[Federal Register Volume 81, Number 80 (Tuesday, April 26, 2016)]
[Rules and Regulations]
[Pages 24492-24496]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2016-09591]


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ENVIRONMENTAL PROTECTION AGENCY

40 CFR Part 52

[EPA-R03-OAR-2016-0002; FRL-9945-47-Region 3]


Approval and Promulgation of Air Quality Implementation Plans; 
Pennsylvania; 2011 Base Year Inventories for the 2008 8-Hour Ozone 
National Ambient Air Quality Standard for the Allentown-Bethlehem-
Easton, Lancaster, Pittsburgh-Beaver Valley, and Reading Areas, and the 
Pennsylvania Portion of the Philadelphia-Wilmington-Atlantic City Area

AGENCY: Environmental Protection Agency (EPA).

ACTION: Direct final rule.

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SUMMARY: The Environmental Protection Agency (EPA) is taking direct 
final action to approve the 2011 base year inventories for the five 
Pennsylvania marginal nonattainment areas for the 2008 8-hour ozone 
national ambient air quality standard (NAAQS), the Allentown-Bethlehem-
Easton, Lancaster, Pittsburgh-Beaver Valley, and Reading nonattainment 
areas and the Pennsylvania portion of the Philadelphia-Wilmington-
Atlantic City nonattainment area. The Commonwealth of Pennsylvania 
submitted the emission inventories to meet the nonattainment 
requirements for marginal ozone nonattainment areas for the 2008 8-hour 
ozone NAAQS. EPA is approving the 2011 base year emissions inventories 
for the 2008 8-hour ozone NAAQS as a revision to the Pennsylvania State 
Implementation Plan (SIP), in accordance with the requirements of the 
Clean Air Act (CAA).

DATES: This rule is effective on June 27, 2016 without further notice, 
unless EPA receives adverse written comment by May 26, 2016. If EPA 
receives such comments, it will publish a timely withdrawal of the 
direct final rule in the Federal Register and inform the public that 
the rule will not take effect.

ADDRESSES: Submit your comments, identified by Docket ID No. EPA-R03-
OAR-2016-0002 at http://www.regulations.gov, or via email to 
[email protected]. For comments submitted at Regulations.gov, 
follow the online instructions for submitting comments. Once submitted, 
comments cannot be edited or removed from Regulations.gov. For either 
manner of submission, EPA may publish any comment received to its 
public docket. Do not submit electronically any information you 
consider to be confidential business information (CBI) or other 
information whose disclosure is restricted by statute. Multimedia 
submissions (audio, video, etc.) must be accompanied by a written 
comment. The written comment is considered the official comment and 
should include discussion of all points you wish to make. EPA will 
generally not consider comments or comment contents located outside of 
the primary submission (i.e., on the web, cloud, or other file sharing 
system). For additional submission methods, please contact the person 
identified in the FOR FURTHER INFORMATION CONTACT section. For the full 
EPA public comment policy, information about CBI or multimedia 
submissions, and general guidance on making effective comments, please 
visit http://www2.epa.gov/dockets/commenting-epa-dockets.

FOR FURTHER INFORMATION CONTACT: Maria A. Pino, (215) 814-2181, or by 
email at [email protected].

SUPPLEMENTARY INFORMATION:

I. Background

    Ground-level ozone is formed when nitrogen oxides (NOX) 
and volatile organic compounds (VOC) react in the presence of sunlight. 
Referred to as ozone precursors, these two pollutants are emitted by 
many types of pollution sources, including motor vehicles, power 
plants, industrial facilities, and area wide sources, such as consumer 
products and lawn and garden equipment. Scientific evidence indicates 
that adverse public health effects occur following a person's exposure 
to ozone. These effects are more pronounced in children and adults with 
lung disease. Breathing air containing ozone can reduce lung function 
and inflame airways, which can increase respiratory symptoms and 
aggravate asthma or other lung diseases. In 1979, in response to this 
scientific evidence, EPA promulgated the first ozone NAAQS, the 0.12 
part per million (ppm) 1-hour ozone NAAQS. See 44 FR 8202 (February 8, 
1979). EPA had previously promulgated a NAAQS for total photochemical 
oxidants.
    On July 18, 1997, EPA promulgated a revised ozone NAAQS of 0.08 
ppm, averaged over eight hours. 62 FR 38855. This standard was 
determined to be more protective of public health than the previous 
1979 1-hour ozone standard. In 2008, EPA revised the 8-hour ozone NAAQS 
from 0.08 to 0.075 ppm. See 73 FR 16436 (March 27, 2008). On May 21, 
2012, the Allentown-Bethlehem-Easton, Lancaster, Pittsburgh-Beaver 
Valley, Reading, and Philadelphia-Wilmington-Atlantic City areas were 
designated as marginal nonattainment for the more stringent 2008 8-hour 
ozone NAAQS. 77 FR 30088.
    The Allentown-Bethlehem-Easton nonattainment area is comprised of 
Carbon, Lehigh, and Northampton Counties, all in Pennsylvania. 
Lancaster and Reading are single-county nonattainment areas, comprised 
of Lancaster County, Pennsylvania and Berks County, Pennsylvania, 
respectively. The Pittsburgh-Beaver Valley nonattainment area is 
comprised of Allegheny, Armstrong, Beaver, Butler, Fayette, Washington, 
and Westmoreland Counties, all in Pennsylvania. The Philadelphia-
Wilmington-Atlantic City nonattainment areas includes Bucks, Chester, 
Delaware, Montgomery, and Philadelphia Counties in Pennsylvania, plus 
counties in Delaware, Maryland, and New Jersey. Under section 172(c)(3) 
of the CAA, Pennsylvania is required to submit comprehensive, accurate, 
and current inventories of actual emissions from all sources of the 
relevant pollutants in its marginal nonattainment areas, i.e., the 
Allentown-Bethlehem-Easton, Lancaster, Pittsburgh-Beaver Valley, and 
Reading nonattainment areas, and the Pennsylvania portion of the 
Philadelphia-Wilmington-Atlantic City nonattainment area.
    On October 1, 2015, EPA strengthened the ground-level ozone NAAQS 
to 0.070 ppm, based on extensive scientific evidence about ozone's 
effects on public health and welfare. See 80 FR 65292 (October 26, 
2015). As required by section 107(d) of the CAA, EPA intends to 
complete the initial designation process within two years of 
promulgation of the 2015 ozone NAAQS, i.e., no later than October 1, 
2017. This rulemaking does not address the 2015 ozone NAAQS.

[[Page 24493]]

II. Summary of SIP Revision

    Under CAA section 172(c)(3), states are required to submit a 
comprehensive, accurate, current accounting of actual emissions from 
all sources (point, nonpoint, nonroad, and onroad) in the nonattainment 
area. CAA section 182(a)(1) requires that areas designated as 
nonattainment and classified as marginal are to submit an inventory of 
all sources of ozone precursors no later than 2 years after the 
effective date of designation. EPA's guidance for emissions inventory 
development calls for actual emissions to be used in the base year 
inventory. The state must report annual emissions as well as ``summer 
day emissions.'' As defined in 40 CFR 51.900(v), ``summer day 
emissions'' means, ``an average day's emissions for a typical summer 
work weekday. The state will select the particular month(s) in summer 
and the day(s) in the work week to be represented.''
    On September 30, 2015, the Pennsylvania Department of Environmental 
Protection (PADEP), submitted a SIP revision entitled, ``2011 Base Year 
Inventory for the Pennsylvania Portion of Five 2008 Ozone Nonattainment 
Areas: Allentown-Bethlehem-Easton, Lancaster, Philadelphia-Wilmington-
Atlantic City, Pittsburgh-Beaver Valley, Reading.'' PADEP selected 2011 
as its base year for SIP planning purposes, as recommended in EPA's 
final rule, ``Implementation of the 2008 National Ambient Air Quality 
Standards for Ozone: State Implementation Plan Requirements.'' 80 FR 
12263 (March 6, 2015). PADEP's 2011 base year inventories include 
emissions estimates covering the general source categories of 
stationary point, stationary nonpoint, nonroad mobile, and onroad 
mobile. In its 2011 base year inventories, PADEP reported actual annual 
emissions and typical summer day emissions for the months of May 
through September for NOX, VOC, and carbon monoxide (CO).
    Tables 1 through 5 summarize the 2011 VOC, NOX, and CO 
emission inventory by source sector for Pennsylvania's five marginal 
nonattainment areas. Annual emissions are given in tons per year (tpy), 
and summer weekday emissions are given in tons per day (tpd).

                                       Table 1--Summary of 2011 Emissions for the Allentown-Bethlehem-Easton Area
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                                                                       Summer weekday (tpd)                                Annual (tpy)
                      Source sector                      -----------------------------------------------------------------------------------------------
                                                                VOC             NOX             CO              VOC             NOX             CO
--------------------------------------------------------------------------------------------------------------------------------------------------------
Point...................................................          3.5844         24.0763         44.5565      1,298.2944      8,882.4313     15,980.1187
Nonpoint................................................         52.4620          4.3983         10.7226     21,874.0747      2,365.4084     17,758.0824
Nonroad.................................................          7.3491          8.4916         81.1983      2,624.7749      2,372.2160     26,305.6727
Highway.................................................         17.1800         35.5600        172.5900      6,169.9800     12,833.6100     76,800.1200
                                                         -----------------------------------------------------------------------------------------------
    Total...............................................         80.5755         72.5262        309.0674     31,967.1240     26,453.6657    136,843.9938
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                                                Table 2--Summary of 2011 Emissions for the Lancaster Area
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                                                                       Summer weekday (tpd)                                Annual (tpy)
                      Source sector                      -----------------------------------------------------------------------------------------------
                                                                VOC             NOX             CO              VOC             NOX             CO
--------------------------------------------------------------------------------------------------------------------------------------------------------
Point...................................................          6.0096          3.3279          4.9232      2,161.8035      1,225.2810      1,811.4742
Nonpoint................................................         31.6881          4.1839         14.0763     13,262.0758      2,043.6030     13,992.7848
Nonroad.................................................          9.4751          8.1193         75.9137      3,854.6239      2,369.2314     26,064.9100
Highway.................................................         11.9900         24.4200        121.0300      4,233.6300      8,879.1200     52,716.3700
                                                         -----------------------------------------------------------------------------------------------
    Total...............................................         59.1628         40.0511        215.9432     23,512.1332     14,571.2354     94,585.5390
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                    Table 3--Summary of 2011 Emissions for the Pennsylvania Portion of the Philadelphia-Wilmington-Atlantic City Area
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                                                                       Summer weekday (tpd)                                Annual (tpy)
                      Source sector                      -----------------------------------------------------------------------------------------------
                                                                VOC             NOX             CO              VOC             NOX             CO
--------------------------------------------------------------------------------------------------------------------------------------------------------
Point...................................................         13.8162         39.8652         35.4149      5,044.1788     14,466.8247     12,605.2393
Nonpoint................................................        144.0575         27.7843         24.6034     55,434.4159     14,394.6064     27,032.5230
Nonroad.................................................         41.8480         39.2817        510.4407     14,368.4324     11,090.2074    162,745.4696
Highway.................................................         60.5800        123.3900        631.6900     21,497.8300     43,869.0400    259,855.7300
                                                         -----------------------------------------------------------------------------------------------
    Total...............................................        260.3017        230.3212      1,202.1490     96,344.8571     83,820.6785    462,238.9619
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                                        Table 4--Summary of 2011 Emissions for the Pittsburgh-Beaver Valley Area
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                                                                       Summer weekday (tpd)                                Annual (tpy)
                      Source sector                      -----------------------------------------------------------------------------------------------
                                                                VOC             NOX             CO              VOC             NOX             CO
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Point...................................................         10.6595        160.0714        120.1636      3,900.9235     57,329.8382     43,988.6819

[[Page 24494]]

 
Nonpoint................................................        191.5216         65.3470         85.7973     63,326.9810     27,064.6374     49,340.2937
Nonroad.................................................         24.8491         27.7845        284.5770      9,281.1724      7,908.6977     93,498.8397
Highway.................................................         43.5400         88.8500        446.6400     16,584.5300     32,360.4000    210,881.4800
                                                         -----------------------------------------------------------------------------------------------
    Total...............................................        270.5702        342.0529        937.1779     93,093.6069    124,663.5733    397,709.2953
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                                                 Table 5--Summary of 2011 Emissions for the Reading Area
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                                                                       Summer weekday (tpd)                                Annual (tpy)
                      Source sector                      -----------------------------------------------------------------------------------------------
                                                                VOC             NOX             CO              VOC             NOX             CO
--------------------------------------------------------------------------------------------------------------------------------------------------------
Point...................................................          3.4007          8.6847          5.4075      1,223.7618      3,139.5588      1,946.4482
Nonpoint................................................         32.6838          4.2975         11.0720     13,462.6586      2,055.8245     11,792.2040
Nonroad.................................................          4.5626          5.4649         46.8275      1,650.9746      1,528.6220     15,312.2966
Highway.................................................          9.8600         22.1100         98.8800      3,479.3500      8,073.1900     43,022.4700
                                                         -----------------------------------------------------------------------------------------------
    Total...............................................         50.5071         40.5571        162.1870     19,816.7450     14,797.3983     72,073.4188
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    Point sources are large, stationary, identifiable sources of 
emissions that release pollutants into the atmosphere. Pennsylvania 
obtained its point source data from the Pennsylvania Air Information 
Management System (AIMS). PADEP regional offices identify and inventory 
stationary sources for AIMS through inspections, surveys, and 
permitting. Inventory data for point sources in Allegheny and 
Philadelphia Counties was developed by the Allegheny County Health 
Department (ACHD) and the Philadelphia Air Management Services (AMS), 
respectively. ACHD and AMS provided their point source data to PADEP 
and also submitted it to EPA for the National Emission Inventory (NEI).
    Nonpoint sources, also known as area sources, are sources of 
pollution that are small and numerous, and that have not been 
inventoried as specific point or mobile sources. To inventory these 
sources, they are grouped so that emissions can be estimated 
collectively using one methodology. Examples are residential heating 
emissions and consumer solvents. PADEP calculated nonpoint emissions 
for each county by multiplying emissions factors specific for each 
source category with some known indicator of collective activity for 
each source category, such as population or employment data.
    Nonroad sources are mobile sources other than onroad vehicles, 
including aircraft, locomotives, construction and agricultural 
equipment, and marine vessels. Emissions from different source 
categories are calculated using various methodologies. PADEP relied on 
EPA's nonroad emissions calculations, from the 2011 NEI, version 1. 
Onroad or highway sources are vehicles, such as cars, trucks, and 
buses, which are operated on public roadways. PADEP estimated highway 
emissions using EPA's Motor Vehicle Emission Simulator (MOVES) model, 
version 2010b.
    EPA reviewed Pennsylvania's 2011 base year emission inventories' 
results, procedures, and methodologies for the Allentown-Bethlehem-
Easton, Lancaster, Pittsburgh-Beaver Valley, and Reading nonattainment 
areas and the Pennsylvania portion of the Philadelphia-Wilmington-
Atlantic City nonattainment area and found them to be acceptable and 
approvable. EPA's review is detailed in two Technical Support Documents 
(TSD) prepared for this rulemaking, the January 7, 2016 ``Technical 
Support Document (TSD) for the 2011 Base Year Inventory for Areas of 
Marginal Nonattainment of the 2008 Ozone NAAQS in Pennsylvania'' and 
the January 21, 2016, ``Technical Support Document (TSD)--Review of the 
On-Road Portion of the 2011 Base Year Inventories for the Pennsylvania 
Portion of the Following Five 2008 8-Hour Ozone National Ambient Air 
Quality Standard (NAAQS) Nonattainment Areas: Allentown-Bethlehem-
Easton, Lancaster, Philadelphia-Wilmington-Atlantic City, Pittsburgh-
Beaver Valley, and Reading.'' These TSDs are available on line at 
http://www.regulations.gov, Docket ID No. EPA-R03-OAR-2016-0002.

III. Final Action

    EPA is approving the 2011 base year inventories for the 2008 8-hour 
ozone NAAQS for the Allentown-Bethlehem-Easton, Lancaster, Pittsburgh-
Beaver Valley, and Reading nonattainment areas, and the Pennsylvania 
portion of the Philadelphia-Wilmington-Atlantic City nonattainment area 
because the inventories were prepared in accordance with requirements 
in sections 172(c)(3) and 182(a) of the CAA and its implementing 
regulations including 40 CFR 51.915. EPA is publishing this rule 
without prior proposal because EPA views this as a noncontroversial 
amendment and anticipates no adverse comment. However, in the 
``Proposed Rules'' section of today's Federal Register, EPA is 
publishing a separate document that will serve as the proposal to 
approve the SIP revision if adverse comments are filed. This rule will 
be effective on June 27, 2016 without further notice unless EPA 
receives adverse comment by May 26, 2016. If EPA receives adverse 
comment, EPA will publish a timely withdrawal in the Federal Register 
informing the public that the rule will not take effect. EPA will 
address all public comments in a subsequent final rule based on the 
proposed rule. EPA will not institute a second comment period on this 
action. Any parties interested in commenting must do so at this time.

[[Page 24495]]

IV. Statutory and Executive Order Reviews

A. General Requirements

    Under the CAA, the Administrator is required to approve a SIP 
submission that complies with the provisions of the CAA and applicable 
federal regulations. 42 U.S.C. 7410(k); 40 CFR 52.02(a). Thus, in 
reviewing SIP submissions, EPA's role is to approve state choices, 
provided that they meet the criteria of the CAA. Accordingly, this 
action merely approves state law as meeting federal requirements and 
does not impose additional requirements beyond those imposed by state 
law. For that reason, this action:
     Is not a ``significant regulatory action'' subject to 
review by the Office of Management and Budget under Executive Order 
12866 (58 FR 51735, October 4, 1993);
     Does not impose an information collection burden under the 
provisions of the Paperwork Reduction Act (44 U.S.C. 3501 et seq.);
     Is certified as not having a significant economic impact 
on a substantial number of small entities under the Regulatory 
Flexibility Act (5 U.S.C. 601 et seq.);
     Does not contain any unfunded mandate or significantly or 
uniquely affect small governments, as described in the Unfunded 
Mandates Reform Act of 1995 (Pub. L. 104-4);
     Does not have federalism implications as specified in 
Executive Order 13132 (64 FR 43255, August 10, 1999);
     Is not an economically significant regulatory action based 
on health or safety risks subject to Executive Order 13045 (62 FR 
19885, April 23, 1997);
     Is not a significant regulatory action subject to 
Executive Order 13211 (66 FR 28355, May 22, 2001);
     Is not subject to requirements of Section 12(d) of the 
National Technology Transfer and Advancement Act of 1995 (15 U.S.C. 272 
note) because application of those requirements would be inconsistent 
with the CAA; and
     Does not provide EPA with the discretionary authority to 
address, as appropriate, disproportionate human health or environmental 
effects, using practicable and legally permissible methods, under 
Executive Order 12898 (59 FR 7629, February 16, 1994).
    In addition, this rule does not have tribal implications as 
specified by Executive Order 13175 (65 FR 67249, November 9, 2000), 
because the SIP is not approved to apply in Indian country located in 
the state, and EPA notes that it will not impose substantial direct 
costs on tribal governments or preempt tribal law.

B. Submission to Congress and the Comptroller General

    The Congressional Review Act, 5 U.S.C. 801 et seq., as added by the 
Small Business Regulatory Enforcement Fairness Act of 1996, generally 
provides that before a rule may take effect, the agency promulgating 
the rule must submit a rule report, which includes a copy of the rule, 
to each House of the Congress and to the Comptroller General of the 
United States. EPA will submit a report containing this action 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).

C. Petitions for Judicial Review

    Under section 307(b)(1) of the CAA, petitions for judicial review 
of this action must be filed in the United States Court of Appeals for 
the appropriate circuit by June 27, 2016. Filing a petition for 
reconsideration by the Administrator of this final rule does not affect 
the finality of this action for the purposes of judicial review nor 
does it extend the time within which a petition for judicial review may 
be filed, and shall not postpone the effectiveness of such rule or 
action. Parties with objections to this direct final rule are 
encouraged to file a comment in response to the parallel notice of 
proposed rulemaking for this action published in the proposed rules 
section of today's Federal Register, rather than file an immediate 
petition for judicial review of this direct final rule, so that EPA can 
withdraw this direct final rule and address the comment in the proposed 
rulemaking action.
    This action approving Pennsylvania's 2011 base year inventories for 
the 2008 8-hour ozone NAAQS for the Allentown-Bethlehem-Easton, 
Lancaster, Pittsburgh-Beaver Valley, and Reading nonattainment areas, 
and the Pennsylvania portion of the Philadelphia-Wilmington-Atlantic 
City nonattainment area may not be challenged later in proceedings to 
enforce its requirements. (See section 307(b)(2)).

List of Subjects in 40 CFR Part 52

    Environmental protection, Air pollution control, Carbon monoxide, 
Incorporation by reference, Intergovernmental relations, Nitrogen 
dioxide, Ozone, Reporting and recordkeeping requirements, Volatile 
organic compounds.

    Dated: April 8, 2016.
Shawn M. Garvin,
Regional Administrator, Region III.

    40 CFR part 52 is amended as follows:

PART 52--APPROVAL AND PROMULGATION OF IMPLEMENTATION PLANS

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

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

Subpart NN--Pennsylvania

0
2. In Sec.  52.2020, the table in paragraph (e)(1) is amended by adding 
the entry for ``2011 Base Year Inventories for the 2008 8-Hour Ozone 
National Ambient Air Quality Standard'' at the end of the table to read 
as follows:


Sec.  52.2020  Identification of plan.

* * * * *
    (e) * * *
    (1) * * *

----------------------------------------------------------------------------------------------------------------
   Name of non-regulatory SIP     Applicable geographic   State submittal                          Additional
            revision                       area                 date       EPA approval  date     explanation
----------------------------------------------------------------------------------------------------------------
 
                                                  * * * * * * *
2011 Base Year Inventories for   Allentown-Bethlehem-            9/30/15   4/26/16 [Insert     See Sec.
 the 2008 8-Hour Ozone National   Easton, Lancaster,                        Federal Register    52.2036(bb).
 Ambient Air Quality Standard.    Pittsburgh-Beaver                         citation].
                                  Valley, and Reading
                                  nonattainment areas
                                  and the Pennsylvania
                                  portion of the
                                  Philadelphia-
                                  Wilmington-Atlantic
                                  City nonattainment
                                  area.
----------------------------------------------------------------------------------------------------------------


[[Page 24496]]

* * * * *

0
3. Section 52.2036 is amended by adding paragraph (bb) to read as 
follows:


Sec.  52.2036  Base year emissions inventory.

* * * * *
    (bb) EPA approves, as a revision to the Pennsylvania State 
Implementation Plan, the 2011 base year emissions inventories for the 
Allentown-Bethlehem-Easton, Lancaster, Pittsburgh-Beaver Valley, and 
Reading nonattainment areas, and the Pennsylvania portion of the 
Philadelphia-Wilmington-Atlantic City nonattainment area for the 2008 
8-hour ozone national ambient air quality standard submitted by the 
Pennsylvania Department of the Environmental on September 30, 2015. The 
2011 base year emissions inventories includes emissions estimates that 
cover the general source categories of point sources, nonroad mobile 
sources, area sources, onroad mobile sources, and biogenic sources. The 
pollutants that comprise the inventory are nitrogen oxides 
(NOX), volatile organic compounds (VOC), and carbon monoxide 
(CO).

[FR Doc. 2016-09591 Filed 4-25-16; 8:45 am]
 BILLING CODE 6560-50-P