[Federal Register Volume 86, Number 124 (Thursday, July 1, 2021)]
[Proposed Rules]
[Pages 35030-35034]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2021-14056]
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ENVIRONMENTAL PROTECTION AGENCY
40 CFR Part 52
[EPA-R02-OAR-2021-0263; FRL 10025-39-Region 2]
Approval of Air Quality Implementation Plans; New York; 2011
Periodic Emission Inventory SIP for the Ozone Nonattainment Areas
AGENCY: Environmental Protection Agency (EPA).
ACTION: Proposed rule.
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SUMMARY: The Environmental Protection Agency (EPA) is proposing to
approve a State Implementation Plan (SIP) revision submitted by the New
York State Department of Environmental Conservation (NYSDEC). The SIP
revision consists of the following: 2011 calendar year ozone precursor
emission inventory for volatile organic compounds (VOCs), oxides of
nitrogen (NOX), and carbon monoxide (CO) for the New York
portion of the New York-Northern New Jersey-Long Island, Connecticut
NY-NJ-CT area (New York Metropolitan Area, or NYMA) classified as
serious ozone nonattainment for the 2008 8-hour ozone National Ambient
Air Quality Standards (NAAQS or standard), and the Jamestown
(Chautauqua County) ozone nonattainment area classified as marginal for
the 2008 8-hour ozone standard. In addition, the SIP revision also
consists of the 2011 calendar year statewide periodic emissions
inventory for volatile organic compounds, oxides of nitrogen, and
carbon monoxide. Emission inventories are needed to develop and assess
new control strategies that the states may use in attainment
demonstration SIPs for the new National Ambient Air Quality Standards
for ozone and PM2.5. The inventories may also serve as part
of statewide inventories for purposes of regional modeling in ozone and
play an important role in modeling demonstrations for areas classified
as nonattainment for ozone and carbon monoxide. This action is being
taken in accordance with the Clean Air Act (CAA).
DATES: Written comments must be received on or before August 2, 2021.
ADDRESSES: Submit your comments, identified by Docket ID No. EPA-R02-
OAR-2021-0263, at http://www.regulations.gov. Follow the online
instructions for submitting comments. Once submitted, comments cannot
be edited or removed from Regulations.gov. The EPA may publish any
comment received to its public docket. Do not submit electronically any
information you consider to be Confidential Business Information 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. The 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, 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: Ysabel Banon, Air Programs Branch,
Environmental Protection Agency, Region 2 Office, 290 Broadway, 25th
Floor, New York, New York 10007-1866, (212) 637-3382, or by email at
[email protected].
SUPPLEMENTARY INFORMATION: The Supplementary Information section is
arranged as follows:
Table of Contents
I. Background
A. Statutory and Regulatory Requirements for a Periodic Emission
Inventory
II. Description of State's Submittals
III. Evaluation of State's Submittals and Technical Information
A. Base Year Emissions Inventory
B. Evaluation of State's Submittals
IV. Proposed Action
V. Statutory and Executive Order Reviews
I. Background
On March 12, 2008, the EPA revised both the primary and secondary
NAAQS for ozone to a level of 0.075 parts per million (ppm) (annual
fourth-highest daily maximum 8-hour average concentration, averaged
over three years) to provide increased protection of public health and
the environment. See 73 FR 16436 (March 27, 2008). The 2008
[[Page 35031]]
ozone NAAQS retains the same general form and averaging time as the
0.08 ppm NAAQS set in 1997 but is set at a more protective level. Under
the EPA's regulations at 40 CFR part 50, the 2008 8-hour ozone NAAQS is
attained when the 3-year average of the annual fourth highest daily
maximum 8-hour average ambient air quality ozone concentrations is less
than or equal to 0.075 ppm. See 40 CFR 50.15.
Effective July 20, 2012, the EPA designated as nonattainment any
area that was violating the 2008 8-hour ozone NAAQS based on the most
recent three years (2008 through 2010) of air monitoring data. See 77
FR 30088 (May 21, 2012). The two 8-hour ozone marginal nonattainment
areas located in New York State are the New York portion of the NYMA
and the Jamestown nonattainment area. The remainder of New York State
was designated as unclassifiable/attainment. The New York portion of
the NYMA is composed of the five boroughs of New York City and the
surrounding counties of Nassau, Suffolk, Westchester, Rockland, and the
Shinnecock Indian Nation. See 40 CFR 81.333. The Jamestown
nonattainment area is composed of Chautauqua County.
Because the NYMA and Jamestown areas were designated as ozone
nonattainment areas, an ozone emissions inventory is needed for this
area for air quality program planning purposes. Areas that were
designated as marginal nonattainment were required to attain the 2008
8-hour ozone NAAQS no later than July 20, 2015 based on monitoring data
from 2012 through 2014. On May 14, 2016, the EPA published its
determination that the Jamestown area attained the 2008 ozone standard
by the July 20, 2015 attainment date and that the NYMA area had failed
to attain the 2008 8-hour ozone NAAQS by the attainment deadline. See
81 FR 26697. As a result, the NYMA area was reclassified to moderate
nonattainment. See 40 CFR 81.306. Moderate areas are required to attain
the 2008 8-hour ozone NAAQS by no later than six years after the
effective date of designations or July 20, 2018. See 40 CFR 51.903. On
August 23, 2019, the EPA published its determination that the NYMA area
had failed to attain the 2008 8-hour ozone NAAQS by the July 20, 2018
deadline, and so the EPA reclassified the NYMA area to serious
nonattainment. 84 FR 44238.
A. Statutory and Regulatory Requirements for a Periodic Emissions
Inventory
Section 182(a)(3) and 172(c)(3) of the Clean Air Act requires the
periodic submission of emissions inventories for the SIP planning
process to address the pollutants for the ozone and carbon monoxide
NAAQS. Identifying the calendar year gives certainty to states that
require submission of the ozone and CO emission inventories
periodically. These requirements allow the EPA to periodically reassess
its policies and air quality standards and revise them as necessary
based on the states' progress in reducing emissions. Most importantly,
the ozone and CO inventories will be used to develop and assess new
control strategies that the states may use in attainment demonstration
SIPs for the ozone and CO NAAQS. The inventory may also serve as part
of statewide inventories for purposes of regional modeling in transport
areas. The inventory plays an important role in modeling demonstrations
for areas classified as nonattainment and outside transport regions.
II. Description of State's Submittals
CAA Section 182, subpart 2 outlines SIP requirements applicable to
ozone nonattainment areas in each classification category. On November
13, 2017, NYSDEC submitted SIP revisions for the 2011 calendar year
ozone precursor emission inventory for volatile organic compounds,
oxides of nitrogen, and carbon monoxide for the NYMA classified as
moderate ozone nonattainment for the 2008 8-hour ozone standard, and
Jamestown (Chautauqua County) ozone nonattainment area classified as
marginal for the 2008 8-hour ozone standard. In addition, the SIP
revision consists of the 2011 calendar year statewide periodic
emissions inventory for volatile organic compounds, oxides of nitrogen,
and carbon monoxide.
III. Evaluation of State's Submittals and Technical Information
A. 2011 Base Year Emission Inventory
CAA section 172(c)(3) requires that each SIP include a
``comprehensive, accurate, current inventory of actual emissions from
all sources of the relevant pollutant or pollutants in [the] area. . .
.'' By requiring an accounting of actual emissions from all sources of
the relevant pollutants in the area, this section provides for the
``base year'' inventory to include all emissions that contribute to the
formation of a particular NAAQS pollutant. Additionally, for the 2008
ozone NAAQS, the EPA's March 6, 2015 ozone rule recommends 2011 as a
baseline year from which emission reductions used to meet reasonable
further progress requirements are creditable. See 80 FR 12264.
On November 13, 2017, NYSDEC submitted to the EPA an emissions
inventory of ozone precursors for 2011 as a SIP revision request. The
inventory was submitted to meet the CAA section 182(a)(3)(A) obligation
to develop a base year inventory. The State conducted a public comment
process on the inventory which concluded on August 21, 2017 with a
public hearing. The State did not receive public comments on the 2011
emissions inventories during the public comment period or during the
hearing. The inventory includes emission estimates in tons per year and
tons per ozone season day and represent emissions estimates from
stationary and mobile source categories during a typical summer day
when ozone formation is highest. The ozone emissions inventory catalogs
NOX and VOC emissions because these pollutants are
precursors to ozone formation. NYSDEC's 2011 emissions inventory
contains emission estimates at the county level and also contains
emission estimates summed to the geographic areas that correspond to
the State's two nonattainment areas.
B. Evaluation of State's Submittals
Based on the EPA's review, the 2011 base year emissions inventory
for the NYMA, the Jamestown area, and the entire State include
essential data elements, source categories, sample calculations, or
report documentation to allow the EPA to adequately determine if the
inventory is accurate and complete. Consequently, New York's 2011 base
year emissions inventory is consistent with the ozone base year
emission inventory reporting requirements based on EPA guidance. New
York's 2011 base year inventory is consistent with the ozone base year
emission inventory reporting requirements for the following reasons:
1. Evidence that the inventory was quality assured by the State and
its implementation documented;
2. The point source inventory must be complete;
3. Point source emissions must have been prepared or calculated
according to current EPA guidance;
4. The area source inventory must be complete;
5. The area source emissions must have been prepared or calculated
according to current EPA guidance;
6. Non-road mobile emissions must have been prepared according to
current EPA guidance for all of the source categories;
7. The method (e.g., Highway Performance Monitoring System or a
[[Page 35032]]
network transportation planning model) used to develop the vehicle
miles travelled (VMT) estimates must follow EPA guidance. (The VMT
development methods were described and documented in the inventory
report.)
8. On-road mobile emissions were prepared according to the
guidance.
Annual and ozone season day point, area, non-road, on-road, and
biogenic emissions are identified in the inventory. Based on the EPA's
review, New York satisfies all of the EPA's requirements for purposes
of providing a comprehensive accurate, and current inventory of actual
emissions for the ozone nonattainment. A summary of the EPA's review is
given below:
1. The Quality Assurance (QA) plan was implemented for all portions
of the inventory. The QA plan included a QA/Quality control (QC)
program for assessing data completeness and standard range checking.
Critical data elements relative to the inventory sources were assessed
for completeness. QA checks were performed relative to data collection
and analysis, and double counting of emissions from point, area, and
mobile sources. QA/QC checks were conducted to ensure accuracy of
units, unit conversions, transposition of figures, and calculations.
The inventory is well documented. New York provided documentation
detailing the methods used to develop emissions estimates for each
category. In addition, New York identified the sources of data it used
to develop the inventory;
2. The point source emissions are complete in accordance with EPA
guidance;
3. The point source emissions were prepared and calculated in
accordance with EPA guidance;
4. The area source emissions are complete in accordance with EPA
guidance;
5. Area source emissions were prepared and calculated in accordance
with EPA guidance;
6. Emission estimates for the non-road mobile source categories are
correctly based on the latest non-road mobile model or other
appropriate guidance and prepared in accordance with EPA guidance;
7. The method used to develop VMT estimates is in accordance with
EPA guidance and was adequately described and documented in the
inventory report; and,
8. The latest Motor Vehicle Emission Simulator (MOVES2014a) model
was used in accordance with EPA guidance.
New York's 2011 ozone emission inventory has been developed in
accordance with EPA guidance. Therefore, the EPA is proposing to
approve the emission inventory. Detailed emission inventory development
procedures can be found in the following document: Emission Inventory
Guidance for Implementation of Ozone and Particulate Matter NAAQS and
Regional Haze Regulation, dated July 2017; Using MOVES to Prepare
Emission Inventories in State Implementation Plans and Transportation
Conformity: Technical Guidance for MOVES2014, 2014a, November April
2015.
Table 1--below shows the statewide summary of the 2011 Annual
emissions. Tables 2-4 below show the 2011 CO, NOX, and VOC
annual emission by category for the ozone nonattainment areas. Table 5-
below shows the summary emission by category, in tons per ozone season
day.
Table 1--Statewide Summary of 2011 Annual Emissions
[Tons]
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2011 New York State Annual
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Total for all
Point Nonpoint Nonroad On-road Biogenic sectors
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CO...................................................... 52,277 217,200 765,931 890,013 73,592 1,999,013
NOX..................................................... 51,048 65,602 104,725 173,269 8,516 403,160
VOC..................................................... 8,638 221,174 105,266 86,980 391,579 813,637
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Table 2--NYMA and Jamestown 2011 Annual CO Emissions
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CO tons per year
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County name Total for all
Point Nonpoint Nonroad On-road Biogenic sectors
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Bronx................................................... 481.38 1,804.33 12,589.03 19,739.31 69.11 34,683.16
Kings................................................... 402.73 4,075.73 37,417.24 32,242.24 86.26 74,224.2
Nassau.................................................. 1,355.92 3,773.09 56,538.97 72,093.37 455.06 134,216.4
New York................................................ 1,382.31 3,302.12 74,065.45 29,523.84 31.40 108,305.1
Queens.................................................. 1,432.93 3,372.13 46,722.59 49,875.48 118.83 101,522.0
Richmond................................................ 771.13 2,260.14 11,978.46 14,483.11 98.51 29,591.35
Rockland................................................ 106.65 1,609.30 12,339.81 16,194.00 267.29 30,517.05
Suffolk................................................. 2,245.55 8,580.85 94,937.08 102,473.20 1,982.01 210,218.7
Westchester............................................. 472.12 4,888.18 42,788.68 48,675.43 631.37 97,455.78
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Total............................................... 8,650.71 33,665.87 389,377.30 385,299.98 3,739.81 820,733.7
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Chautauqua.............................................. 662.590 3,961.99 8,460.39 11,905.87 1471.83 26,462.7
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[[Page 35033]]
Table 3--NYMA and Jamestown 2011 Annual NOX Emissions
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NOX tons per year
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County name Total for all
Point Nonpoint Nonroad On-road Biogenic sectors
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Bronx................................................... 563.91 2,571.79 2,387.14 4,822.04 7.68 10,352.56
Kings................................................... 1,063.94 5,484.64 5,348.52 7,563.46 10.54 19,471.10
Nassau.................................................. 2,518.47 4,153.45 3,751.43 12,522.14 35.70 22,981.19
New York................................................ 3,147.56 10,786.66 13,137.78 7,066.32 5.03 34,143.35
Queens.................................................. 2,370.14 4,734.23 10,425.27 10,801.61 15.53 28,346.78
Richmond................................................ 895.39 1,082.34 2,540.24 2,727.46 8.54 7,253.97
Rockland................................................ 360.39 903.75 1,207.22 2,642.45 19.22 5,133.03
Suffolk................................................. 3,298.58 4,309.39 14,171.66 16,959.84 150.76 38,890.23
Westchester............................................. 1,344.18 3,224.12 2,999.25 7,736.45 46.56 15,350.56
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Total............................................... 15,562.58 37,250.25 55,968.49 72,841.76 299.56 181,922.77
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Chautauqua.............................................. 2141.81 815.65 2,289.15 2,776.52 245.69 8,268.82
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Table 4--NYMA and Jamestown 2011 Annual VOC Emissions
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VOC tons per year
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County name Total for all
Point Nonpoint Nonroad On-road Biogenic sectors
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Bronx................................................... 39.77 10,525.42 1,142.39 2,035.09 498.54 1,4241.2
Kings................................................... 303.59 19,127.05 2,957.06 3,382.77 389.63 26,160.1
Nassau.................................................. 263.49 12,096.49 4,596.46 7,215.96 3,247.33 27,419.7
New York................................................ 189.45 13,274.27 4,754.84 2,894.63 170.79 21,284
Queens.................................................. 239.63 18,293.89 3,841.17 5,260.83 682.95 28,318.5
Richmond................................................ 185.57 3,947.04 1,125.80 1,520.59 651.25 7,430.25
Rockland................................................ 74.03 2,834.50 1,341.89 1,450.91 2,767.01 8,468.34
Suffolk................................................. 457.17 15,980.50 10,969.88 9,750.32 13,821.42 50,979.3
Westchester............................................. 79.94 9,264.73 3,935.55 4,468.14 4,956.84 22,705.2
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Total............................................... 1,832.65 105,343.90 34,665.05 37,979.23 2,7185.8 207,007
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Chautauqua.............................................. 167.75 6,726.66 1,515.54 1,152.29 245.69 9,807.93
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Table 5--NYMA and Jamestown Summary of 2011 OSD Emissions
[Tons per day]
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2011 New York Metropolitan Area (NYMA) ozone season day Jamestown Area ozone season day
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Total Total for
Point Nonpoint Nonroad On-road Biogenic for all Point Nonpoint Nonroad On-road Biogenic all
sectors * sectors
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CO.......................................................... 90.57 46.18 1,088.43 1,018.81 22.11 2,264.10 4.46 5.49 23.64 28.72 9.17 71.48
NOX......................................................... 344.88 52.49 155.07 205.86 1.35 759.65 10.31 1.60 23.64 7.83 1.13 44.51
VOC......................................................... 11.26 301.11 96.88 104.46 191.15 704.86 1.06 18.36 4.23 3.07 45.75 72.47
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IV. Proposed Action
The New York emission inventory SIP revision will ensure that the
requirements for emission inventory measures and reporting are
adequately met. To comply with the emission inventory requirements, on
November 13, 2017, NYSDEC submitted the complete inventory containing
point, area, on-road, non-road mobile, and biogenic source data, and
accompanying documentation. The EPA is proposing to approve New York's
2011 emission inventory SIP revision submittal as meeting the essential
reporting requirements for emission inventories. The EPA has also
determined that the SIP revision meets the requirements for emission
inventories in accordance with EPA guidance. Therefore, the EPA is
proposing to approve a revision to the New York SIP which pertains to
the following: 2011 calendar year ozone season daily and annual ozone
precursor emission inventories for CO, NOX, and VOC for the
NYMA portion of New York-New Jersey-Long Island NY-NJ-CT serious
nonattainment area and for the Jamestown marginal nonattainment area.
In addition, the EPA is proposing to approve the 2011 calendar year
ozone emissions inventory that was developed statewide for New York.
The pollutants included in the inventory are annual emissions for CO,
NOX, and VOC. Interested parties may participate in the
Federal rulemaking procedure by submitting written comments to the EPA
Region 2 Office by the method discussed in the ADDRESSES section of
this action.
V. Statutory and Executive Order Reviews
Under the Clean Air Act, the Administrator is required to approve a
SIP submission that complies with the provisions of the Act and
applicable Federal regulations. 42 U.S.C. 7410(k); 40 CFR 52.02(a).
Thus, in reviewing SIP submissions, the EPA's role is to
[[Page 35034]]
approve state choices, provided that they meet the criteria of the
Clean Air Act. Accordingly, this proposed 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
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));
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 Clean Air Act; and
Does not provide the 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, the SIP is not approved to apply on any Indian
reservation land or in any other area where the 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, Carbon monoxide,
Incorporation by reference, Nitrogen dioxide, Ozone, Reporting and
recordkeeping requirements, Volatile organic compounds.
Dated: June 24, 2021.
Walter Mugdan,
Acting Regional Administrator, EPA Region 2.
[FR Doc. 2021-14056 Filed 6-30-21; 8:45 am]
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