[Federal Register Volume 84, Number 186 (Wednesday, September 25, 2019)]
[Proposed Rules]
[Pages 50354-50363]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2019-20846]


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ENVIRONMENTAL PROTECTION AGENCY

40 CFR Part 52

[EPA-R05-OAR-2019-0377; FRL-10000-40-Region 5]


Air Plan Approval; Indiana; Second Maintenance Plan for 1997 
Ozone NAAQS

AGENCY: Environmental Protection Agency (EPA).

ACTION: Proposed rule.

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SUMMARY: Pursuant to the Clean Air Act (CAA), the Environmental 
Protection Agency (EPA) is proposing to approve a state implementation 
plan (SIP) revision. On June 20, 2019, the Indiana Department of 
Environmental Management (IDEM) submitted the State's plan for 
maintaining the 1997 ozone National Ambient Air Quality Standards 
(NAAQS or standard) in the following areas: Indianapolis, La Porte 
County, and South Bend-Elkhart areas in Indiana; and the Indiana 
portions of the Chicago-Gary-Lake County, IL-IN (Chicago), Cincinnati-
Hamilton, OH-KY-

[[Page 50355]]

IN (Cincinnati), and Louisville, KY-IN (Louisville) multi-state areas. 
EPA is proposing to approve these maintenance plans because they 
provide for the maintenance of the 1997 ozone NAAQS through the end of 
the second 10-year maintenance period. This action, when finalized 
would make certain commitments related to maintenance of the 1997 ozone 
NAAQS in these areas federally enforceable as part of the Indiana SIP.

DATES: Comments must be received on or before October 25, 2019.

ADDRESSES: Submit your comments, identified by Docket No. EPA-EPA-R05-
OAR-2019-0377 at https://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: Charles Hatten, Environmental 
Engineer, Control Strategies Section, Air Programs Branch (AR-18J), 
Environmental Protection Agency, Region 5, 77 West Jackson Boulevard, 
Chicago, Illinois 60604, (312) 886-6031, [email protected].

SUPPLEMENTARY INFORMATION: Throughout this document, the terms ``we'', 
``us'', and ``our'' refer to the EPA.

Table of contents

I. Summary of EPA's Proposed Action
II. Background
III. EPA's Evaluation of Indiana's SIP Submittal
    A. Second Maintenance Plan
    B. Transportation Conformity
IV. Proposed Action
V. Statutory and Executive Order Reviews

I. Summary of EPA's Proposed Action

    EPA is proposing to approve the 1997 ozone NAAQS maintenance plans 
for the following areas: Indianapolis, La Porte County, South Bend-
Elkhart, and the Indiana portions of the Chicago, Cincinnati, and 
Louisville multi-state areas. The maintenance plans are designed to 
keep these areas in attainment of the 1997 ozone NAAQS through the end 
of the second 10-year maintenance period.

II. Background

    Ground-level ozone is formed when oxides of nitrogen 
(NOX) and volatile organic compounds (VOC) react in the 
presence of sunlight. These two pollutants are referred to as ozone 
precursors. Scientific evidence indicates that adverse public health 
effects occur following exposure to ozone.
    In 1979, under section 109 of the CAA, EPA established primary and 
secondary NAAQS for ozone at 0.12 parts per million (ppm), averaged 
over a 1-hour period. 44 FR 8202 (February 8, 1979). On July 18, 1997, 
EPA revised the primary and secondary NAAQS for ozone to set the 
acceptable level of ozone in the ambient air at 0.08 ppm, averaged over 
an 8-hour period. 62 FR 38856 (July 18, 1997).\1\ EPA set the 8-hour 
ozone NAAQS based on scientific evidence demonstrating that ozone 
causes adverse health effects at lower concentrations and over longer 
periods of time than was understood when the pre-existing 1-hour ozone 
NAAQS was set.
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    \1\ In March 2008, EPA completed another review of the primary 
and secondary ozone standards and tightened them further by lowering 
the level for both to 0.075 ppm. 73 FR 16436 (March 27, 2008). 
Additionally, in October 2015, EPA completed a review of the primary 
and secondary ozone standards and tightened them by lowering the 
level for both to 0.70 ppm. 80 FR 65292 (October 26, 2015)
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    Following promulgation of a new or revised NAAQS, EPA is required 
by the CAA to designate areas throughout the nation as attaining or not 
attaining the NAAQS. On April 15, 2004 (69 FR 23857), EPA designated 
areas for the 1997 ozone NAAQS, including the following areas in 
Indiana which were designated as nonattainment: Indianapolis (Boone, 
Hamilton, Hancock, Hendricks, Johnson, Madison, Marion, Morgan and 
Shelby Counties), La Porte County, South Bend-Elkhart (Elkhart and St. 
Joseph Counties), Chicago (Lake and Porter Counties in Indiana),\2\ 
Cincinnati (Lawrenceburg Township in Dearborn County, Indiana),\3\ and 
Louisville (Clark and Floyd Counties in Indiana).\4\ These designations 
became effective on June 15, 2004. Under the CAA, states are also 
required to adopt and submit SIPs to implement, maintain, and enforce 
the NAAQS in designated nonattainment areas and throughout the state.
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    \2\ The entire Chicago (IL-IN) area includes Cook, DuPage, Kane, 
Lake, McHenry and Will Counties, Aux Sable and Goose Lake Townships 
in Grundy County, and Oswego Township in Kendall County in Illinois.
    \3\ The entire Cincinnati (OH-KY-IN) area includes Butler, 
Clermont, Clinton, Hamilton, and Warren Counties in Ohio; and Boone, 
Campbell, and Kenton Counties in Kentucky.
    \4\ The entire Louisville (KY-IN) area includes Bullitt, 
Jefferson and Oldham Counties in Kentucky.
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    When a nonattainment area has three years of complete, certified 
air quality data that has been determined to attain the 1997 ozone 
NAAQS, and the area has met other required criteria described in 
section 107(d)(3)(E) of the CAA, the state can submit to EPA a request 
to be redesignated to attainment, referred to as a ``maintenance 
area''.\5\
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    \5\ Section 107(d)(3)(E) of the CAA sets out the requirements 
for redesignation. They include attainment of the NAAQS, full 
approval under section 110(k) of the applicable SIP, determination 
that improvement in air quality is a result of permanent and 
enforceable reductions in emissions, demonstration that the state 
has met all applicable section 110 and part D requirements, and a 
fully approved maintenance plan under CAA section 175A.
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    One of the criteria for redesignation is to have an approved 
maintenance plan under CAA section 175A. The maintenance plan must 
demonstrate that the area will continue to maintain the standard for 
the period extending 10 years after redesignation, and it must contain 
such additional measures as necessary to ensure maintenance and such 
contingency provisions as necessary to assure that violations of the 
standard will be promptly corrected. At the end of the eighth year 
after the effective date of the redesignation, the state must also 
submit a second maintenance plan to ensure ongoing maintenance of the 
standard for an additional 10 years. CAA section 175A.
    EPA has published long-standing guidance for states on developing 
maintenance plans. This includes ``Procedures for Processing Requests 
to Redesignate Areas to Attainment,'' Memorandum from John Calcagni, 
Director, Air Quality Management Division, September 4, 1992 (the 
``Calcagni Memorandum'').
    The Calcagni Memorandum provides that states may generally 
demonstrate maintenance by either performing air quality modeling to 
show that the future

[[Page 50356]]

mix of sources and emission rates will not cause a violation of the 
NAAQS or by showing that future emissions of a pollutant and its 
precursors will not exceed the level of emissions during a year when 
the area was attaining the NAAQS (i.e., attainment year inventory). See 
Calcagni Memorandum at 9.
    EPA approved maintenance plans for the following areas and 
redesignated them to attainment of the 1997 ozone NAAQS: The Indiana 
portion of Louisville, La Porte County, and South Bend-Elkhart 
effective July 19, 2007 (72 FR 39571, 39574, 39577); Indianapolis, 
effective October 19, 2007 (72 FR 59210); and the Indiana portions of 
Chicago and Cincinnati effective May 11, 2010 (75 FR 26113, 26118).
    Under CAA section 175A(b), states must submit a revision to the 
first maintenance plan eight years after redesignation to provide for 
maintenance of the NAAQS for ten additional years following the end of 
the first 10-year period. EPA's final implementation rule for the 2008 
ozone NAAQS revoked the 1997 ozone NAAQS and provided that one 
consequence of revocation was that areas that had been redesignated to 
attainment (i.e., maintenance areas) for the 1997 standard no longer 
needed to submit second 10-year maintenance plans under CAA section 
175A(b).\6\ However, in South Coast Air Quality Management District v. 
EPA \7\ (South Coast II), the D.C. Circuit vacated EPA's interpretation 
that, because of the revocation of the 1997 ozone standard, second 
maintenance plans were not required for ``orphan maintenance areas,'' 
i.e., areas that had been redesignated to attainment for the 1997 NAAQS 
and were designated attainment for the 2008 ozone NAAQS. Thus, states 
with these ``orphan maintenance areas'' under the 1997 ozone NAAQS must 
submit maintenance plans for the second maintenance period. 
Accordingly, on June 20, 2019, IDEM submitted second maintenance plans 
for the Indianapolis, La Porte County, and South Bend-Elkhart areas and 
the Indiana portions of the Chicago, Cincinnati, and Louisville areas. 
The maintenance plans show that each area is expected to remain in 
attainment of the 1997 ozone NAAQS through the end of the full 20-year 
maintenance period.
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    \6\ See 80 FR 12315 (March 6, 2015).
    \7\ 882 F.3d 1138 (D.C. Cir. 2018).
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III. EPA's Evaluation of Indiana's SIP Submittal

A. Second Maintenance Plan

    Section 175A of the CAA sets forth the elements of a maintenance 
plan for areas seeking redesignation from nonattainment to attainment. 
Under section 175A, the maintenance plan must demonstrate continued 
attainment of the NAAQS for at least 10 years after the Administrator 
approves a redesignation to attainment. Eight years after the 
redesignation, the state must submit a revised maintenance plan which 
demonstrates that attainment of the NAAQS will continue for an 
additional 10 years beyond the initial 10-year maintenance period. To 
address the possibility of future NAAQS violations, the maintenance 
plan must contain contingency measures, as EPA deems necessary, to 
assure prompt correction of the future NAAQS violation.
    The Calcagni Memorandum provides further guidance on the content of 
a maintenance plan, explaining that a maintenance plan should address 
five elements: (1) An attainment emission inventory; (2) a maintenance 
demonstration; (3) a commitment for continued air quality monitoring; 
(4) a process for verification of continued attainment; and (5) a 
contingency plan.
    On June 20, 2019, IDEM submitted, as a SIP revision, a plan to 
provide for maintenance of the 1997 ozone standard in Indianapolis, La 
Porte County, South Bend-Elkhart, and Louisville areas through 2028, 
more than 20 years after the effective date of redesignation to 
attainment. Likewise, the revision to Indiana's SIP provides for 
maintenance of the standard for Chicago and Cincinnati areas through 
2030, more than 20 years after the effective date of redesignation to 
attainment. As discussed below, EPA finds that Indiana's second 
maintenance plan includes the necessary components and proposes approve 
the maintenance plan as a revision to the Indiana SIP.
1. Attainment Inventory
    For maintenance plans, a state should develop a comprehensive, 
accurate inventory of actual emissions for an attainment year to 
identify the level of emissions which is sufficient to maintain the 
NAAQS. A state should develop this inventory consistent with EPA's most 
recent guidance on emissions inventory development. For ozone, the 
inventory should be based on typical summer day VOC and NOX 
emissions, as these pollutants are precursors to ozone formation.
    The CAA section 175A maintenance plans approved by EPA for the 
first 10-year periods included attainment inventories that reflect 
typical summer day VOC and NOX emissions for the following 
attainment years: Indianapolis, 2005; La Porte County, 2004; South 
Bend-Elkhart, 2004; the Indiana portion of Chicago, 2006; the Indiana 
portion of Cincinnati, 2008; and the Indiana portion of Louisville, 
2003. In addition, because all of the maintenance areas in Indiana 
continued to monitor attainment of the 1997 ozone NAAQS in 2014, this 
is also an appropriate year to use for an attainment year inventory. As 
such, IDEM is using 2014 summer day emissions from EPA 2014 version 7.0 
modeling platform as the basis for the attainment inventory \8\ 
presented in Tables 1-6 below. Tables 1 through 6 show VOC and 
NOX emission totals for all sectors for each maintenance 
area. These data are based on the most recently available National 
Emissions Inventory (2014 NEI version 2).
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    \8\ The inventory documentation for this platform can be found 
here: https://www.epa.gov/air-emissions-modeling/2014-version-70-platform.

 Table 1--Indianapolis Area Typical Summer Day VOC and NOX Emissions for
               Attainment Year 2014 in Tons Per Day (tpd)
------------------------------------------------------------------------
             Source category                    VOC             NOX
------------------------------------------------------------------------
Nonroad.................................           20.21           27.64
Onroad..................................           53.04          110.53
Point...................................            5.31           29.68
Area....................................           66.47            9.26
                                         -------------------------------
    Total...............................          145.03          177.11
------------------------------------------------------------------------


[[Page 50357]]


 Table 2--La Porte County Area Typical Summer Day VOC and NOX Emissions
                     for Attainment Year 2014 (tpd)
------------------------------------------------------------------------
             Source category                    VOC             NOX
------------------------------------------------------------------------
Nonroad.................................            2.83            2.42
Onroad..................................            3.96           10.55
Point...................................            1.33            3.83
Area....................................            5.73            4.46
                                         -------------------------------
    Total...............................           13.85           21.96
------------------------------------------------------------------------


     Table 3--South Bend-Elkhart Area Typical Summer Day VOC and NOX
                Emissions for Attainment Year 2014 (tpd)
------------------------------------------------------------------------
             Source category                    VOC             NOX
------------------------------------------------------------------------
Nonroad.................................            5.74            6.64
Onroad..................................           12.66           23.35
Point...................................            6.23            2.71
Area....................................           22.86            6.14
                                         -------------------------------
    Total...............................           47.49           38.84
------------------------------------------------------------------------


  Table 4--Louisville Area Typical Summer Day VOC and NOX Emissions for
                       Attainment Year 2014 (tpd)
------------------------------------------------------------------------
             Source category                    VOC             NOX
------------------------------------------------------------------------
Indiana portion of area (Clark and Floyd
 counties):
    Nonroad.............................            1.99            2.19
    Onroad..............................            4.83           12.31
    Point...............................            2.02            4.60
    Area................................            9.70            0.95
                                         -------------------------------
        Total...........................           18.54           20.05
Entire area:
    Nonroad.............................            9.61           10.98
    Onroad..............................           25.03           52.13
    Point...............................           32.49           59.71
    Area................................           50.94           10.27
                                         -------------------------------
        Total...........................          118.07          133.09
------------------------------------------------------------------------


  Table 5--Cincinnati Area Typical Summer Day VOC and NOX Emissions for
                       Attainment Year 2014 (tpd)
------------------------------------------------------------------------
             Source category                    VOC             NOX
------------------------------------------------------------------------
Indiana portion of area (Dearborn
 county):
    Nonroad.............................            0.47            0.53
    Onroad..............................            1.76            3.94
    Point...............................            5.54            9.62
    Area................................            1.39            0.20
                                         -------------------------------
        Total...........................            9.16           14.29
Entire area:
    Nonroad.............................           20.39           22.30
    Onroad..............................           39.23           82.20
    Point...............................           15.73           91.69
    Area................................           79.97           20.60
                                         -------------------------------
        Total...........................          155.32          216.79
------------------------------------------------------------------------


   Table 6--Chicago Area Typical Summer Day VOC and NOX Emissions for
                       Attainment Year 2014 (tpd)
------------------------------------------------------------------------
             Source category                    VOC             NOX
------------------------------------------------------------------------
Indiana portion of area (Lake and Porter
 counties):
    Nonroad.............................           18.08           15.66
    Onroad..............................           11.59           28.05
    Point...............................           12.99           71.24
    Area................................           20.00           12.52
                                         -------------------------------

[[Page 50358]]

 
        Total...........................           62.66          127.47
Entire area:
    Nonroad.............................           94.43           96.73
    Onroad..............................          129.41          258.94
    Point...............................           51.33          146.39
    Area................................          225.47           97.50
                                         -------------------------------
        Total...........................          500.64          599.57
------------------------------------------------------------------------

2. Maintenance Demonstration
    IDEM is demonstrating maintenance through 2028 by showing that 
future emissions of VOC and NOX for the Indianapolis, La 
Porte County, South Bend-Elkhart, and Louisville areas remain at or 
below attainment year emission levels. 2028 is an appropriate 
maintenance year for these areas because it is more than 10 years 
beyond the first 10-year maintenance period. The 2028 emissions 
inventory is projected from the EPA's 2011 version 6.3 modeling 
platform.\9\ The 2028 scenario was used to support past air quality 
modeling to support the regional haze program. The 2028 summer day 
emissions inventory for the Indianapolis, La Porte County, South Bend-
Elkhart, and Louisville areas are summarized in Tables 7 through 10 
below.
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    \9\ The inventory documentation for this platform can be found 
here: https://www.epa.gov/air-emissions-modeling/2011-version-63-platform.

 Table 7--Indianapolis Area Typical Summer Day VOC and NOX Emissions for
                       Maintenance Year 2028 (tpd)
------------------------------------------------------------------------
             Source category                    VOC             NOX
------------------------------------------------------------------------
Nonroad.................................           17.71           13.93
Onroad..................................           15.95           28.53
Point...................................            6.59           24.30
Area....................................           51.46           13.34
                                         -------------------------------
    Total...............................           91.71           80.10
------------------------------------------------------------------------


 Table 8--La Porte County Area Typical Summer Day VOC and NOX Emissions
                     for Maintenance Year 2028 (tpd)
------------------------------------------------------------------------
             Source category                    VOC             NOX
------------------------------------------------------------------------
Nonroad.................................            1.69            1.41
Onroad..................................            1.12            2.94
Point...................................            1.28            0.53
Area....................................            4.10            2.71
                                         -------------------------------
    Total...............................            8.19            7.65
------------------------------------------------------------------------


     Table 9--South Bend-Elkhart Area Typical Summer Day VOC and NOX
                Emissions for Maintenance year 2028 (tpd)
------------------------------------------------------------------------
             Source category                    VOC             NOX
------------------------------------------------------------------------
Nonroad.................................            4.44            3.56
Onroad..................................            3.34            5.09
Point...................................            7.46            4.12
Area....................................           14.26            4.90
                                         -------------------------------
    Total...............................           29.50           17.67
------------------------------------------------------------------------


 Table 10--Louisville Area Typical Summer Day VOC and NOX Emissions for
                          Maintenance Year 2028
------------------------------------------------------------------------
             Source category                    VOC             NOX
------------------------------------------------------------------------
Indiana portion of area (Clark and Floyd
 counties):
    Nonroad.............................            1.59            1.14
    Onroad..............................            1.25            2.77
    Point...............................            1.70            6.72

[[Page 50359]]

 
    Area................................            5.57            1.11
                                         -------------------------------
        Total...........................           10.11           11.74
Entire area:
    Nonroad.............................            7.94            5.76
    Onroad..............................            6.45           12.78
    Point...............................           30.58           27.42
    Area................................           30.29           10.33
                                         -------------------------------
        Total...........................           75.26           56.29
------------------------------------------------------------------------

    In addition, IDEM is demonstrating maintenance through 2030 by 
showing that future emissions of VOC and NOX for the 
Cincinnati and Chicago areas remain at or below attainment year 
emission levels. 2030 is an appropriate maintenance year for these 
areas because it is more than 10 years beyond the first 10-year 
maintenance period. Indiana projected emissions to the year 2030 from 
EPA's 2028 emissions projected using the EPA's 2011 version 6.3 model 
platform. The 2030 summer day emissions inventory for Cincinnati and 
Chicago areas are summarized in Tables 11 through 12 below.

 Table 11--Cincinnati Area Typical Summer Day VOC and NOX Emissions for
                       Maintenance Year 2030 (tpd)
------------------------------------------------------------------------
             Source category                    VOC             NOX
------------------------------------------------------------------------
Indiana portion of area (Dearborn
 county):
    Nonroad.............................            0.34            0.25
    Onroad..............................            0.34            0.65
    Point...............................            3.94            1.79
    Area................................            1.35            0.34
                                         -------------------------------
        Total...........................            5.97            3.03
Entire area:
    Nonroad.............................           17.30            8.72
    Onroad..............................            9.71           16.11
    Point...............................           15.25           41.24
    Area................................           47.73           14.71
                                         -------------------------------
        Total...........................           89.99           80.78
------------------------------------------------------------------------


   Table 12--Chicago Area Typical Summer Day VOC and NOX Emissions for
                       Maintenance Year 2030 (tpd)
------------------------------------------------------------------------
             Source category                    VOC             NOX
------------------------------------------------------------------------
Indiana portion of area (Lake and Porter
 counties):
    Nonroad.............................            8.81            9.73
    Onroad..............................            3.12            6.73
    Point...............................           17.61           67.99
    Area................................           15.88            5.38
                                         -------------------------------
        Total...........................           45.42           89.83
Entire area:
    Nonroad.............................           91.81           70.01
    Onroad..............................           22.80           71.23
    Point...............................           57.95          141.46
    Area................................          201.20           71.37
                                         -------------------------------
        Total...........................          373.76          354.07
------------------------------------------------------------------------

    Tables 13 through 18 below show the changes in VOC and 
NOX emissions between the attainment year (2014) and 
maintenance year (2028 or 2030) for each maintenance area.

[[Page 50360]]



                    Table 13--Change in Typical Summer Day VOC and NOX Emissions in the Indianapolis Area Between 2014 and 2028 (tpd)
--------------------------------------------------------------------------------------------------------------------------------------------------------
                                                                                VOC                                             NOX
                                                         -----------------------------------------------------------------------------------------------
                     Source category                                                        Net change                                      Net change
                                                               2014            2028         (2014-2028)        2014            2028         (2014-2028)
--------------------------------------------------------------------------------------------------------------------------------------------------------
Nonroad.................................................           20.21           17.71           -2.50           27.64           13.93          -13.71
Onroad..................................................           53.04           15.95          -37.09          110.53           28.53          -82.00
Point...................................................            5.31            6.59            1.28           29.68           24.30           -5.38
Area....................................................           66.47           51.46          -15.01            9.26           13.34            4.08
                                                         -----------------------------------------------------------------------------------------------
    Total...............................................          145.03           91.71          -53.32          177.11           80.10          -97.01
--------------------------------------------------------------------------------------------------------------------------------------------------------


                      Table 14--Change in Typical Summer Day VOC and NOX Emissions in the La Porte Area Between 2014 and 2028 (tpd)
--------------------------------------------------------------------------------------------------------------------------------------------------------
                                                                                VOC                                             NOX
                                                         -----------------------------------------------------------------------------------------------
                     Source category                                                        Net change                                      Net change
                                                               2014            2028         (2014-2028)        2014            2028         (2014-2028)
--------------------------------------------------------------------------------------------------------------------------------------------------------
Nonroad.................................................            2.83            1.69           -1.14            2.42            1.41           -1.01
Onroad..................................................            3.96            1.12           -2.84           10.55            2.94           -7.61
Point...................................................            1.33            1.28           -0.05            3.83            0.53           -3.30
Area....................................................            5.73             4.1           -1.63            4.46            2.77           -1.69
                                                         -----------------------------------------------------------------------------------------------
    Total...............................................           13.85            8.19           -5.66           21.26            7.65          -13.61
--------------------------------------------------------------------------------------------------------------------------------------------------------


                 Table 15--Change in Typical Summer Day VOC and NOX Emissions in the South Bend-Elkhart Area Between 2014 and 2028 (tpd)
--------------------------------------------------------------------------------------------------------------------------------------------------------
                                                                                VOC                                             NOX
                                                         -----------------------------------------------------------------------------------------------
                     Source category                                                        Net change                                      Net change
                                                               2014            2028         (2014-2028)        2014            2028         (2014-2028)
--------------------------------------------------------------------------------------------------------------------------------------------------------
Nonroad.................................................            5.74            4.44           -1.30            6.64            3.56           -3.08
Onroad..................................................           12.66            3.34           -9.32           23.35            5.09          -18.26
Point...................................................            6.23            7.46            1.23            2.71            4.12            1.41
Area....................................................           22.86           14.26           -8.60            6.14            4.90           -1.24
                                                         -----------------------------------------------------------------------------------------------
    Total...............................................           47.49           29.50          -17.99           38.84           17.67          -21.17
--------------------------------------------------------------------------------------------------------------------------------------------------------


                     Table 16--Change in Typical Summer Day VOC and NOX emissions in the Louisville area between 2014 and 2028 (tpd)
--------------------------------------------------------------------------------------------------------------------------------------------------------
                                                                                VOC                                             NOX
                                                         -----------------------------------------------------------------------------------------------
                     Source category                                                        Net change                                      Net change
                                                               2014            2028         (2014-2028)        2014            2028         (2014-2028)
--------------------------------------------------------------------------------------------------------------------------------------------------------
                                                 Indiana portion of the area (Clark and Floyd counties)
--------------------------------------------------------------------------------------------------------------------------------------------------------
Nonroad.................................................            1.99            1.59           -0.40            2.19            1.14           -1.05
Onroad..................................................            4.38            1.25           -3.58           12.31            2.77           -9.54
Point...................................................            2.02            1.70           -0.32            4.60            6.72            2.12
Area....................................................            9.70            5.57           -4.13            0.95            1.11            0.16
                                                         -----------------------------------------------------------------------------------------------
    Total...............................................           18.54           10.11           -8.43           20.05           11.74           -8.31
--------------------------------------------------------------------------------------------------------------------------------------------------------
                                                                       Entire Area
--------------------------------------------------------------------------------------------------------------------------------------------------------
Nonroad.................................................            9.61            7.94           -1.67           10.98            5.76           -5.22
Onroad..................................................           25.03            6.45          -18.58           52.13           12.78          -39.35
Point...................................................           32.49           30.58           -1.91           59.71           27.42          -32.29
Area....................................................           50.94           30.29          -20.65           10.27           10.33            0.06
                                                         -----------------------------------------------------------------------------------------------
    Total...............................................          118.07           75.26          -42.81          133.09           56.29          -76.80
--------------------------------------------------------------------------------------------------------------------------------------------------------


[[Page 50361]]


                     Table 17--Change in Typical Summer Day VOC and NOX emissions in the Cincinnati area between 2014 and 2030 (tpd)
--------------------------------------------------------------------------------------------------------------------------------------------------------
                                                                                VOC                                             NOX
                                                         -----------------------------------------------------------------------------------------------
                     Source category                                                        Net change                                      Net change
                                                               2014            2030         (2014-2030)        2014            2028         (2014-2030)
--------------------------------------------------------------------------------------------------------------------------------------------------------
                                                      Indiana portion of the area (Dearborn County)
--------------------------------------------------------------------------------------------------------------------------------------------------------
Nonroad.................................................            0.47            0.34           -0.13            0.53            0.25           -0.28
Onroad..................................................            1.76            0.34           -1.42            3.94            0.65           -3.29
Point...................................................            5.54            3.94           -1.60            9.62            1.79           -7.83
Area....................................................            1.39            1.35           -0.04            0.20            0.34            0.14
                                                         -----------------------------------------------------------------------------------------------
    Total...............................................            9.16            5.97           -3.19           14.29            3.03          -11.26
--------------------------------------------------------------------------------------------------------------------------------------------------------
                                                                       Entire Area
--------------------------------------------------------------------------------------------------------------------------------------------------------
Nonroad.................................................           20.39           17.30           -3.09           22.30            8.72          -13.58
Onroad..................................................           39.23            9.71          -29.52           82.20           16.11          -66.09
Point...................................................           15.73           15.25           -0.48           91.69           41.24          -50.45
Area....................................................           79.97           47.73          -32.24           20.60           14.71           -5.89
                                                         -----------------------------------------------------------------------------------------------
    Total...............................................          155.32           89.99          -65.33          216.79           80.78         -136.01
--------------------------------------------------------------------------------------------------------------------------------------------------------


                      Table 18--Change in Typical Summer Day VOC and NOX Emissions in the Chicago Area Between 2014 and 2030 (tpd)
--------------------------------------------------------------------------------------------------------------------------------------------------------
                                                                                VOC                                             NOX
                                                         -----------------------------------------------------------------------------------------------
                     Source category                                                        Net change                                      Net Change
                                                               2014            2030         (2014-2030)        2014            2028         (2014-2030)
--------------------------------------------------------------------------------------------------------------------------------------------------------
                                                 Indiana portion of the area (Lake and Porter counties)
--------------------------------------------------------------------------------------------------------------------------------------------------------
Nonroad.................................................           18.08            8.81           -9.27           15.66            9.73           -5.93
Onroad..................................................           11.59            3.12           -8.47           28.05            6.73          -21.32
Point...................................................           12.99           17.61            4.62           71.24           67.99           -3.25
Area....................................................           20.00           15.88           -4.12           12.52            5.38           -7.14
                                                         -----------------------------------------------------------------------------------------------
    Total...............................................           62.66           45.42          -17.24          127.47           89.83          -37.64
--------------------------------------------------------------------------------------------------------------------------------------------------------
                                                                       Entire Area
--------------------------------------------------------------------------------------------------------------------------------------------------------
Nonroad.................................................           94.43           91.81           -2.62           96.73           70.01          -26.72
Onroad..................................................          129.41           22.80         -106.61          258.94           71.23         -187.71
Point...................................................           51.33           57.95            6.62          146.39          141.46           -4.93
Area....................................................          225.47          201.20          -24.27           97.50           71.37          -26.13
                                                         -----------------------------------------------------------------------------------------------
    Total...............................................          500.64          373.76         -126.88          599.57          354.07         -245.49
--------------------------------------------------------------------------------------------------------------------------------------------------------

    The maintenance demonstrations for the Indianapolis, La Porte 
County, South Bend-Elkhart, and the Indiana portions of the Chicago, 
Cincinnati, and Louisville areas show maintenance of the 1997 ozone 
NAAQS by providing emissions information to support the demonstration 
that future emissions of NOX and VOC will remain at or below 
2014 emission levels when considering both future source growth and 
implementation of future controls.
3. Continued Air Quality Monitoring
    IDEM has committed to continue to operate an approved ozone 
monitoring network in the Indianapolis, La Porte County, South Bend-
Elkhart, Chicago, and Louisville areas.\10\ IDEM has committed to 
consult with EPA prior to making changes to the existing monitoring 
network should changes become necessary in the future. IDEM remains 
obligated to meet monitoring requirements and continue to quality 
assure monitoring data in accordance with 40 CFR part 58, and to enter 
all data into the Air Quality System in accordance with Federal 
guidelines.
---------------------------------------------------------------------------

    \10\ Indiana does not have any ozone monitoring site located 
within their portion of the Cincinnati maintenance area. Indiana 
will consult with EPA should changes become necessary.
---------------------------------------------------------------------------

4. Verification of Continued Attainment
    The State of Indiana has confirmed that it has the legal authority 
to enforce and implement the requirements of the maintenance plans for 
the areas addressed in this action. This includes the authority to 
adopt, implement, and enforce any subsequent emission control measures 
determined to be necessary to correct future ozone attainment problems.
    Verification of continued attainment is accomplished through 
operation of the ambient ozone monitoring network and the periodic 
update of the areas' emissions inventories. IDEM has committed to 
continue to operate an approved ozone monitoring network in the 
Indianapolis, La Porte County, South Bend-Elkhart, Chicago, Cincinnati, 
and Louisville maintenance areas. IDEM will not discontinue

[[Page 50362]]

operation, relocate, or otherwise change the existing ozone monitoring 
network other than through revisions in the network approved by EPA.
    In addition, to track future levels of emissions, IDEM has 
committed to continue to develop and submit to EPA updated emission 
inventories for all source categories at least once every three years, 
consistent with the requirements of 40 CFR part 51, subpart A, and in 
40 CFR 51.122.
5. Contingency Plan
    Section 175A of the CAA requires that the state must adopt a 
maintenance plan, as a SIP revision, that includes such contingency 
measures as EPA deems necessary to assure that the state will promptly 
correct a violation of the NAAQS that occurs after redesignation of the 
area to attainment of the NAAQS. The maintenance plan must identify: 
The contingency measures to be considered and, if needed for 
maintenance, adopted and implemented; a schedule and procedure for 
adoption and implementation; and, a time limit for action by the state. 
The state should also identify specific indicators to be used to 
determine when the contingency measures need to be considered, adopted, 
and implemented. The maintenance plan must include a commitment that 
the state will implement all measures with respect to the control of 
the pollutant that were contained in the SIP before redesignation of 
the area to attainment in accordance with section 175A(d) of the CAA.
    As required by section 175A of the CAA, Indiana has adopted a 
contingency plan for the Indianapolis, La Porte County, South Bend-
Elkhart, Chicago, Cincinnati, and Louisville maintenance areas to 
address possible future ozone air quality problems. The contingency 
plan adopted by Indiana has two levels of response, a warning level 
response and an action level response.
    In Indiana's plan, a warning level response will be triggered when 
an annual fourth high monitored value of 0.088 ppm or higher is 
monitored within the maintenance area. A warning level response will 
consist of IDEM conducting a study to determine whether the ozone value 
indicates a trend toward higher ozone values or whether emissions 
appear to be increasing. The study will evaluate whether the trend, if 
any, is likely to continue and, if so, the control measures necessary 
to reverse the trend. The study will consider ease and timing of 
implementation as well as economic and social impacts. Implementation 
of necessary controls in response to a warning level response trigger 
will take place within 12 months from the conclusion of the most recent 
ozone season.
    In Indiana's plan, an action level response is triggered when a 
two-year average fourth high value of 0.084 ppm or greater is monitored 
within the maintenance area. A violation of the 1997 ozone standard 
within the maintenance area also triggers an action level response. In 
the event that the action level is triggered and is not found to be due 
to an exceptional event, malfunction, or noncompliance with a permit 
condition or rule requirement, IDEM will determine what additional 
control measures are needed to assure future attainment of the ozone 
standard. Control measures selected will be adopted and implemented 
within 18 months from the close of the ozone season that prompted the 
action level. IDEM may also consider if significant new regulations not 
currently included as part of the maintenance provisions will be 
implemented in a timely manner and would thus constitute an adequate 
contingency measure response.
    IDEM included the following list of potential contingency measures 
in its maintenance plan for the Indianapolis, La Porte County, South 
Bend-Elkhart, Cincinnati, and Louisville areas:
    1. Lower reid vapor pressure gasoline program.
    2. Broaden the geographic applicability of existing measures.
    3. Adoption of VOC reasonably available control technology (RACT) 
on existing sources covered by EPA Control Technique Guidelines issued 
after the 1990 CAA.
    4. Application of VOC RACT to smaller existing sources.
    5. Application of modern vehicle inspection/maintenance program.
    6. Requirements for one or more transportation control measures 
sufficient to achieve at least half a percent reduction in actual area 
wide VOC emissions. Transportation measures will be selected from the 
following, based upon the factors listed above after consultation with 
affected local governments:
    a. Trip reduction programs, including, but not limited to, 
employer-based transportation management plans, area wide rideshare 
programs, work schedule changes, and telecommuting;
    b. traffic flow and transit improvements; and
    c. other new or innovative transportation measures not yet in 
widespread use that affected local governments deem appropriate.
    7. Application of alternative fuel and diesel retrofit programs for 
fleet vehicle operations.
    8. Requirements for controls on consumer products consistent with 
those adopted elsewhere in the United States.
    9. Requirements of VOC or NOX emission offsets for new 
and modified major sources.
    10. Requirements of VOC or NOX emission offsets for new 
and modified minor sources.
    11. Increasing the ratio of emission offsets required for new 
sources.
    12. Requirements for VOC or NOX controls on new minor 
sources.
    IDEM included the following list of potential contingency measures 
in its maintenance plan for the Chicago area:
    (1) Requirements for enhancements to the vehicle emission testing 
program (increased weight limit, addition of diesel vehicles, etc.).
    (2) Asphalt paving (lower VOC formulation).
    (3) Diesel exhaust retrofits.
    (4) Traffic flow improvements.
    (5) Idle reduction programs.
    (6) Adoption of portable fuel container regulations (state-wide).
    (7) Park and ride facilities.
    (8) Rideshare/carpool program.
    (9) Requirements for VOC capture/trade program for major stationary 
sources.
    (10) Application of NOX RACT.
    To qualify as a contingency measure, emissions reductions from that 
measure must not be factored into the emissions projections used in the 
maintenance plan.
    EPA has concluded that Indiana's maintenance plan adequately 
addresses the five basic components of a maintenance plan. Thus, EPA 
finds that the maintenance plan SIP revisions submitted by IDEM for the 
Indianapolis, La Porte County, and South Bend-Elkhart areas and the 
Indiana portions of the Chicago, Cincinnati, and Louisville areas meet 
the requirements of section 175A of the CAA.

B. Transportation Conformity

    Transportation conformity is required by section 176(c) of the CAA. 
Conformity to a SIP means that transportation activities will not 
produce new air quality violations, worsen existing violations, or 
delay timely attainment of the NAAQS (CAA 176(c)(1)(B)). EPA's 
conformity rule at 40 CFR part 93 requires that transportation plans, 
programs and projects conform to SIPs and establish the criteria and 
procedures for determining whether they conform. The conformity rule 
generally requires a

[[Page 50363]]

demonstration that emissions from the Regional Transportation Plan and 
the Transportation Improvement Program (TIP) are consistent with the 
motor vehicle emissions budget (MVEB) contained in the control strategy 
SIP revision or maintenance plan (40 CFR 93.101, 93.118, and 93.124). A 
MVEB is defined as ``that portion of the total allowable emissions 
defined in the submitted or approved control strategy implementation 
plan revision or maintenance plan for a certain date for the purpose of 
meeting reasonable further progress milestones or demonstrating 
attainment or maintenance of the NAAQS, for any criteria pollutant or 
its precursors, allocated to highway and transit vehicle use and 
emissions'' (40 CFR 93.101).
    The South Coast II court decision upheld EPA's revocation of the 
1997 ozone NAAQS, which was effective on April 6, 2015. EPA's current 
transportation conformity regulation requires a regional emissions 
analysis only during the time period beginning one year after a 
nonattainment designation for a particular NAAQS until the effective 
date of revocation of that NAAQS (40 CFR 93.109(c)). Therefore, 
pursuant to the conformity regulation, a regional emissions analysis 
using MVEBs is not required for conformity determinations for the 1997 
ozone NAAQS because that NAAQS has been revoked (80 FR 12264). As no 
regional emissions analysis is required for the maintenance areas in 
Indiana, transportation conformity for the 1997 ozone NAAQS can be 
demonstrated by a Metropolitan Planning Organization and the State's 
Department of Transportation for transportation plans and TIPs by 
showing that the remaining criteria contained in Table 1 in 40 CFR 
93.109, and 40 CFR 93.108 have been met.

IV. Proposed Action

    Under section 175A of the CAA and for the reasons set forth above, 
based on Indiana's representations and commitments set forth above, EPA 
is proposing to approve the second maintenance plans for the 1997 ozone 
NAAQS for the Indianapolis, La Porte County, and South Bend-Elkhart 
areas and the Indiana portions of the Chicago, Cincinnati, and 
Louisville areas, submitted by IDEM on June 20, 2019, as a revision to 
the Indiana SIP. These maintenance plans are designed to keep these 
areas in attainment of the 1997 ozone NAAQS through the second 10-year 
maintenance period.

V. Statutory and Executive Order Reviews

    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 
proposed action merely proposes to approve state law as meeting Federal 
requirements and does not impose additional requirements beyond those 
imposed by state law. For that reason, this proposed action:
     Is not a ``significant regulatory action'' 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);
     Is not an Executive Order 13771 (82 FR 9339, February 2, 
2017) regulatory action because it is not a significant regulatory 
action under Executive Order 12866;
     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 disproportionate human health or environmental effects with 
practical, appropriate, and legally permissible methods under Executive 
Order 12898 (59 FR 7629, February 16, 1994).
    In addition, the SIP is 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 and will not impose 
substantial direct costs on tribal governments or preempt tribal law as 
specified by Executive Order 13175 (65 FR 67249, November 9, 2000).

List of Subjects in 40 CFR Part 52

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

    Dated: September 11, 2019.
Cheryl L. Newton,
Acting Regional Administrator, Region 5.
[FR Doc. 2019-20846 Filed 9-24-19; 8:45 am]
BILLING CODE 6560-50-P