[Federal Register Volume 83, Number 186 (Tuesday, September 25, 2018)]
[Rules and Regulations]
[Pages 48387-48391]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2018-20728]


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ENVIRONMENTAL PROTECTION AGENCY

40 CFR Part 52

[EPA-R04-OAR-2016-0334; FRL-9984-36--Region 4]


Air Plan Approval; AL, FL, GA, KY, MS, NC, SC, TN; Interstate 
Transport for the 2012 PM2.5 NAAQS

AGENCY: Environmental Protection Agency (EPA).

ACTION: Final rule.

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SUMMARY: The Environmental Protection Agency (EPA) is taking final 
action to approve portions of State Implementation Plan (SIP) 
submissions from Alabama, Florida, Georgia, Kentucky, Mississippi, 
North Carolina, South Carolina, and Tennessee addressing the Clean Air 
Act (CAA or Act) interstate transport infrastructure SIP requirements 
for the 2012 Fine Particulate Matter (PM2.5) National 
Ambient Air Quality Standards (NAAQS). The CAA requires that each state 
adopt and submit a SIP for the implementation, maintenance, and 
enforcement of each NAAQS promulgated by EPA, commonly referred to as 
an ``infrastructure SIP.'' EPA is taking final action to approve the 
interstate transport portions of these infrastructure SIPs for the 
aforementioned states as demonstrating that air emissions in the states 
do not significantly contribute to nonattainment or interfere with 
maintenance of the 2012 PM2.5 NAAQS in any other state.

DATES: This rule will be effective October 25, 2018.

ADDRESSES: EPA has established a docket for these actions under Docket 
Identification No. EPA-R04-OAR-2016-0334. All documents in the docket 
are listed on the www.regulations.gov website. Although listed in the 
index, some information may not be publicly available, i.e., 
Confidential Business Information or other information whose disclosure 
is restricted by statute. Certain other material, such as copyrighted 
material, is not placed on the internet and will be publicly available 
only in hard copy form. Publicly available docket materials are 
available either electronically through www.regulations.gov or in hard 
copy at the Air Regulatory Management Section, Air Planning and 
Implementation Branch, Air, Pesticides and Toxics Management Division, 
U.S. Environmental Protection Agency, Region 4, 61 Forsyth Street SW, 
Atlanta, Georgia 30303-8960. EPA requests that if at all possible, you 
contact the person listed in the FOR FURTHER INFORMATION CONTACT 
section to schedule your inspection. The Regional Office's official 
hours of business are Monday through Friday 8:30 a.m. to 4:30 p.m., 
excluding Federal holidays.

FOR FURTHER INFORMATION CONTACT: Richard Wong, Air Regulatory 
Management Section, Air Planning and Implementation Branch, Air, 
Pesticides and Toxics Management Division, Region 4, U.S. Environmental 
Protection Agency, 61 Forsyth Street SW, Atlanta, Georgia 30303-8960. 
Mr. Wong can be reached by telephone at (404) 562-8726 or via 
electronic mail at [email protected].

SUPPLEMENTARY INFORMATION: 

I. Background

    On December 14, 2012, EPA revised the primary Annual 
PM2.5 NAAQS to 12.0 micrograms per cubic meter ([mu]g/m\3\). 
See 78 FR 3086 (January 15, 2013). An area meets the standard if the 
three-year average of its annual average PM2.5 concentration 
(at each monitoring site in the area) is less than or equal to 12.0 
[mu]g/m\3\. States were required to submit infrastructure SIP 
submissions for the 2012 Annual PM2.5 NAAQS to EPA no later 
than December 14, 2015.
    CAA section 110(a)(1) requires states to submit SIP revisions 
within three years after promulgation of a new or revised NAAQS in 
order to provide for the implementation, maintenance, and enforcement 
of the new or revised NAAQS. CAA section 110(a)(2) outlines the 
applicable requirements of such SIP submissions, which EPA has 
historically referred to as ``infrastructure SIP'' submissions. Section 
110(a)(2)

[[Page 48388]]

requires states to address basic SIP elements such as monitoring, basic 
program requirements (e.g., permitting), and legal authority that are 
designed to assure attainment and maintenance of the newly established 
or revised NAAQS. Thus, section 110(a)(1) provides the procedural and 
timing requirements for infrastructure SIPs, and section 110(a)(2) 
lists specific elements that states must meet for the infrastructure 
SIP requirements related to a newly established or revised NAAQS. The 
contents of an infrastructure SIP submission may vary depending upon 
the data and analytical tools available to the state, as well as the 
provisions already contained in the state's implementation plan at the 
time in which the state develops and submits the submission for a new 
or revised NAAQS.
    Section 110(a)(2)(D) has two subsections: 110(a)(2)(D)(i) and 
110(a)(2)(D)(ii). Section 110(a)(2)(D)(i) includes four distinct 
components, commonly referred to as ``prongs,'' that must be addressed 
in infrastructure SIP submissions. The first two prongs, which are 
codified in section 110(a)(2)(D)(i)(I), require plans to prohibit any 
source or other type of emissions activity in one state from 
contributing significantly to nonattainment of the NAAQS in another 
state (prong 1) and from interfering with maintenance of the NAAQS in 
another state (prong 2). The third and fourth prongs, which are 
codified in section 110(a)(2)(D)(i)(II), are provisions that prohibit 
emissions activity in one state from interfering with measures required 
to prevent significant deterioration of air quality in another state 
(prong 3) or from interfering with measures to protect visibility in 
another state (prong 4). Section 110(a)(2)(D)(ii) requires SIPs to 
include provisions insuring compliance with sections 115 and 126 of the 
Act, relating to interstate and international pollution abatement.\1\
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    \1\ EPA highlighted the statutory requirement to submit 
infrastructure SIPs within three years of promulgation of a new 
NAAQS in an October 2, 2007, guidance document entitled ``Guidance 
on SIP Elements Required Under Sections 110(a)(1) and (2) for the 
1997 8-hour Ozone and PM2.5 National Ambient Air Quality 
Standards.'' EPA has issued additional guidance documents and 
memoranda, including a September 13, 2013, guidance document 
entitled ``Guidance on Infrastructure State Implementation Plan 
(SIP) Elements under Clean Air Act Sections 110(a)(1) and 
110(a)(2).''
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    In a notice of proposed rulemaking (NPRM) published on August 9, 
2018 (83 FR 39387), EPA proposed to approve the prong 1 and prong 2 
portions of infrastructure SIP submissions transmitted under cover 
letter by: Alabama (dated December 9, 2015); Florida (dated December 
14, 2015); Georgia (dated December 14, 2015); Kentucky (dated February 
8, 2016); Mississippi (dated December 8, 2015); North Carolina (dated 
December 4, 2015); South Carolina (dated December 14, 2015); and 
Tennessee (dated December 16, 2015), as demonstrating that these states 
do not significantly contribute to nonattainment or interfere with 
maintenance of the 2012 Annual PM2.5 NAAQS in any other 
state.\2\ All other applicable infrastructure SIP requirements for 
these SIP submissions have been or will be addressed in separate 
rulemakings. The specific details of the SIP submissions and the 
rationale for EPA's actions on prongs 1 and 2 are discussed in the 
NPRM. Comments on the proposed rulemaking were due on or before August 
30, 2018. EPA received three comments that are not relevant to the 
proposed actions and one comment in support of the proposed actions. 
These comments can be found in the docket for these actions.
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    \2\ EPA notes that the Agency may not have received the 
submissions until after the date of the cover letter.
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II. Final Action

    EPA is taking final action to approve the portions of the 
infrastructure SIP submissions transmitted under cover letter by: 
Alabama (dated December 9, 2015); Florida (dated December 14, 2015); 
Georgia (dated December 14, 2015); Kentucky (dated February 8, 2016); 
Mississippi (dated December 8, 2015); North Carolina (dated December 4, 
2015); South Carolina (dated December 14, 2015); and Tennessee (dated 
December 16, 2015) addressing prongs 1 and 2 of section 
110(a)(2)(D)(i)(I) for the 2012 Annual PM2.5 NAAQS. EPA is 
taking final action to approve section 110(a)(2)(D)(i)(I) for the 
aforementioned infrastructure SIP submissions for the 2012 Annual 
PM2.5 NAAQS because the submissions are consistent with 
section 110 of the CAA.

III. Statutory and Executive Order Reviews

    Under the CAA, the Administrator is required to approve a SIP 
submission that complies with the provisions of the Act and applicable 
Federal regulations. See 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. These actions merely 
approve state law as meeting Federal requirements and do not impose 
additional requirements beyond those imposed by state law. For that 
reason, these actions:
     Are not significant regulatory actions subject to review 
by the Office of Management and Budget under Executive Orders 12866 (58 
FR 51735, October 4, 1993) and 13563 (76 FR 3821, January 21, 2011);
     Are not Executive Order 13771 (82 FR 9339, February 2, 
2017) regulatory actions because SIP approvals are exempted under 
Executive Order 12866;
     Do not impose an information collection burden under the 
provisions of the Paperwork Reduction Act (44 U.S.C. 3501 et seq.);
     Are 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.);
     Do 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);
     Do not have Federalism implications as specified in 
Executive Order 13132 (64 FR 43255, August 10, 1999);
     Are not economically significant regulatory actions based 
on health or safety risks subject to Executive Order 13045 (62 FR 
19885, April 23, 1997);
     Are not significant regulatory actions subject to 
Executive Order 13211 (66 FR 28355, May 22, 2001);
     Are 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
     Do 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).
    The SIPs subject to these actions, with the exception of the South 
Carolina SIP, are not approved to apply on any Indian reservation land 
or in any other area where EPA or an Indian tribe has demonstrated that 
a tribe has jurisdiction. In those areas of Indian country, the rule 
does not have tribal implications as specified by Executive Order 13175 
(65 FR 67249, November 9, 2000), nor will it impose substantial direct 
costs on tribal governments or preempt tribal law. With respect to the 
South Carolina SIP, EPA notes that the Catawba Indian Nation 
Reservation is located within South Carolina, and pursuant to the 
Catawba Indian Claims Settlement Act, S.C. Code Ann. 27-16-120, ``all 
state and local environmental

[[Page 48389]]

laws and regulations apply to the Catawba Indian Nation and Reservation 
and are fully enforceable by all relevant state and local agencies and 
authorities.'' Thus, the South Carolina SIP applies to the Catawba 
Reservation; however, because the action related to South Carolina is 
not approving any specific rule into the South Carolina SIP, but rather 
finding that the State's already approved SIP meets certain CAA 
requirements, EPA has determined that there are no substantial direct 
effects on the Catawba Indian Nation. EPA has also determined that the 
action related to South Carolina's SIP will not impose any substantial 
direct costs on tribal governments or preempt tribal law.
    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).
    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 November 26, 2018. 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. This action 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, Particulate 
matter, Volatile organic compounds.

    Dated: September 13, 2018.
Onis ``Trey'' Glenn, III,
Regional Administrator, Region 4.

    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 B--Alabama

0
2. Section 52.50(e) is amended by adding the entry ``110(a)(1) and (2) 
Infrastructure Requirements for the 2012 Annual PM2.5 
NAAQS'' at the end of the table to read as follows:


Sec.  52.50   Identification of plan.

* * * * *
    (e) * * *

                                 EPA-Approved Alabama Non-Regulatory Provisions
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                                        Applicable           State
    Name of nonregulatory SIP         geographic or     submittal date/  EPA approval date       Explanation
            provision               nonattainment area  effective date
----------------------------------------------------------------------------------------------------------------
 
                                                  * * * * * * *
110(a)(1) and (2) Infrastructure   Alabama............       12/9/2015  9/25/2018, [Insert   Addressing Prongs 1
 Requirements for the 2012 Annual                                        citation of          and 2 of section
 PM2.5 NAAQS.                                                            publication].        110(a)(2)(D)(i)(I)
                                                                                              only.
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Subpart K--Florida

0
3. Section 52.520(e) is amended by adding the entry ``110(a)(1) and (2) 
Infrastructure Requirements for the 2012 Annual PM2.5 
NAAQS'' at the end of the table to read as follows:


Sec.  52.520   Identification of plan.

* * * * *
    (e) * * *

                                 EPA-Approved Florida Non-Regulatory Provisions
----------------------------------------------------------------------------------------------------------------
                                     State effective     EPA approval     Federal Register
            Provision                      date              date              notice            Explanation
----------------------------------------------------------------------------------------------------------------
 
                                                  * * * * * * *
110(a)(1) and (2) Infrastructure   10/15/2015.........       9/25/2018  [Insert citation of  Addressing Prongs 1
 Requirements for the 2012 Annual                                        publication].        and 2 of section
 PM2.5 NAAQS.                                                                                 110(a)(2)(D)(i)(I)
                                                                                              only.
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Subpart L--Georgia

0
4. Section 52.570(e) is amended by adding the entry ``110(a)(1) and (2) 
Infrastructure Requirements for the 2012 Annual PM2.5 
NAAQS'' at the end of the table to read as follows:


Sec.  52.570   Identification of plan.

* * * * *
    (e) * * *

[[Page 48390]]



                                 EPA-Approved Georgia Non-Regulatory Provisions
----------------------------------------------------------------------------------------------------------------
                                        Applicable           State
    Name of nonregulatory SIP         geographic or     submittal date/  EPA approval date       Explanation
            provision               nonattainment area  effective date
----------------------------------------------------------------------------------------------------------------
 
                                                  * * * * * * *
110(a)(1) and (2) Infrastructure   Georgia............      12/14/2015  9/25/2018, [Insert   Addressing Prongs 1
 Requirements for the 2012 Annual                                        citation of          and 2 of section
 PM2.5 NAAQS.                                                            publication].        110(a)(2)(D)(i)(I)
                                                                                              only.
----------------------------------------------------------------------------------------------------------------

Subpart S--Kentucky

0
5. Section 52.920(e) is amended by adding the entry ``110(a)(1) and (2) 
Infrastructure Requirements for the 2012 Annual PM2.5 
NAAQS'' at the end of the table to read as follows:


Sec.  52.920   Identification of plan.

* * * * *
    (e) * * *

                                 EPA-Approved Kentucky Non-Regulatory Provisions
----------------------------------------------------------------------------------------------------------------
                                        Applicable           State
    Name of non-regulatory SIP        geographic or     submittal date/  EPA approval date       Explanations
            provision               nonattainment area  effective date
----------------------------------------------------------------------------------------------------------------
 
                                                  * * * * * * *
110(a)(1) and (2) Infrastructure   Kentucky...........        2/8/2016  9/25/2018, [Insert   Addressing Prongs 1
 Requirements for the 2012 Annual                                        citation of          and 2 of section
 PM2.5 NAAQS.                                                            publication].        110(a)(2)(D)(i)(I)
                                                                                              only.
----------------------------------------------------------------------------------------------------------------

* * * * *

Subpart Z--Mississippi

0
6. Section 52.1270(e) is amended by adding the entry ``110(a)(1) and 
(2) Infrastructure Requirements for the 2012 Annual PM2.5 
NAAQS'' at the end of the table to read as follows:


Sec.  52.1270   Identification of plan.

* * * * *
    (e) * * *

                               EPA-Approved Mississippi Non-Regulatory Provisions
----------------------------------------------------------------------------------------------------------------
                                        Applicable           State
    Name of non-regulatory SIP        geographic or     submittal date/  EPA approval date       Explanation
            provision               nonattainment area  effective date
----------------------------------------------------------------------------------------------------------------
 
                                                  * * * * * * *
110(a)(1) and (2) Infrastructure   Mississippi........       12/8/2015  9/25/2018, [Insert   Addressing Prongs 1
 Requirements for the 2012 Annual                                        citation of          and 2 of section
 PM2.5 NAAQS.                                                            publication].        110(a)(2)(D)(i)(I)
                                                                                              only.
----------------------------------------------------------------------------------------------------------------

Subpart II--North Carolina

0
7. Section 52.1770(e) is amended by adding the entry ``110(a)(1) and 
(2) Infrastructure Requirements for the 2012 Annual PM2.5 
NAAQS'' at the end of the table to read as follows:


Sec.  52.1770   Identification of plan.

* * * * *
    (e) * * *

                              EPA-Approved North Carolina Non-Regulatory Provisions
----------------------------------------------------------------------------------------------------------------
                                     State effective     EPA approval     Federal Register
            Provision                      date              date             citation           Explanation
----------------------------------------------------------------------------------------------------------------
 
                                                  * * * * * * *
110(a)(1) and (2) Infrastructure   12/4/2015..........       9/25/2018  [Insert citation of  Addressing Prongs 1
 Requirements for the 2012 Annual                                        publication].        and 2 of section
 PM2.5 NAAQS.                                                                                 110(a)(2)(D)(i)(I)
                                                                                              only.
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Subpart PP--South Carolina

0
8. Section 52.2120(e) is amended by adding the entry ``110(a)(1) and 
(2) Infrastructure Requirements for the 2012 Annual PM2.5 
NAAQS'' at the end of the table to read as follows:


Sec.  52.2120   Identification of plan.

* * * * *
    (e) * * *

[[Page 48391]]



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                                               State
                Provision                 effective date       EPA approval date              Explanation
----------------------------------------------------------------------------------------------------------------
 
                                                  * * * * * * *
110(a)(1) and (2) Infrastructure              12/14/2015  9/25/2018, [Insert          Addressing Prongs 1 and 2
 Requirements for the 2012 Annual PM2.5                    citation of publication]..  of section
 NAAQS.                                                                                110(a)(2)(D)(i)(I) only.
----------------------------------------------------------------------------------------------------------------

Subpart RR--Tennessee

0
9. Section 52.2220(e) is amended by adding the entry ``110(a)(1) and 
(2) Infrastructure Requirements for the 2012 Annual PM2.5 
NAAQS'' at the end of the table to read as follows:


Sec.  52.2220  Identification of plan.

* * * * *
    (e) * * *

                                EPA-Approved Tennessee Non-Regulatory Provisions
----------------------------------------------------------------------------------------------------------------
                                        Applicable
    Name of non-regulatory SIP        geographic or          State       EPA approval date       Explanation
            provision               nonattainment area  effective date
----------------------------------------------------------------------------------------------------------------
 
                                                  * * * * * * *
110(a)(1) and (2) Infrastructure   Tennessee..........      11/19/2015  9/25/2018, [Insert   Addressing Prongs 1
 Requirements for the 2012 Annual                                        citation of          and 2 of section
 PM2.5 NAAQS.                                                            publication].        110(a)(2)(D)(i)(I)
                                                                                              only.
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[FR Doc. 2018-20728 Filed 9-24-18; 8:45 am]
 BILLING CODE 6560-50-P