conform 
activity is limited to non-capacity enhancing projects. Emissions were 
quantified in this case from construction activities, including soil 
cement preparation, subgrade preparation, light and heavy demolition, 
cement base treatment, installation of the grade aggregate base, 
construction of the terminal, light and heavy utility work, and light 
and heavy earthwork. In addition, the proposed terminal expansion was 
assumed to occur within the same calendar year instead of the proposed 
schedule of seven years.
    Construction emissions were calculated using prescribed EPA 
methodology incorporating the projected construction activity level, 
the number of construction vehicles and equipment, and industry-wide 
utilization rates. Emission factors for construction vehicles and 
equipment were taken from EPA databases for nonroad vehicles and 
engines,\38\ and their updates.\39\
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    \38\ EPA Report 460/3-91-02, November 1991, Nonroad Engine and 
Vehicle Emission Study--Report.
    \39\ EPA Report NR-005A, December 9, 1997, revised June 15, 
1998, Median Life, Annual Activity, and Load Factor Values for 
Nonroad Engine Emissions Modeling.
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    A proposed terminal/concourse expansion project is presumed to 
conform up to the square foot additions (footprint) of the project as 
determined by the most limiting pollutant (see Table III-1). The 
prescribed build-out limits per calendar year apply to all components 
of the terminal/concourse upgrade project according to the air quality 
status of the area in which the project is located.

7. New HVAC Systems, Upgrades, and Expansions

    Upgrading and expanding heating, ventilation, and air conditioning 
(HVAC) systems are presumed to conform because any emission increases 
associated with improvements to airport heating and cooling systems are 
generally minor and well below de minimis thresholds.
    Heating for airport terminal buildings is typically provided 
through a boiler system.\40\ Boilers may be fueled by natural gas, coal 
(bituminous, sub-bituminous, or anthracite), No. 5 and No. 6 fuel oil 
(residual), No. 2 fuel oil (diesel), culm fuel, and liquefied petroleum 
gas (propane or butane). Pollutant emissions due to the operation of 
boilers vary with the fuel used. The emission factors for the various 
fuels are presented in Table III-2 below.
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    \40\ A boiler is an encased vessel that provides a means for 
combustion heat to be transferred into water until it becomes steam. 
The steam is then used to heat the building through a network of 
pipes. When water is boiled into steam its volume increases about 
1,600 times, which is an efficient means for transferring heat for a 
process. HVACWebTech, Inc.
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    A new, upgraded, or expanded boiler system involves the 
installation of new equipment to replace or expand the capacity of 
existing boiler systems. Boilers can be very large and are sometimes 
delivered on flatbed semi-tractor trailer trucks and set in place by a 
crane. Table III-3 presents the construction emissions, primarily 
NOX and CO, associated with the installation of a large 
boiler as described.
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BILLING CODE 4910-13-C
    Airport terminals consume energy for heat at a higher rate than 
most public buildings. The reasons for this include the open areas 
surrounding many airports, heat loss from the movement of people and 
baggage in and out of buildings, and the usual 24-hour operation of 
facilities. The consumption of energy to generate heat is also 
dependent upon the design of the terminal building. For instance, many 
airport terminals are designed with exterior glass walls or incorporate 
design, art, and architectural treatments that reflect local customs 
and community history.\41\ The many variations of airport terminal 
design, including geographical location, make it impractical to 
identify the ``typical terminal building'' for purposes of determining 
total emissions. Therefore, the presumption of conformity could not be 
based on the characteristics of the building, but rather on the volume 
of fuel consumed.
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    \41\ FAA AC 150/5360-13, April 22, 1988, Planning and Design 
Guidelines for Airport Terminal Facilities.
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    As discussed, emissions resulting from the operation of boilers 
depend on the type of fuel powering the boiler system. Emissions from 
the use of propane, butane, and natural gas are of concern in ozone 
nonattainment and maintenance areas since the primary pollutant from 
combustion of these fuels is NOX, a precursor to ozone 
formation. Hydrocarbons (HCs) are another precursor to ozone but they 
are relatively low for these fuel types in comparison to NOX 
emissions. The primary pollutant from the combustion of fuel oil (No. 2 
diesel, and No. 5 and

[[Page 6650]]

No. 6 residual) is SO2, while particulate matter is the 
primary pollutant from the combustion of coal, including culm fuel). 
Therefore, NOX, SO2, and PM10 are the 
most likely limiting pollutants for the operation of boiler systems at 
airports.
    Table III-4 below presents maximum annual fuel throughput for 
heating systems and boilers by fuel type at levels that do not equal or 
exceed the de minimis thresholds. The FAA Emissions and Dispersion 
Modeling System (EDMS) was used to perform the calculations. EDMS 
emission factors are conservatively based on EPA's AP-42 emissions 
quantification methodology.\42\
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    \42\ FAA, 2005, Emissions and Dispersion Modeling System EDMS 
Version 4.2.
---------------------------------------------------------------------------

    The analysis shows, for example, that an airport located in a 
severe nonattainment area for ozone, with a de minimis NOX 
threshold of 25 tons per year, could operate new or improved boilers 
using up to 5.05 million cubic meters of natural gas annually, which is 
sufficient to heat a building of approximately 210,000 square feet.\43\ 
NOX emissions in a severe ozone nonattainment area would be 
limited to 3,434 kiloliters (kl) of No. 6 fuel oil (residual), 7,816 kl 
of No. 2 fuel oil (diesel), 9,855 kl of propane, 1,374 metric tons of 
bituminous coal, or 2,519 metric tons of anthracite coal on an annual 
basis.
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    \43\ Assuming a 100,000 sq. ft. one-floor building would require 
approximately 2.4 million cubic meters of natural gas to heat the 
building, annually; based on the industry standard heat value, 1,000 
BTU per cubic foot of natural gas, annually [Airtron Heating and Air 
Conditioning, Columbus, Ohio].
---------------------------------------------------------------------------

    The installation, upgrade, or expansion of an airport HVAC system 
that requires a permit under new source review (NSR) or prevention of 
significant deterioration programs is exempt from a general conformity 
determination.\44\ The inclusion of airport boiler installations/
modifications as a presumed to conform activity does not affect 
existing or future requirements of Federal, State or local air quality 
operating permit programs. Proper compliance with all applicable 
environmental regulations must be maintained.
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    \44\ 40 CFR Part 93, 93.153(d)(1).
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[[Page 6651]]

[GRAPHIC] [TIFF OMITTED] TN12FE07.002


[[Page 6652]]


[GRAPHIC] [TIFF OMITTED] TN12FE07.003

BILLING CODE 4910-13-C

8. Airport Security

    Based on collected project information and additional agency 
experience with airport security actions following the events of 
September 11, 2001, the FAA has determined that dedicated security-
related airport projects qualify as presumed to conform actions, 
including modification of existing terminals with luggage and passenger 
scanning devices, addition of camera surveillance, bolstering of 
airport security fencing, and reinforcement of airport access control. 
In most cases, the installation of security equipment and upgraded 
operations in existing facilities will not result in the generation of 
air emissions. If the construction and installation of

[[Page 6653]]

some dedicated security projects do cause emissions, these emissions 
will be minor and well below the de minimis thresholds.
    Security requirements also may dictate that parking spaces close to 
terminal buildings be eliminated.\45\ As a result, FAA actions 
associated with the expansion of parking facilities to compensate for 
lost close-in parking are presumed to conform provided these actions 
are limited to a one-for-one replacement of parking capacity. 
Generally, the relocation of parking spaces away from the terminal 
building will reduce vehicle miles traveled (VMT) on airport property, 
resulting in an emissions decrease.
---------------------------------------------------------------------------

    \45\ FAA Aviation Security Directive issued February 2002.
---------------------------------------------------------------------------

    It is important to note that this category of presumed to conform 
actions is separate from exempt Federal actions under the Rule that are 
part of a continuing response to an emergency or disaster.\46\ Agency 
use of the emergency exemption is limited in time and must involve 
overriding concerns for public health and welfare, national security 
interests, and foreign policy commitments.\47\
---------------------------------------------------------------------------

    \46\ 40 CFR Part 93, 93.153(e).
    \47\ Ibid.
---------------------------------------------------------------------------

9. Airport Safety

    Airport projects relating to airport safety include actions 
specific to the Runway Safety Area (RSA). FAA regulations specify the 
requirements for a RSA, which is defined as the surface area that 
surrounds and extends beyond the runway ends that is required for 
reducing the risk of damage to airplanes in the event of an undershoot, 
overshoot, or excursion from the runway.\48\ RSA improvements are 
presumed to conform unless a new road or the relocation of a road is 
required.
---------------------------------------------------------------------------

    \48\ FAA AC 150/5300-13, September 29, 1989, Airport Design.
---------------------------------------------------------------------------

    In addition to a safe airfield, airport projects to build, expand, 
replace, upgrade, or equip a required Aircraft Rescue and Firefighting 
Facility (ARFF) are presumed to conform. These facilities are 
relatively small airport projects and must be provided by the airport 
to ensure airport and passenger safety. Airports must meet ARFF 
requirements as specified under 14 CFR 139.317, and are responsible for 
upgrading an ARFF if there is an increase in the average daily 
departures or the length of an air carrier aircraft.\49\
---------------------------------------------------------------------------

    \49\ Per index under 14 CFR Part 139, 139.319(a).
---------------------------------------------------------------------------

10. Airport Maintenance Facilities

    Airport maintenance facilities house the equipment necessary to 
run, service, and maintain the airport environs. These facilities can 
include vehicle service centers, fueling stations, and storage areas 
for snow removal and maintenance equipment. FAA actions associated with 
upgrading airport-owned maintenance facilities are presumed to conform 
based on the fact that these facilities typically require only minor 
construction. However, the installation or upgrading of aircraft 
maintenance facilities (typically owned by an airline or charter 
company) that are used to paint or maintain aircraft at an airport are 
not considered presumed to conform because aircraft maintenance 
facilities may cause an increase in flights to meet maintenance 
schedules.

11. Airport Signage

    Airport sponsors place signs throughout the airport property to 
direct passengers, employees, and vendors to terminals, parking lots, 
rental car areas, maintenance areas, etc. In addition, airports provide 
a network of signs to direct aircraft and vehicles on the airfield. 
Airport signage is often electrified for illumination at night and for 
other times of limited visibility. In general, airport signage 
installation can be completed in a matter of days or weeks. It would 
require more than a year of continuous installation to exceed the 25-
ton threshold for NOX. Therefore, airport signage 
installation projects are presumed to conformed.

12. Commercial Vehicle Staging Areas

    Commercial vehicle staging areas at airports serve as temporary 
holding areas for taxicabs, limousines, and other commercial vehicles. 
Such areas reduce the need to idle at the terminal curb front and help 
to decongest the terminal roadways. Airports that employ commercial 
vehicle staging areas may enforce specific idling restrictions or 
engine-off mandates to further reduce air quality impacts. Generally, 
the use of commercial vehicle staging areas is an emissions reduction 
strategy because the alternative inherently creates more emissions from 
increased traffic and congestion at the terminal.
    A Federal action to develop a commercial vehicle staging area for 
purposes of relieving airport traffic congestion is presumed to conform 
based on the criteria provided in Table III-1 for a ``Commercial 
Vehicle Staging Area.'' Providing a commercial vehicle staging area 
does not cause an increase in the volume of vehicles on regional 
roadways and impacts air quality only through the use of construction 
equipment to pave the staging area. Construction emissions are 
primarily comprised of NOX and CO.
    The quantity of emissions associated with the construction of an 
asphalt taxicab staging area was based on a construction design for a 
regional asphalt roadway. The calculation of emissions included 
activities such as excavation, preparation of the subgrade, adding a 
base layer of stone, fine grading, and paving. The paving process 
included the application of a tack coat, wearing course, and the final 
seal coat. The type and use of construction equipment was determined 
based on information obtained from the R.S. Means' Means Building 
Construction Cost Data, and the State of Ohio Department of 
Transportation's Manual of Procedures for Flexible Pavement 
Construction and Pavement Design and Rehabilitation Manual. Rated 
horsepower and load factors for each construction unit was obtained 
from the EPA's Nonroad Engine and Vehicle Emission Study-Report and 
Median Life, Annual Activity, and Load Factor Values for Nonroad Engine 
Emissions Modeling, and the Caterpillar Performance Handbook. Emission 
factors were obtained from the EPA's Nonroad Engine and Vehicle 
Emission Study-Report.
    The acreage that could be paved without equaling or exceeding the 
de minimis thresholds for each applicable nonattainment or maintenance 
category was calculated and summarized in Table III-1. For instance, an 
airport located within an area designated as severe nonattainment for 
ozone, which limits net project emissions to an annual rate of 25 tons 
of NOX, is limited to a commercial vehicle staging area of 
about 13 acres, or 561,584 square feet, which results in 2.35 tons of 
VOC emissions. Paving of approximately 137 acres is required to cause 
emissions of VOC of nearly 25 tons, as established for a severe 
nonattainment area for ozone. In order to approach the 100 ton de 
minimis thresholds for other criteria pollutants, paving areas of 
approximately 140 acres would be required for CO, 556 acres for 
SO2, and more than 595 acres for PM10. Therefore, 
NOX is the limiting pollutant for paving projects at 
airports and emissions of VOC, CO, SO2, and PM10 
are considerably less in comparison to NOX.

13. Low-Emission Technology and Alternative Fuel Vehicles

    A growing number of airports are interested in new technology and 
vehicle systems to reduce stationary and mobile emissions. Based on 
agency and airport low-emission programs over the past several years, 
which provide extensive data and documentation to verify the emission 
reduction benefits of

[[Page 6654]]

new low-emission technology, these activities are presumed to conform.
    Activities that are presumed to conform include the replacement, 
substitution, or conversion of conventional fuel vehicles (gasoline, 
diesel) to vehicles using alternative or clean conventional fuel 
technology. Qualified activities also encompass airport low-emission 
infrastructure improvements and the use of refueling or recharging 
stations needed to service airport low-emission vehicles.
    All low-emission activities funded through the FAA Voluntary 
Airport Low Emission Program (VALE) or that are required as part of 
environmental mitigation are presumed to conform.\50\ The VALE program 
requires that vehicles purchased under the program meet specific low-
emission standards and that these vehicles and other program equipment 
remain at the airport for their useful life.
---------------------------------------------------------------------------

    \50\ FAA Order 5100.38C, Airport Improvement Program Handbook, 
June 2005, Sec. Sec.  580, 585.
---------------------------------------------------------------------------

14. Air Traffic Control Activities and Adopting Approach, Departure and 
Enroute Procedures for Air Operations

    The preamble to the General Conformity Rule \51\ states that:
---------------------------------------------------------------------------

    \51\ 58 FR 63229 (Nov. 30, 1993).
---------------------------------------------------------------------------

    ``In order to illustrate and clarify that the de minimis levels 
exempt certain types of Federal actions, several de minimis exemptions 
are listed in Sec.  51.853(c)(2). There are too many Federal actions 
that are de minimis to completely list in either the rule or this 
preamble.''
    As an illustration of exempt actions, EPA states in the preamble 
that ``Air traffic control activities and adopting approach, departure 
and enroute procedures for air operations'' are among other actions 
that are de minimis (preamble, p. 63229, I(2)) and should be exempt 
from the Rule. The FAA concurs with the EPA determination that air 
traffic control activities are de minimis. However, because these 
activities are cited in the preamble but not in the Rule itself, the 
FAA believes that it is prudent to document these activities as 
presumed to conform.
    Air traffic control activities are defined as actions that promote 
the safe, orderly, and expeditious flow of aircraft traffic, including 
airport, approach, departure, and enroute air traffic control.\52\ 
Airspace and air traffic actions (e.g., changes in routes, flight 
patterns, and arrival and departure procedures) are implemented to 
enhance safety and increase the efficient use of airspace by reducing 
congestion, balancing controller workload, and improving coordination 
between controllers handling existing air traffic, among other things. 
Although increased efficiency and delay reduction would allow traffic 
volume to increase, in FAA's experience such actions do not lead to 
increased annual aircraft operations or changes to the operational 
level of airports in the vicinity of the air traffic changes. In 
today's deregulated environment, market forces determine where airlines 
fly and how often.
---------------------------------------------------------------------------

    \52\ 14 CFR Part 170, Sec.  170.3.
---------------------------------------------------------------------------

    Emissions released into the atmosphere above the inversion base for 
pollutant containment, commonly referred to as the ``mixing height,'' 
(generally 3,000 ft. above ground level) do not have an effect on 
pollution concentrations at ground level.\53 54\ Therefore, air traffic 
control actions above the mixing height are presumed to conform.
---------------------------------------------------------------------------

    \53\ EPA Report, Procedures for Emission Inventory Preparation, 
Volume IV: Mobile Sources [420-R-92-009], section 5.2.2., 1992.
    \54\ Realistic Mixing Depths for Above Ground Aircraft 
Emissions, Journal of the Air Pollution Control Association, Vol. 
25, No. 10, Howard M. Segal, Boeing, 1975.
---------------------------------------------------------------------------

    In addition, the results of FAA research on mixing heights 
indicated that changes in air traffic procedures above 1,500 ft. AGL 
and below the mixing height would have little if any effect on 
emissions and ground concentrations.\55\ Such actions in the vicinity 
of the airport are tightly constrained by runway alignment, safety, 
aircraft performance, weather conditions, terrain, and vertical 
obstructions.\56\ Accordingly, air traffic actions below the mixing 
height are also presumed to conform when modifications to routes and 
procedures are designed to increase safety, enhance fuel efficiency, or 
reduce community noise impacts by means of engine thrust reductions. 
Other air traffic procedures and system enhancements that are presumed 
to conform include actions that have no effect on air emissions or 
result in air quality improvements, such as gate hold procedures which 
reduce queuing, idling, and flight delays.
---------------------------------------------------------------------------

    \55\ Report on ``Consideration of Air Quality Impacts by 
Airplane Operations At or Above 3,000 feet AGL,'' FAA-AEE-00-01, 
September 2000, p. 5.
    \56\ FAA Advisory Circulars No. 25-13 and No. 91-53A describe 
requirements that must be met when using reduced power for takeoff.
---------------------------------------------------------------------------

15. Routine Installation and Operation of Airport Navigation Aids

    Aviation navigation aids represent the facilities and equipment 
used for communications, navigation, and surveillance (CNS) 
systems.\57\ The use and maintenance of CNS systems is essential to 
safe air commerce and national security.\58\ Airports are required to 
establish adequate maintenance systems for navigational aid facilities 
to the level of performance achieved at original commission.\59\
---------------------------------------------------------------------------

    \57\ 14 CFR 171.1-171.51.
    \58\ 14 CFR 169.1(a)
    \59\ 14 CFR Part 171.
---------------------------------------------------------------------------

    Similar to the previous presumed to conform action for air traffic 
control activities, EPA states in the preamble that ``routine 
installation and operation of aviation (and maritime) navigation aids'' 
are below de minimis and should be considered exempt actions.\60\ The 
FAA concurs with EPA in this determination. However, because the stated 
activities are cited in the preamble but not in the Rule itself, the 
FAA believes that it is prudent to document these activities as 
presumed to conform.
---------------------------------------------------------------------------

    \60\ 58 FR 63229, I(6) (Nov. 30, 1993).
---------------------------------------------------------------------------

    The routine installation, in-kind replacement, and maintenance of 
navigational aids (e.g., Air Traffic Control Towers (ATCT), Instrument 
Landing Systems (ILS), Approach Light Systems (ALS)) are presumed to 
conform because these activities will not generate emissions that 
exceed de minimis levels. Moreover, emissions generated by construction 
equipment and maintenance vehicles used to transport workers and 
equipment to CNS system sites are negligible considering the temporary 
nature of construction and maintenance activities and the limited 
number of vehicles involved.
    If the installation of new or upgraded navigational aids for 
improved safety and efficiency also increases the capacity of the 
airport or changes the operational environment of the airport, these 
CNS activities are not presumed to conform.\61\
---------------------------------------------------------------------------

    \61\ Consistent with FAA Order 1050.1E, Section 401 ``Actions 
Normally Requiring an Environmental Assessment''
---------------------------------------------------------------------------

    Also presumed to conform are CNS emergency or standby generators 
powered by natural gas or LPG. These generators provide electric power 
in case of primary power failure and are operated intermittently, with 
an estimated total time of operation of less than 100 hours per year. 
Because of the infrequent use and small size (135 kilowatts or less) of 
the engine generators and the use of clean-burning fuels, the engine 
generators produce negligible air emissions.

IV. How To Apply Presumed To Conform Actions

    The qualifying project categories discussed in the preceding 
section may be referred to as the FAA ``presumed to

[[Page 6655]]

conform list.'' As authorized under the CAA, the list provides an 
additional way for the FAA to improve its environmental program 
management while still ensuring that agency air quality goals and 
requirements are met. Use of the list will reduce review times, 
eliminate unnecessary paperwork, clarify analytical requirements for 
all project actions, and insure that the proper level of documentation 
is applied in each case. Moreover, in some instances, the presumed to 
conform list can provide another method that the FAA and airport 
sponsors can use to demonstrate conformity with an applicable SIP.
    When applying the presumed to conform list, the FAA must determine 
whether a proposed presumed to conform action has independent utility 
under the National Environmental Policy Act (NEPA) \62\ or whether such 
action is part of a combined or larger action that might result in 
cumulative air quality impacts.\63\
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    \62\ 40 CFR 1506.1(c)(1), Council on Environmental Quality, 
Regulations for Implementing the Procedural Provisions of NEPA.
    \63\ 40 CFR 1508.25(1)
---------------------------------------------------------------------------

    The proposed project has independent utility. If a presumed to 
conform project has independent utility, no general conformity 
evaluation or applicability analysis is required and agency officials 
may simply document that the project action is considered presumed to 
conform on the basis of this Notice and the applicable project 
category.
    This allowance meets a major intent of presumed to conform--namely 
to reduce the analysis burden for actions that have little or no direct 
or indirect emissions. In its separate analysis of each project 
category in the presumed to conform list, the FAA has shown that the 
resulting emissions from any presumed to conform action would always be 
below the applicable de minimis thresholds.\64\
---------------------------------------------------------------------------

    \64\ The FAA did no evaluate combined emissions from two or more 
presumed to conform categories.
---------------------------------------------------------------------------

    The proposed project is a combined action. If a presumed to conform 
action is part of a combined action (e.g., an EIS or large EA 
generally), agency officials may exclude the emissions of one presumed 
to conform action from the calculation of total direct and indirect 
emissions in the applicability analysis and, if required, a general 
conformity determination. In combined actions, however, emissions from 
the presumed to conform action must be analyzed, quantified, and 
clearly documented in the applicability analysis or general conformity 
determination if required. Further discussion of this allowance is 
provided below.
    Combined actions are considered connected actions under NEPA, which 
the Council on Environmental Quality (CEQ) defines as actions that are 
closely related and that:

--Automatically trigger other actions which may require environmental 
impact statements
--Cannot or will not proceed unless other actions are taken previously 
or simultaneously
--Are interdependent parts of a larger action and depend on the larger 
action for their justification \65\

    \65\ 40 CFR 1508.25(1).

    Effective implementation of the presumed to conform list requires a 
balance between NEPA considerations on connected actions and the 
permitted exclusion of presumed to conform emissions under the Rule. As 
stated in Sec.  93.152 under Definitions: ``The portion of emissions 
which are exempt or presumed to conform under Section 93.153(c), (d), 
(e), or (f) are not included in the ``total of direct and indirect 
emissions.'' Similarly, the preamble (58 FR 63233) states: ``The final 
rule requires the inclusion of the total direct and indirect emissions 
in the applicability and conformity determinations, except the portion 
of emissions which are exempt or presumed to conform * * *''
    The approach adopted herein for the presumed to conform list is 
consistent with the Rule and places a conservative limit on the 
permitted exclusion of presumed to conform emissions. Moreover, based 
on interagency communications with the EPA, the agency's approach 
conforms to the EPA's belief that a Federal agency may exclude the 
emissions of one presumed to conform action from the applicability 
analysis of total direct and indirect emissions that are not otherwise 
exempt and from a conformity determination if required. As a result, 
even if a combined action includes multiple presumed to conform 
actions, the FAA and airport sponsors may only exclude the emissions 
from one presumed to conform action vis-[agrave]-vis the project's 
total direct and indirect emissions. Agency officials maintain the 
right to select the specific presumed to conform action to exclude if 
more than one is present in the combined action.
    By being able to exclude emissions from a presumed to conform 
action, the agency may show that the project's total direct and 
indirect emissions that are not otherwise exempt do not equal or exceed 
any of the de minimis thresholds in the Rule. The presumed to conform 
action could therefore make a difference as to whether or not a general 
conformity determination is required. Specifically, the applicability 
analysis of total direct and indirect emissions, plus emissions 
calculated separately for the presumed to conform action, could show 
that the combined action would equal or exceed the de minimis 
thresholds if not for the allowable subtraction of emissions from the 
presumed to conform action.
    In a combined action, the presumed to conform action must be 
evaluated similarly and at the same level as other elements in the 
overall project. This assessment typically involves the quantification 
of direct and indirect emissions on a calendar year basis. The 
estimated annual emissions from the presumed to conform action must be 
identified as a separate line item in the applicability analysis and 
clearly explained and presented in the study documentation.
Regional Significance
    Under 40 CFR 93.153(j) of the Rule, a Federal action that is 
presumed to conform action may still be subject to a general conformity 
determination if the action is shown to be regionally significant.\66\ 
The purpose of the regionally significant requirement is to capture 
those Federal actions that fall below de minimis threshold levels but 
still have the potential to impact the air quality of a region.
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    \66\ A regionally significant Federal Acton is an action that 
has total emissions (the sum of direct and indirect emissions) that 
represent 10 percent or more of a nonattainment or maintenance 
area's total emissions of that pollutant [40 CFR Part 93, Sec.  
93.153(i) and (j)].
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    By definition, if the total of direct and indirect emissions of any 
pollutant from a Federal action represent 10 percent or more of a 
maintenance or nonattainment area's total emissions of that pollutant, 
the action is considered to be a regionally significant activity and 
the General Conformity Rule applies. If an action in a nonattainment 
area is below the thresholds or is otherwise presumed to conform and is 
not regionally significant, then the General Conformity Rules does not 
apply and no official reporting is required under Section 176(c) of the 
CAA.
    The FAA Air Quality Handbook states that an airport project that is 
presumed to conform is unlikely to have emission levels that are 
regionally significant.\67\ This is because, based on the highest de 
minimis threshold level (100 tons per year), in order for an action's 
net

[[Page 6656]]

emissions to represent 10 percent or more of a maintenance or 
nonattainment area's total emissions of a particular pollutant, the 
area's total emissions inventory for any pollutant must be less than 
1,000 tons, which is unlikely. Based on this rationale, the presumed to 
conform activities in this Notice are not considered to be regionally 
significant.
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    \67\ FAA and USAF, April 1997, Air Quality Procedures for 
Civilian Airports & Air Force Bases.

    Issued in Washington, DC on February 5, 2007.
Charles R. Everett, Jr.,
Manager, Planning and Environmental Division, Office of the Associate 
Administrator for Airports.
 [FR Doc. E7-2241 Filed 2-9-07; 8:45 am]
BILLING CODE 4910-13-P