81 FR 6200 - Air Quality Plans; Georgia; Infrastructure Requirements for the 2010 Sulfur Dioxide National Ambient Air Quality Standard
ENVIRONMENTAL PROTECTION AGENCY Federal Register Volume 81, Issue 24 (February 5, 2016)
Federal Register Volume 81, Issue 24 (February 5, 2016)
| Page Range | 6200-6210 | |
| FR Document | 2016-02303 |
[Federal Register Volume 81, Number 24 (Friday, February 5, 2016)] [Proposed Rules] [Pages 6200-6210] From the Federal Register Online [www.thefederalregister.org] [FR Doc No: 2016-02303] ======================================================================= ----------------------------------------------------------------------- ENVIRONMENTAL PROTECTION AGENCY 40 CFR Part 52 [EPA-R04-OAR-2015-0152; FRL-9941-95-Region 4] Air Quality Plans; Georgia; Infrastructure Requirements for the 2010 Sulfur Dioxide National Ambient Air Quality Standard AGENCY: Environmental Protection Agency (EPA). ACTION: Proposed rule. ----------------------------------------------------------------------- SUMMARY: The Environmental Protection Agency (EPA) is proposing to approve portions of the State Implementation Plan (SIP) submission, submitted by the State of Georgia, through the Georgia Department of Natural Resources (DNR), Environmental Protection Division (GAEPD), on October 22, 2013, and supplemented on July 25, 2014, to demonstrate that the State meets the infrastructure requirements of the Clean Air Act (CAA or Act) for the 2010 1-hour sulfur dioxide (SO2 ) national ambient air quality standard (NAAQS). The CAA requires that each state adopt and submit a SIP for the implementation, maintenance and enforcement of each NAAQS promulgated by EPA, which is commonly referred to as an ``infrastructure'' SIP. GAEPD certified that the Georgia SIP contains provisions that ensure the 2010 1-hour SO2 NAAQS is implemented, enforced, and maintained in Georgia. EPA is proposing to determine that Georgia's infrastructure submission, submitted on October 22, 2013, and supplemented on July 25, 2014, addresses certain required infrastructure elements for the 2010 1-hour SO2 NAAQS. DATES: Written comments must be received on or before March 7, 2016. ADDRESSES: Submit your comments, identified by Docket ID No. EPA-R04- OAR-2015-0152, by one of the following methods: 1. www.regulations.gov: Follow the on-line instructions for submitting comments. [[Page 6201]] 2. Email: [email protected]. 3. Fax: (404) 562-9019. 4. Mail: ``EPA-R04-OAR-2015-0152,'' 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. 5. Hand Delivery or Courier: Lynorae Benjamin, 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. Such deliveries are only accepted during the Regional Office's normal hours of operation. The Regional Office's official hours of business are Monday through Friday, 8:30 a.m. to 4:30 p.m., excluding Federal holidays. Instructions: Direct your comments to Docket ID No. EPA-R04-OAR- 2015-0152. EPA's policy is that all comments received will be included in the public docket without change and may be made available online at www.regulations.gov, including any personal information provided, unless the comment includes information claimed to be Confidential Business Information (CBI) or other information whose disclosure is restricted by statute. Do not submit through www.regulations.gov or email, information that you consider to be CBI or otherwise protected. The www.regulations.gov Web site is an ``anonymous access'' system, which means EPA will not know your identity or contact information unless you provide it in the body of your comment. If you send an email comment directly to EPA without going through www.regulations.gov, your email address will be automatically captured and included as part of the comment that is placed in the public docket and made available on the Internet. If you submit an electronic comment, EPA recommends that you include your name and other contact information in the body of your comment and with any disk or CD-ROM you submit. If EPA cannot read your comment due to technical difficulties and cannot contact you for clarification, EPA may not be able to consider your comment. Electronic files should avoid the use of special characters, any form of encryption, and be free of any defects or viruses. For additional information about EPA's public docket visit the EPA Docket Center homepage at http://www.epa.gov/epahome/dockets.htm. Docket: All documents in the electronic docket are listed in the www.regulations.gov index. Although listed in the index, some information is not publicly available, i.e., CBI 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 in 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: Michele Notarianni, 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. Ms. Notarianni can be reached via electronic mail at [email protected] or via telephone at (404) 562-9031. Table of Contents I. Background and Overview II. What elements are required under Sections 110(a)(1) and (2)? III. What is EPA's approach to the review of infrastructure SIP submissions? IV. What is EPA's analysis of how Georgia addressed the elements of Sections 110(a)(1) and (2) ``Infrastructure'' Provisions? V. Proposed Action VI. Statutory and Executive Order Reviews I. Background and Overview On June 22, 2010 (75 FR 35520), EPA promulgated a revised primary SO2 NAAQS to an hourly standard of 75 parts per billion (ppb) based on a 3-year average of the annual 99th percentile of 1-hour daily maximum concentrations. Pursuant to section 110(a)(1) of the CAA, states are required to submit SIPs meeting the applicable requirements of section 110(a)(2) within three years after promulgation of a new or revised NAAQS or within such shorter period as EPA may prescribe. Section 110(a)(2) requires states to address basic SIP elements such as requirements for monitoring, basic program requirements and legal authority that are designed to assure attainment and maintenance of the NAAQS. States were required to submit such SIPs for the 2010 1-hour SO2 NAAQS to EPA no later than June 22, 2013.\1\ --------------------------------------------------------------------------- \1\ In these infrastructure SIP submissions states generally certify evidence of compliance with sections 110(a)(1) and (2) of the CAA through a combination of state regulations and statutes, some of which have been incorporated into the federally-approved SIP. In addition, certain federally-approved, non-SIP regulations may also be appropriate for demonstrating compliance with sections 110(a)(1) and (2). Georgia's existing SIP consists largely of Georgia's Rule for Air Quality rules adopted by GAEPD and approved by EPA through the SIP revision process. However, there are some state regulations that are not part of the Georgia federally- approved SIP. Throughout this rulemaking, unless otherwise indicated, the term ``State rules'' or ``State regulations'' indicate that the cited regulation has been approved into Georgia's federally-approved SIP. The term ``Georgia Air Quality Act'' indicates cited Georgia State statutes, which are not a part of the SIP unless otherwise indicated. The Georgia Air Quality Act is located at http://epd.georgia.gov/existing-rules-and-corresponding-laws. --------------------------------------------------------------------------- This action is proposing to approve portions of Georgia's infrastructure SIP submissions \2\ for the applicable requirements of the 2010 1-hour SO2 NAAQS, with the exception of the interstate transport requirements of section 110(a)(2)(D)(i)(I) and (II) (prongs 1, 2, and 4), for which EPA is not proposing any action today regarding these requirements. For the aspects of Georgia's submittal proposed for approval today, EPA notes that the Agency is not approving any specific rule, but rather proposing that Georgia's already approved SIP meets certain CAA requirements. --------------------------------------------------------------------------- \2\ Georgia's 2010 1-hour SO2 NAAQS infrastructure SIP submissions dated October 22, 2013, and supplemented on July 25, 2014, are also collectively referred to as ``Georgia's SO2 infrastructure SIP'' in this action. --------------------------------------------------------------------------- II. What elements are required under Sections 110(a)(1) and (2)? Section 110(a) of the CAA requires states to submit SIPs to provide for the implementation, maintenance, and enforcement of a new or revised NAAQS within three years following the promulgation of such NAAQS, or within such shorter period as EPA may prescribe. Section 110(a) imposes the obligation upon states to make a SIP submission to EPA for a new or revised NAAQS, but the contents of that submission may vary depending upon the facts and circumstances. In particular, the data and analytical tools available at the time the state develops and submits the SIP for a new or revised NAAQS affects the content of the submission. The contents of such SIP submissions may also vary depending upon what provisions the state's existing SIP already contains. [[Page 6202]] More specifically, section 110(a)(1) provides the procedural and timing requirements for SIPs. Section 110(a)(2) lists specific elements that states must meet for ``infrastructure'' SIP requirements related to a newly established or revised NAAQS. As mentioned above, these requirements include basic SIP elements such as requirements for monitoring, basic program requirements and legal authority that are designed to assure attainment and maintenance of the NAAQS. The requirements are summarized below and in EPA's September 13, 2013, memorandum entitled ``Guidance on Infrastructure State Implementation Plan (SIP) Elements under Clean Air Act Sections 110(a)(1) and 110(a)(2).'' \3\ --------------------------------------------------------------------------- \3\ Two elements identified in section 110(a)(2) are not governed by the three year submission deadline of section 110(a)(1) because SIPs incorporating necessary local nonattainment area controls are not due within three years after promulgation of a new or revised NAAQS, but rather are due at the time the nonattainment area plan requirements are due pursuant to section 172. These requirements are: (1) submissions required by section 110(a)(2)(C) to the extent that subsection refers to a permit program as required in part D, title I of the CAA; and (2) Submissions required by section 110(a)(2)(I) which pertain to the nonattainment planning requirements of part D, title I of the CAA. This proposed rulemaking does not address infrastructure elements related to section 110(a)(2)(I) or the nonattainment planning requirements of 110(a)(2)(C). ---------------------------------------------------------------------------110(a)(2)(A): Emission Limits and Other Control Measures 110(a)(2)(B): Ambient Air Quality Monitoring/Data System 110(a)(2)(C): Programs for Enforcement of Control Measures and for Construction or Modification of Stationary Sources \4\ --------------------------------------------------------------------------- \4\ This rulemaking only addresses requirements for this element as they relate to attainment areas. --------------------------------------------------------------------------- 110(a)(2)(D)(i)(I) and (II): Interstate Pollution Transport 110(a)(2)(D)(ii): Interstate Pollution Abatement and International Air Pollution 110(a)(2)(E): Adequate Resources and Authority, Conflict of Interest, and Oversight of Local Governments and Regional Agencies 110(a)(2)(F): Stationary Source Monitoring and Reporting 110(a)(2)(G): Emergency Powers 110(a)(2)(H): SIP Revisions 110(a)(2)(I): Plan Revisions for Nonattainment Areas \5\ --------------------------------------------------------------------------- \5\ As mentioned above, this element is not relevant to this proposed rulemaking. --------------------------------------------------------------------------- 110(a)(2)(J): Consultation with Government Officials, Public Notification, and Prevention of Significant Deterioration (PSD) and Visibility Protection 110(a)(2)(K): Air Quality Modeling and Submission of Modeling Data 110(a)(2)(L): Permitting fees 110(a)(2)(M): Consultation and Participation by Affected Local Entities III. What is EPA's approach to the review of infrastructure SIP submissions? EPA is acting upon the SIP submissions from Georgia that address the infrastructure requirements of CAA sections 110(a)(1) and 110(a)(2) for the 2010 1-hour SO 2 NAAQS. The requirement for states to make a SIP submission of this type arises out of CAA section 110(a)(1). Pursuant to section 110(a)(1), states must make SIP submissions ``within 3 years (or such shorter period as the Administrator may prescribe) after the promulgation of a national primary ambient air quality standard (or any revision thereof),'' and these SIP submissions are to provide for the ``implementation, maintenance, and enforcement'' of such NAAQS. The statute directly imposes on states the duty to make these SIP submissions, and the requirement to make the submissions is not conditioned upon EPA's taking any action other than promulgating a new or revised NAAQS. Section 110(a)(2) includes a list of specific elements that ``[e]ach such plan'' submission must address. EPA has historically referred to these SIP submissions made for the purpose of satisfying the requirements of CAA sections 110(a)(1) and 110(a)(2) as ``infrastructure SIP'' submissions. Although the term ``infrastructure SIP'' does not appear in the CAA, EPA uses the term to distinguish this particular type of SIP submission from submissions that are intended to satisfy other SIP requirements under the CAA, such as ``nonattainment SIP'' or ``attainment plan SIP'' submissions to address the nonattainment planning requirements of part D of title I of the CAA, ``regional haze SIP'' submissions required by EPA rule to address the visibility protection requirements of CAA section 169A, and nonattainment new source review (NNSR) permit program submissions to address the permit requirements of CAA, title I, part D. Section 110(a)(1) addresses the timing and general requirements for infrastructure SIP submissions, and section 110(a)(2) provides more details concerning the required contents of these submissions. The list of required elements provided in section 110(a)(2) contains a wide variety of disparate provisions, some of which pertain to required legal authority, some of which pertain to required substantive program provisions, and some of which pertain to requirements for both authority and substantive program provisions.\6\ EPA therefore believes that while the timing requirement in section 110(a)(1) is unambiguous, some of the other statutory provisions are ambiguous. In particular, EPA believes that the list of required elements for infrastructure SIP submissions provided in section 110(a)(2) contains ambiguities concerning what is required for inclusion in an infrastructure SIP submission. --------------------------------------------------------------------------- \6\ For example: Section 110(a)(2)(E)(i) provides that states must provide assurances that they have adequate legal authority under state and local law to carry out the SIP; section 110(a)(2)(C) provides that states must have a SIP-approved program to address certain sources as required by part C of title I of the CAA; and section 110(a)(2)(G) provides that states must have legal authority to address emergencies as well as contingency plans that are triggered in the event of such emergencies. --------------------------------------------------------------------------- The following examples of ambiguities illustrate the need for EPA to interpret some section 110(a)(1) and section 110(a)(2) requirements with respect to infrastructure SIP submissions for a given new or revised NAAQS. One example of ambiguity is that section 110(a)(2) requires that ``each'' SIP submission must meet the list of requirements therein, while EPA has long noted that this literal reading of the statute is internally inconsistent and would create a conflict with the nonattainment provisions in part D of title I of the Act, which specifically address nonattainment SIP requirements.\7\ Section 110(a)(2)(I) pertains to nonattainment SIP requirements and part D addresses when attainment plan SIP submissions to address nonattainment area requirements are due. For example, section 172(b) requires EPA to establish a schedule for submission of such plans for certain pollutants when the Administrator promulgates the designation of an area as nonattainment, and section 107(d)(1)(B) allows up to two years, or in some cases three years, for such designations to be promulgated.\8\ This ambiguity illustrates that rather than apply all the stated requirements of section 110(a)(2) in a strict literal sense, EPA must determine [[Page 6203]] which provisions of section 110(a)(2) are applicable for a particular infrastructure SIP submission. --------------------------------------------------------------------------- \7\ See, e.g., ``Rule To Reduce Interstate Transport of Fine Particulate Matter and Ozone (Clean Air Interstate Rule); Revisions to Acid Rain Program; Revisions to the NOx SIP Call; Final Rule,'' 70 FR 25162, at 25163--65 (May 12, 2005) (explaining relationship between timing requirement of section 110(a)(2)(D) versus section 110(a)(2)(I)). \8\ EPA notes that this ambiguity within section 110(a)(2) is heightened by the fact that various subparts of part D set specific dates for submission of certain types of SIP submissions in designated nonattainment areas for various pollutants. Note, e.g., that section 182(a)(1) provides specific dates for submission of emissions inventories for the ozone NAAQS. Some of these specific dates are necessarily later than three years after promulgation of the new or revised NAAQS. --------------------------------------------------------------------------- Another example of ambiguity within sections 110(a)(1) and 110(a)(2) with respect to infrastructure SIPs pertains to whether states must meet all of the infrastructure SIP requirements in a single SIP submission, and whether EPA must act upon such SIP submission in a single action. Although section 110(a)(1) directs states to submit ``a plan'' to meet these requirements, EPA interprets the CAA to allow states to make multiple SIP submissions separately addressing infrastructure SIP elements for the same NAAQS. If states elect to make such multiple SIP submissions to meet the infrastructure SIP requirements, EPA can elect to act on such submissions either individually or in a larger combined action.\9\ Similarly, EPA interprets the CAA to allow it to take action on the individual parts of one larger, comprehensive infrastructure SIP submission for a given NAAQS without concurrent action on the entire submission. For example, EPA has sometimes elected to act at different times on various elements and sub-elements of the same infrastructure SIP submission.\10\ --------------------------------------------------------------------------- \9\ See, e.g., ``Approval and Promulgation of Implementation Plans; New Mexico; Revisions to the New Source Review (NSR) State Implementation Plan (SIP); Prevention of Significant Deterioration (PSD) and Nonattainment New Source Review (NNSR) Permitting,'' 78 FR 4339 (January 22, 2013) (EPA's final action approving the structural PSD elements of the New Mexico SIP submitted by the State separately to meet the requirements of EPA's 2008 PM2.5 NSR rule), and ``Approval and Promulgation of Air Quality Implementation Plans; New Mexico; Infrastructure and Interstate Transport Requirements for the 2006 PM2.5 NAAQS,'' (78 FR 4337) (January 22, 2013) (EPA's final action on the infrastructure SIP for the 2006 PM2.5 NAAQS). \10\ On December 14, 2007, the State of Tennessee, through the Tennessee Department of Environment and Conservation, made a SIP revision to EPA demonstrating that the State meets the requirements of sections 110(a)(1) and (2). EPA proposed action for infrastructure SIP elements (C) and (J) on January 23, 2012 (77 FR 3213) and took final action on March 14, 2012 (77 FR 14976). On April 16, 2012 (77 FR 22533) and July 23, 2012 (77 FR 42997), EPA took separate proposed and final actions on all other section 110(a)(2) infrastructure SIP elements of Tennessee's December 14, 2007, submittal. --------------------------------------------------------------------------- Ambiguities within sections 110(a)(1) and 110(a)(2) may also arise with respect to infrastructure SIP submission requirements for different NAAQS. Thus, EPA notes that not every element of section 110(a)(2) would be relevant, or as relevant, or relevant in the same way, for each new or revised NAAQS. The states' attendant infrastructure SIP submissions for each NAAQS therefore could be different. For example, the monitoring requirements that a state might need to meet in its infrastructure SIP submission for purposes of section 110(a)(2)(B) could be very different for different pollutants because the content and scope of a state's infrastructure SIP submission to meet this element might be very different for an entirely new NAAQS than for a minor revision to an existing NAAQS.\11\ --------------------------------------------------------------------------- \11\ For example, implementation of the 1997 PM2.5 NAAQS required the deployment of a system of new monitors to measure ambient levels of that new indicator species for the new NAAQS. --------------------------------------------------------------------------- EPA notes that interpretation of section 110(a)(2) is also necessary when EPA reviews other types of SIP submissions required under the CAA. Therefore, as with infrastructure SIP submissions, EPA also has to identify and interpret the relevant elements of section 110(a)(2) that logically apply to these other types of SIP submissions. For example, section 172(c)(7) requires that attainment plan SIP submissions required by part D have to meet the ``applicable requirements'' of section 110(a)(2). Thus, for example, attainment plan SIP submissions must meet the requirements of section 110(a)(2)(A) regarding enforceable emission limits and control measures and section 110(a)(2)(E)(i) regarding air agency resources and authority. By contrast, it is clear that attainment plan SIP submissions required by part D would not need to meet the portion of section 110(a)(2)(C) that pertains to the PSD program required in part C of title I of the CAA, because PSD does not apply to a pollutant for which an area is designated nonattainment and is thus subject to part D planning requirements. As this example illustrates, each type of SIP submission may implicate some elements of section 110(a)(2) but not others. Given the potential for ambiguity in some of the statutory language of section 110(a)(1) and section 110(a)(2), EPA believes that it is appropriate to interpret the ambiguous portions of section 110(a)(1) and section 110(a)(2) in the context of acting on a particular SIP submission. In other words, EPA assumes that Congress could not have intended that each and every SIP submission, regardless of the NAAQS in question or the history of SIP development for the relevant pollutant, would meet each of the requirements, or meet each of them in the same way. Therefore, EPA has adopted an approach under which it reviews infrastructure SIP submissions against the list of elements in section 110(a)(2), but only to the extent each element applies for that particular NAAQS. Historically, EPA has elected to use guidance documents to make recommendations to states for infrastructure SIPs, in some cases conveying needed interpretations on newly arising issues and in some cases conveying interpretations that have already been developed and applied to individual SIP submissions for particular elements.\12\ EPA most recently issued guidance for infrastructure SIPs on September 13, 2013 (2013 Guidance). \13\ EPA developed this document to provide states with up-to-date guidance for infrastructure SIPs for any new or revised NAAQS. Within this guidance, EPA describes the duty of states to make infrastructure SIP submissions to meet basic structural SIP requirements within three years of promulgation of a new or revised NAAQS. EPA also made recommendations about many specific subsections of section 110(a)(2) that are relevant in the context of infrastructure SIP submissions.\14\ The guidance also discusses the substantively important issues that are germane to certain subsections of section 110(a)(2). Significantly, EPA interprets sections 110(a)(1) and 110(a)(2) such that infrastructure SIP submissions need to address certain issues and need not address others. Accordingly, EPA reviews each infrastructure SIP submission for compliance with the applicable statutory provisions of section 110(a)(2), as appropriate. --------------------------------------------------------------------------- \12\ EPA notes, however, that nothing in the CAA requires EPA to provide guidance or to promulgate regulations for infrastructure SIP submissions. The CAA directly applies to states and requires the submission of infrastructure SIP submissions, regardless of whether or not EPA provides guidance or regulations pertaining to such submissions. EPA elects to issue such guidance in order to assist states, as appropriate. \13\ ``Guidance on Infrastructure State Implementation Plan (SIP) Elements under Clean Air Act sections 110(a)(1) and 110(a)(2),'' Memorandum from Stephen D. Page, September 13, 2013. \14\ EPA's September 13, 2013, guidance did not make recommendations with respect to infrastructure SIP submissions to address section 110(a)(2)(D)(i)(I). EPA issued the guidance shortly after the U.S. Supreme Court agreed to review the DC Circuit decision in EME Homer City, 696 F.3d7 (D.C. Cir. 2012) which had interpreted the requirements of section 110(a)(2)(D)(i)(I). In light of the uncertainty created by ongoing litigation, EPA elected not to provide additional guidance on the requirements of section 110(a)(2)(D)(i)(I) at that time. As the guidance is neither binding nor required by statute, whether EPA elects to provide guidance on a particular section has no impact on a state's CAA obligations. --------------------------------------------------------------------------- As an example, section 110(a)(2)(E)(ii) is a required element of section 110(a)(2) for infrastructure SIP submissions. Under this element, a state must meet the substantive requirements of section 128, which pertain to state [[Page 6204]] boards that approve permits or enforcement orders and heads of executive agencies with similar powers. Thus, EPA reviews infrastructure SIP submissions to ensure that the state's implementation plan appropriately addresses the requirements of section 110(a)(2)(E)(ii) and section 128. The 2013 Guidance explains EPA's interpretation that there may be a variety of ways by which states can appropriately address these substantive statutory requirements, depending on the structure of an individual state's permitting or enforcement program (e.g., whether permits and enforcement orders are approved by a multi-member board or by a head of an executive agency). However they are addressed by the state, the substantive requirements of section 128 are necessarily included in EPA's evaluation of infrastructure SIP submissions because section 110(a)(2)(E)(ii) explicitly requires that the state satisfy the provisions of section 128. As another example, EPA's review of infrastructure SIP submissions with respect to the PSD program requirements in sections 110(a)(2)(C), (D)(i)(II), and (J) focuses upon the structural PSD program requirements contained in part C and EPA's PSD regulations. Structural PSD program requirements include provisions necessary for the PSD program to address all regulated sources and new source review (NSR) pollutants, including greenhouse gases (GHGs). By contrast, structural PSD program requirements do not include provisions that are not required under EPA's regulations at 40 CFR 51.166 but are merely available as an option for the state, such as the option to provide grandfathering of complete permit applications with respect to the 2012 fine particulate matter (PM2.5 ) NAAQS. Accordingly, the latter optional provisions are types of provisions EPA considers irrelevant in the context of an infrastructure SIP action. For other section 110(a)(2) elements, however, EPA's review of a state's infrastructure SIP submission focuses on assuring that the state's implementation plan meets basic structural requirements. For example, section 110(a)(2)(C) includes, inter alia, the requirement that states have a program to regulate minor new sources. Thus, EPA evaluates whether the state has an EPA-approved minor NSR program and whether the program addresses the pollutants relevant to that NAAQS. In the context of acting on an infrastructure SIP submission, however, EPA does not think it is necessary to conduct a review of each and every provision of a state's existing minor source program (i.e., already in the existing SIP) for compliance with the requirements of the CAA and EPA's regulations that pertain to such programs. With respect to certain other issues, EPA does not believe that an action on a state's infrastructure SIP submission is necessarily the appropriate type of action in which to address possible deficiencies in a state's existing SIP. These issues include: (i) Existing provisions related to excess emissions from sources during periods of startup, shutdown, or malfunction that may be contrary to the CAA and EPA's policies addressing such excess emissions (``SSM''); (ii) existing provisions related to ``director's variance'' or ``director's discretion'' that may be contrary to the CAA because they purport to allow revisions to SIP-approved emissions limits while limiting public process or not requiring further approval by EPA; and (iii) existing provisions for PSD programs that may be inconsistent with current requirements of EPA's ``Final NSR Improvement Rule,'' 67 FR 80186 (December 31, 2002), as amended by 72 FR 32526 (June 13, 2007) (``NSR Reform''). Thus, EPA believes it may approve an infrastructure SIP submission without scrutinizing the totality of the existing SIP for such potentially deficient provisions and may approve the submission even if it is aware of such existing provisions.\15\ It is important to note that EPA's approval of a state's infrastructure SIP submission should not be construed as explicit or implicit re-approval of any existing potentially deficient provisions that relate to the three specific issues just described. --------------------------------------------------------------------------- \15\ By contrast, EPA notes that if a state were to include a new provision in an infrastructure SIP submission that contained a legal deficiency, such as a new exemption for excess emissions during SSM events, then EPA would need to evaluate that provision for compliance against the rubric of applicable CAA requirements in the context of the action on the infrastructure SIP. --------------------------------------------------------------------------- EPA's approach to review of infrastructure SIP submissions is to identify the CAA requirements that are logically applicable to that submission. EPA believes that this approach to the review of a particular infrastructure SIP submission is appropriate, because it would not be reasonable to read the general requirements of section 110(a)(1) and the list of elements in 110(a)(2) as requiring review of each and every provision of a state's existing SIP against all requirements in the CAA and EPA regulations merely for purposes of assuring that the state in question has the basic structural elements for a functioning SIP for a new or revised NAAQS. Because SIPs have grown by accretion over the decades as statutory and regulatory requirements under the CAA have evolved, they may include some outmoded provisions and historical artifacts. These provisions, while not fully up to date, nevertheless may not pose a significant problem for the purposes of ``implementation, maintenance, and enforcement'' of a new or revised NAAQS when EPA evaluates adequacy of the infrastructure SIP submission. EPA believes that a better approach is for states and EPA to focus attention on those elements of section 110(a)(2) of the CAA most likely to warrant a specific SIP revision due to the promulgation of a new or revised NAAQS or other factors. For example, EPA's 2013 Guidance gives simpler recommendations with respect to carbon monoxide than other NAAQS pollutants to meet the visibility requirements of section 110(a)(2)(D)(i)(II), because carbon monoxide does not affect visibility. As a result, an infrastructure SIP submission for any future new or revised NAAQS for carbon monoxide need only state this fact in order to address the visibility prong of section 110(a)(2)(D)(i)(II). Finally, EPA believes that its approach with respect to infrastructure SIP requirements is based on a reasonable reading of sections 110(a)(1) and 110(a)(2) because the CAA provides other avenues and mechanisms to address specific substantive deficiencies in existing SIPs. These other statutory tools allow EPA to take appropriately tailored action, depending upon the nature and severity of the alleged SIP deficiency. Section 110(k)(5) authorizes EPA to issue a ``SIP call'' whenever the Agency determines that a state's implementation plan is substantially inadequate to attain or maintain the NAAQS, to mitigate interstate transport, or to otherwise comply with the CAA.\16\ Section 110(k)(6) authorizes EPA to correct errors in past actions, such as past approvals of SIP submissions.\17\ [[Page 6205]] Significantly, EPA's determination that an action on a state's infrastructure SIP submission is not the appropriate time and place to address all potential existing SIP deficiencies does not preclude EPA's subsequent reliance on provisions in section 110(a)(2) as part of the basis for action to correct those deficiencies at a later time. For example, although it may not be appropriate to require a state to eliminate all existing inappropriate director's discretion provisions in the course of acting on an infrastructure SIP submission, EPA believes that section 110(a)(2)(A) may be among the statutory bases that EPA relies upon in the course of addressing such deficiency in a subsequent action.\18\ --------------------------------------------------------------------------- \16\ For example, EPA issued a SIP call to Utah to address specific existing SIP deficiencies related to the treatment of excess emissions during SSM events. See ``Finding of Substantial Inadequacy of Implementation Plan; Call for Utah State Implementation Plan Revisions,'' 74 FR 21639 (April 18, 2011). \17\ EPA has used this authority to correct errors in past actions on SIP submissions related to PSD programs. See ``Limitation of Approval of Prevention of Significant Deterioration Provisions Concerning Greenhouse Gas Emitting-Sources in State Implementation Plans; Final Rule,'' 75 FR 82536 (December 30, 2010). EPA has previously used its authority under CAA section 110(k)(6) to remove numerous other SIP provisions that the Agency determined it had approved in error. See, e.g., 61 FR 38664 (July 25, 1996) and 62 FR 34641 (June 27, 1997) (corrections to American Samoa, Arizona, California, Hawaii, and Nevada SIPs); 69 FR 67062 (November 16, 2004) (corrections to California SIP); and 74 FR 57051 (November 3, 2009) (corrections to Arizona and Nevada SIPs). \18\ See, e.g., EPA's disapproval of a SIP submission from Colorado on the grounds that it would have included a director's discretion provision inconsistent with CAA requirements, including section 110(a)(2)(A). See, e.g., 75 FR 42342 at 42344 (July 21, 2010) (proposed disapproval of director's discretion provisions); 76 FR 4540 (Jan. 26, 2011) (final disapproval of such provisions). --------------------------------------------------------------------------- IV. What is EPA's analysis of how Georgia addressed the elements of sections 110(a)(1) and (2) ``Infrastructure'' provisions? The Georgia 2010 1-hour SO2 infrastructure submissions address the provisions of sections 110(a)(1) and (2) as described below. 1. 110(a)(2)(A): Emission Limits and Other Control Measures: Section 110(a)(2)(A) requires that each implementation plan include enforceable emission limitations and other control measures, means, or techniques (including economic incentives such as fees, marketable permits, and auctions of emissions rights), as well as schedules and timetables for compliance, as may be necessary or appropriate to meet the applicable requirements. Several regulations within Georgia's SIP are relevant to air quality control regulations. The following State regulations include enforceable emission limitations and other control measures: 391-3-1-.01, ``Definitions. Amended.'', 391-3-1-.02, ``Provisions. Amended.'', and 391-3-1-.03, ``Permits. Amended.'' These regulations collectively establish enforceable emissions limitations and other control measures, means or techniques for activities that contribute to SO2 concentrations in the ambient air, and provide authority for GAEPD to establish such limits and measures as well as schedules for compliance through SIP-approved permits to meet the applicable requirements of the CAA. EPA has made the preliminary determination that the provisions contained in these State rules are adequate to protect the 2010 1-hour SO2 NAAQS in the State. In this action, EPA is not proposing to approve or disapprove any existing state provisions with regard to excess emissions during start up, shut down, and malfunction (SSM) operations at a facility. EPA believes that a number of states have SSM provisions which are contrary to the CAA and existing EPA guidance, ``State Implementation Plans: Policy Regarding Excess Emissions During Malfunctions, Startup, and Shutdown'' (September 20, 1999), and the Agency is addressing such state regulations in a separate action.\19\ --------------------------------------------------------------------------- \19\ On June 12, 2015, EPA published a final action entitled, ``State Implementation Plans: Response to Petition for Rulemaking; Restatement and Update of EPA's SSM Policy Applicable to SIPs; Findings of Substantial Inadequacy; and SIP Calls to Amend Provisions Applying to Excess Emissions During Periods of Startup, Shutdown, and Malfunction.'' See 80 FR 33840. --------------------------------------------------------------------------- Additionally, in this action, EPA is not proposing to approve or disapprove any existing state rules with regard to director's discretion or variance provisions. EPA believes that a number of states have such provisions which are contrary to the CAA and existing EPA guidance (52 FR 45109 (November 24, 1987)), and the Agency plans to take action in the future to address such state regulations. In the meantime, EPA encourages any state having a director's discretion or variance provision which is contrary to the CAA and EPA guidance to take steps to correct the deficiency as soon as possible. 2. 110(a)(2)(B) Ambient Air Quality Monitoring/Data System: Section 110(a)(2)(B) requires SIPs to provide for establishment and operation of appropriate devices, methods, systems, and procedures necessary to (i) monitor, compile, and analyze data on ambient air quality, and (ii) upon request, make such data available to the Administrator. Georgia's authority to monitor ambient air quality is found in the Georgia Air Quality Act Article 1: Air Quality (O.C.G.A. Section 12-9-6(b)(13)). Annually, states develop and submit to EPA for approval statewide ambient monitoring network plans consistent with the requirements of 40 CFR parts 50, 53, and 58. The annual network plan involves an evaluation of any proposed changes to the monitoring network, includes the annual ambient monitoring network design plan, and includes a certified evaluation of the agency's ambient monitors and auxiliary support equipment.\20\ On June 15, 2015, EPA received Georgia's plan for 2015. On October 13, 2015, EPA approved Georgia's monitoring network plan. Georgia's approved monitoring network plan can be accessed at www.regulations.gov using Docket ID No. EPA-R04-OAR-2015- 0152. This State statute, along with Georgia's Ambient Air Monitoring Network Plan, provide for the establishment and operation of ambient air quality monitors, the compilation and analysis of ambient air quality data, and the submission of these data to EPA upon request. No specific statutory or regulatory authority is necessary for GAEPD to authorize data analysis or the submission of such data to EPA, and to provide data submissions in response to Federal regulations. EPA has made the preliminary determination that Georgia's SIP and practices are adequate for the ambient air quality monitoring and data system requirements related to the 2010 1-hour SO2 NAAQS. --------------------------------------------------------------------------- \20\ On occasion, proposed changes to the monitoring network are evaluated outside of the network plan approval process in accordance with 40 CFR part 58. --------------------------------------------------------------------------- 3. 110(a)(2)(C) Programs for Enforcement of Control Measures and for Construction or Modification of Stationary Sources: This element consists of three sub-elements: enforcement, state-wide regulation of new and modified minor sources and minor modifications of major sources, and preconstruction permitting of major sources and major modifications in areas designated attainment or unclassifiable for the subject NAAQS as required by CAA title I part C (i.e., the major source PSD program). Enforcement: GAEPD's Enforcement Program covers mobile and stationary sources, consumer products, and fuels. The enforcement requirements are met through two Georgia Rules for Air Quality: 391-3- 1-.07--``Inspections and Investigations. Amended.'' and 391-3-1-.09-- ``Enforcement. Amended.'' Georgia also cites to enforcement authority found in Georgia Air Quality Act Article 1: Air Quality (O.C.G.A. Section 12-9-13) in its submittal. Collectively, these regulations and State statute provide for enforcement of SO2 emission limits and control measures. PSD Permitting for Major Sources: EPA interprets the PSD sub- element to require that a state's infrastructure SIP submission for a particular NAAQS demonstrate that the state has a complete PSD permitting program in place covering the structural PSD [[Page 6206]] requirements for all regulated NSR pollutants. A state's PSD permitting program is complete for this sub-element (and prong 3 of D(i) and J related to PSD) if EPA has already approved or is simultaneously approving the state's implementation plan with respect to all structural PSD requirements that are due under the EPA regulations or the CAA on or before the date of the EPA's proposed action on the infrastructure SIP submission. The following Georgia Rules for Air Quality collectively establish a preconstruction, new source permitting program in the State that meets the PSD requirements of the CAA for SO2 emissions sources: 391-3-1-.02.--``Provisions. Amended,'' which includes PSD requirements under 391-3-1-.02(7), and 391-3-1-.03.--``Permits. Amended,'' which includes Nonattainment New Source Review (NNSR) requirements under 391-3-1-.03(8)(c) and (g). Georgia's infrastructure SIP demonstrates that new major sources and major modifications in areas of the State designated attainment or unclassifiable for the specified NAAQS are subject to a federally- approved PSD permitting program meeting all the current structural requirements of part C of title I of the CAA to satisfy the infrastructure SIP PSD elements.\21\ --------------------------------------------------------------------------- \21\ For more information on the structural PSD program requirements that are relevant to EPA's review of infrastructure SIPs in connection with the current PSD-related infrastructure SIP requirements, see the technical support document in the docket for this rulemaking. --------------------------------------------------------------------------- Regulation of minor sources and modifications: Section 110(a)(2)(C) also requires the SIP to include provisions that govern the minor source program that regulates emissions of the 2010 1-hour SO2 NAAQS. Georgia's SIP approved Air Quality Control Rule 391-3-1-.03(1)--``Construction (SIP) Permit.'' governs the preconstruction permitting of modifications, construction of minor stationary sources, and minor modifications of major stationary sources. EPA has made the preliminary determination that Georgia's SIP is adequate for program enforcement of control measures, PSD permitting for major sources, and regulation of new and modified minor sources related to the 2010 1-hour SO2 NAAQS. 4. 110(a)(2)(D)(i)(I) and (II) Interstate Pollution Transport: Section 110(a)(2)(D)(i) has two components: 110(a)(2)(D)(i)(I) and 110(a)(2)(D)(i)(II). Each of these components has two subparts resulting in 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), are provisions that 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 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 to protect visibility in another state (``prong 4''). 110(a)(2)(D)(i)(I)--prongs 1 and 2: EPA is not proposing any action in this rulemaking related to the interstate transport provisions pertaining to the contribution to nonattainment or interference with maintenance in other states of section 110(a)(2)(D)(i)(I) (prongs 1 and 2) because Georgia's 2010 1-hour SO2 NAAQS infrastructure submissions did not address prongs 1 and 2. 110(a)(2)(D)(i)(II)--prong 3: With regard to section 110(a)(2)(D)(i)(II), the PSD element, referred to as prong 3, this requirement may be met by a state's confirmation in an infrastructure SIP submission that new major sources and major modifications in the state are subject to: a PSD program meeting all the current structural requirements of part C of title I of the CAA, or (if the state contains a nonattainment area that has the potential to impact PSD in another state) to a NNSR program. As discussed in more detail above under section 110(a)(2)(C), Georgia's SIP contains provisions for the State's PSD program that reflects the relevant SIP revisions pertaining to the required structural PSD requirements to satisfy the requirement of prong 3 of section 110(a)(2)(D)(i)(II). Georgia addresses prong 3 through rules 391-3-1-.02.--``Provisions. Amended,'' and 391-3-1-.03.-- ``Permits. Amended,'' which include the PSD and NNSR requirements, respectively. EPA has made the preliminary determination that Georgia's SIP is adequate for interstate transport for PSD permitting of major sources and major modifications related to the 2010 1-hour SO2 NAAQS for section 110(a)(2)(D)(i)(II) (prong 3). 110(a)(2)(D)(i)(II)--prong 4: EPA is not proposing any action in this rulemaking related to the interstate transport provisions pertaining to the contribution to nonattainment or interference with maintenance in other states of section 110(a)(2)(D)(i)(II) (prong 4) and will consider these requirements in relation to Georgia's 2010 1- hour SO2 NAAQS infrastructure submissions in a separate rulemaking. 5. 110(a)(2)(D)(ii): Interstate Pollution Abatement and International Air Pollution: Section 110(a)(2)(D)(ii) requires SIPs to include provisions ensuring compliance with sections 115 and 126 of the Act, relating to interstate and international pollution abatement. The following two Georgia Rules for Air Quality provide Georgia the authority to conduct certain actions in support of this infrastructure element: 391-3-1-.02(7) for the State's PSD regulation and 391-3-1-.03 for the State's permitting regulations. As described above, Georgia Rules for Air Quality 391-3-1-.02.--``Provisions. Amended,'' and 391-3- 1-.03.--``Permits. Amended,'' collectively require any new major source or major modification to undergo PSD or NNSR permitting and thereby provide notification to other potentially affected Federal, state, and local government agencies. Additionally, Georgia does not have any pending obligation under section 115 and 126 of the CAA. EPA has made the preliminary determination that Georgia's SIP and practices are adequate for ensuring compliance with the applicable requirements relating to interstate and international pollution abatement for the 2010 1-hour SO2 NAAQS. 6. 110(a)(2)(E) Adequate Resources and Authority, Conflict of Interest, and Oversight of Local Governments and Regional Agencies: Section 110(a)(2)(E) requires that each implementation plan provide (i) necessary assurances that the state will have adequate personnel, funding, and authority under state law to carry out its implementation plan, (ii) that the state comply with the requirements respecting state boards pursuant to section 128 of the Act, and (iii) necessary assurances that, where the state has relied on a local or regional government, agency, or instrumentality for the implementation of any plan provision, the state has responsibility for ensuring adequate implementation of such plan provisions. EPA's analysis of sub-elements 110(a)(2)(E)(i), (ii), and (iii) is described below. In support of EPA's proposal to approve sub-elements 110(a)(2)(E)(i) and (iii), GAEPD's infrastructure SIP demonstrates that it is responsible for promulgating rules and regulations for the NAAQS, emissions standards and general policies, a system of permits, fee schedules for the review of plans, and other planning needs. In its SIP submittal, Georgia describes its authority for Section 110(a)(2)(E)(i) as the CAA section l05 grant process, the [[Page 6207]] Georgia Air Quality Act Article 1: Air Quality (O.C.G.A. 12-9-10), and Georgia Rule for Air Quality 391-3-1-.03(9) which establishes Georgia's Air Permit Fee System. For Section 110(a)(2)(E)(iii), the State does not rely on localities in Georgia for specific SIP implementation. Georgia's authority for this infrastructure element relating to local or regional implementation of SIP provisions is found in Georgia Air Quality Act Article 1: Air Quality (O.C.G.A. Section 12-9-5(b)(17)). As evidence of the adequacy of GAEPD's resources with respect to sub- elements (i) and (iii), EPA submitted a letter to Georgia on March 20, 2015, outlining CAA section 105 grant commitments and the current status of these commitments for fiscal year 2014. The letter EPA submitted to GAEPD can be accessed at www.regulations.gov using Docket ID No. EPA-R04-OAR-2015-0152. Annually, states update these grant commitments based on current SIP requirements, air quality planning, and applicable requirements related to the NAAQS. There were no outstanding issues in relation to the SIP for fiscal year 2014, therefore, GAEPD's grants were finalized and closed out. In addition, the requirements of 110(a)(2)(E)(i) and (iii) are met when EPA performs a completeness determination for each SIP submittal. This determination ensures that each submittal provides evidence that adequate personnel, funding, and legal authority under state law has been used to carry out the state's implementation plan and related issues. GAEPD's authority is included in all prehearing and final SIP submittal packages for approval by EPA. GAEPD is responsible for submitting all revisions to the Georgia SIP to EPA for approval. EPA has made the preliminary determination that Georgia has adequate resources for implementation of the 2010 1-hour SO2 NAAQS. Section 110(a)(2)(E)(ii) requires that the state comply with section 128 of the CAA. Section 128 requires that the SIP provide: (1) the majority of members of the state board or body which approves permits or enforcement orders represent the public interest and do not derive any significant portion of their income from persons subject to permitting or enforcement orders under the CAA; and (2) any potential conflicts of interest by such board or body, or the head of an executive agency with similar powers be adequately disclosed. With respect to the requirements of section 110(a)(2)(E)(ii) pertaining the state board requirements of CAA section 128, Georgia's infrastructure SIP submission cites Georgia Air Quality Act Article 1: Air Quality (O.C.G.A. Section 12-9-5) Powers and duties of Board of Natural Resources as to air quality generally) which provides the powers and duties of the Board of Natural Resources as to air quality and provides that at least a majority of members of this board represent the public interest and not derive any significant portion of income from persons subject to permits or enforcement orders and that potential conflicts of interest will be adequately disclosed. This provision has been incorporated into the federally approved SIP. EPA has made the preliminary determination that the State has adequately addressed the requirements of section 128(a), and accordingly has met the requirements of section 110(a)(2)(E)(ii) with respect to infrastructure SIP requirements. Therefore, EPA is proposing to approve GAEPD's infrastructure SIP submissions as meeting the requirements of sub-elements 110(a)(2)(E)(i), (ii) and (iii). 7. 110(a)(2)(F) Stationary Source Monitoring and Reporting: Section 110(a)(2)(F) requires SIPs to meet applicable requirements addressing: (i) the installation, maintenance, and replacement of equipment, and the implementation of other necessary steps, by owners or operators of stationary sources to monitor emissions from such sources, (ii) periodic reports on the nature and amounts of emissions and emissions related data from such sources, and (iii) correlation of such reports by the state agency with any emission limitations or standards established pursuant to this section, which reports shall be available at reasonable times for public inspection. GAEPD's SIP submissions identify how the major source and minor source emission inventory programs collect emission data throughout the State and ensure the quality of such data. These data are used to compare against current emission limits and to meet requirements of EPA's Air Emissions Reporting Rule (AERR). The following State rules enable Georgia to meet the requirements of this element: Georgia Rule for Air Quality 391-3- 1-.02(3)--``Sampling.'' \22\; 391-3-1-.02(6)(b)--``Source Monitoring.''; 391-3-1-.02(7)--``Prevention of Significant Deterioration of Air Quality.''; 391-3-1-.02(8)--``New Source Performance Standards.''; 391-3-1-.02(9)--``Emission Standards for Hazardous Air Pollutants.''; 391-3-1-.02(11)--``Compliance Assurance Monitoring.''; and 391-3-1-.03--``Permits. Amended.'' Also, the Georgia Air Quality Act Article I: Air Quality (O.C.G.A. 12-9-5(b)(6)) provides the State with the authority to conduct actions regarding stationary source emissions monitoring and reporting in support of this infrastructure element. These rules collectively require emissions monitoring and reporting for activities that contribute to SO2 concentrations in the air, including requirements for the installation, calibration, maintenance, and operation of equipment for continuously monitoring or recording emissions, or provide authority for GAEPD to establish such emissions monitoring and reporting requirements through SIP-approved permits and require reporting of SO2 emissions. --------------------------------------------------------------------------- \22\ Georgia Rule for Air Quality 391-3-1-.02(3)--``Sampling.'' is not approved into Georgia's federally-approved SIP. --------------------------------------------------------------------------- Additionally, Georgia is required to submit emissions data to EPA for purposes of the National Emissions Inventory (NEI). The NEI is EPA's central repository for air emissions data. EPA published the AERR on December 5, 2008, which modified the requirements for collecting and reporting air emissions data (73 FR 76539). The AERR shortened the time states had to report emissions data from 17 to 12 months, giving states one calendar year to submit emissions data. All states are required to submit a comprehensive emissions inventory every three years and report emissions for certain larger sources annually through EPA's online Emissions Inventory System. States report emissions data for the six criteria pollutants and their associated precursors--NOX , SO2 , ammonia, lead, carbon monoxide, particulate matter, and volatile organic compounds. Many states also voluntarily report emissions of hazardous air pollutants. Georgia made its latest update to the 2011 NEI on December 12, 2014. EPA compiles the emissions data, supplementing it where necessary, and releases it to the general public through the Web site http://www.epa.gov/ttn/chief/eiinformation.html. EPA has made the preliminary determination that Georgia's SIP and practices are adequate for the stationary source monitoring systems related to the 1-hour SO2 NAAQS. Accordingly, EPA is proposing to approve Georgia's infrastructure SIP submission with respect to section 110(a)(2)(F). Georgia Rule for Air Quality 391-3-1-.02(3), ``Sampling,'' \23\ addresses the use [[Page 6208]] of credible evidence.\24\ EPA is unaware of any provision preventing the use of credible evidence in the Georgia SIP. --------------------------------------------------------------------------- \23\ Georgia Rule for Air Quality 391-3-1-.02(3)--``Sampling.'' is not approved into Georgia's federally-approved SIP. \24\ ``Credible Evidence,'' makes allowances for owners and/or operators to utilize ``any credible evidence or information relevant'' to demonstrate compliance with applicable requirements if the appropriate performance or compliance test had been performed, for the purpose of submitting compliance certification, and can be used to establish whether or not an owner or operator has violated or is in violation of any rule or standard. --------------------------------------------------------------------------- 8. 110(a)(2)(G) Emergency Powers: Section 110(a)(2)(G) of the Act requires that states demonstrate authority comparable with section 303 of the CAA and adequate contingency plans to implement such authority. Georgia's infrastructure SIP submissions cite air pollution emergency episodes and preplanned abatement strategies in the Georgia Air Quality Act: Article 1: Air Quality (O.C.G.A. Sections 12-9-2 Declaration of public policy, 12-9-6 Powers and duties of director as to air quality generally, 12-9-12 Injunctive relief, 12-9-13 Proceedings for enforcement, and 12-9-14 Powers of director in situations involving imminent and substantial danger to public health), and Rule 391-3-1-.04 ``Air Pollution Episodes.'' O.C.G.A. Section 12-9-2 provides ``[i]t is declared to be the public policy of the state of Georgia to preserve, protect, and improve air quality . . . to attain and maintain ambient air quality standards so as to safeguard the public health, safety, and welfare.'' O.C.G.A. Section 12-9-6(b)(10) provides the Director of GAEPD authority to ``issue orders as may be necessary to enforce compliance with [the Georgia Air Quality Act Article 1: Air Quality (O.C.G.A)] and all rules and regulations of this article.'' O.C.G.A. Section 12-9-12 provides that ``[w]henever in the judgment of the director any person has engaged in or is about to engage in any act or practice which constitutes or will constitute an unlawful action under [the Georgia Air Quality Act Article 1: Air Quality (O.C.G.A)], he may make application to the superior court of the county in which the unlawful act or practice has been or is about to be engaged in, or in which jurisdiction is appropriate, for an order enjoining such act or practice or for an order requiring compliance with this article. Upon a showing by the director that such person has engaged in or is about to engage in any such act or practice, a permanent or temporary injunction, restraining order, or other order shall be granted without the necessity of showing lack of an adequate remedy of law.'' O.C.G.A. Section 12-19-13 specifically pertains to enforcement proceedings when the Director of GAEPD has reason to believe that a violation of any provision of the Georgia Air Quality Act Article 1: Air Quality (O.C.G.A), or environmental rules, regulations or orders have occurred. O.C.G.A. Section 12-9-14 also provides that the Governor may issue orders as necessary to protect the health of persons who are, or may be, affected by a pollution source or facility after ``consult[ation] with local authorities in order to confirm the correctness of the information on which action proposed to be taken is based and to ascertain the action which such authorities are or will be taking.'' Rule 391-3-1-.04 ``Air Pollution Episodes'' provides that the Director of GAEPD ``will proclaim that an Air Pollution Alert, Air Pollution Warning, or Air Pollution Emergency exists when the meteorological conditions are such that an air stagnation condition is in existence and/or the accumulation of air contaminants in any place is attaining or has attained levels which could, if such levels are sustained or exceeded, lead to a substantial threat to the health of persons in the specific area affected.'' Collectively the cited provisions provide that GAEPD demonstrates authority comparable with section 303 of the CAA and adequate contingency plans to implement such authority in the State. EPA has made the preliminary determination that Georgia's SIP, and State laws are adequate for emergency powers related to the 2010 1-hour SO2 NAAQS. Accordingly, EPA is proposing to approve Georgia's infrastructure SIP submission with respect to section 110(a)(2)(G). 9. 110(a)(2)(H) SIP Revisions: Section 110(a)(2)(H), in summary, requires each SIP to provide for revisions of such plan (i) as may be necessary to take account of revisions of such national primary or secondary ambient air quality standard or the availability of improved or more expeditious methods of attaining such standard, and (ii) whenever the Administrator finds that the plan is substantially inadequate to attain the NAAQS or to otherwise comply with any additional applicable requirements. GAEPD is responsible for adopting air quality rules and revising SIPs as needed to attain or maintain the NAAQS in Georgia. The State has the ability and authority to respond to calls for SIP revisions, and has provided a number of SIP revisions over the years for implementation of the NAAQS. Georgia has no areas that have been designated as nonattainment for the 2010 1-hour SO2 NAAQS. See 78 FR 47191 (August 5, 2013). The Georgia Air Quality Act Article 1: Air Quality (O.C.G.A. Section 12-9-6(b)(12) and 12-9-6(b)(13)) provide Georgia the authority to conduct certain actions in support of this infrastructure element. Section 12-9-6(b)(l2) of the Georgia Air Quality Act requires GAEPD to submit SIP revisions whenever revised air quality standards are promulgated by EPA. EPA has made the preliminary determination that Georgia adequately demonstrates a commitment to provide future SIP revisions related to the 2010 1-hour SO2 NAAQS when necessary. Accordingly, EPA is proposing to approve Georgia's infrastructure SIP submission for the 2010 1-hour SO2 NAAQS with respect to section 110(a)(2)(H). 10. 110(a)(2)(J) Consultation with Government Officials, Public Notification, and PSD and Visibility Protection: EPA is proposing to approve Georgia's infrastructure SIP submission for the 2010 1-hour SO2 NAAQS with respect to the general requirement in section 110(a)(2)(J) to include a program in the SIP that complies with the applicable consultation requirements of section 121, the public notification requirements of section 127, PSD and visibility protection. EPA's rationale for applicable consultation requirements of section 121, the public notification requirements of section 127, PSD, and visibility is described below. Consultation with government officials (121 consultation): Section 110(a)(2)(J) of the CAA requires states to provide a process for consultation with local governments, designated organizations, and Federal Land Managers carrying out NAAQS implementation requirements pursuant to section 121 relative to consultation. The following State rules and statutes, as well as the State's Regional Haze Implementation Plan (which allows for consultation between appropriate state, local, and tribal air pollution control agencies as well as the corresponding Federal Land Managers), provide for consultation with government officials whose jurisdictions might be affected by SIP development activities: Georgia Air Quality Act Article 1: Air Quality (O.C.G.A. Section 12-9-5(b)(17)); Georgia Administrative Procedures Act (O.C.G.A. Sec. 50-13-4); and Georgia Rule 391-3-1-.02(7) as it relates to Class I areas. Section 12-9-5(b)(l7) of the Georgia Air Quality Act states that the DNR Board is to ``establish satisfactory processes of consultation and cooperation with local governments or other designated organizations of elected officials or federal agencies for the purpose of planning, implementing, and determining requirements under this article to the extent required by the federal act.'' [[Page 6209]] Additionally, Georgia adopted state-wide consultation procedures for the implementation of transportation conformity which includes the development of mobile inventories for SIP development.\25\ These consultation procedures were developed in coordination with the transportation partners in the State and are consistent with the approaches used for development of mobile inventories for SIPs. Required partners covered by Georgia's consultation procedures include Federal, state and local transportation and air quality agency officials. EPA has made the preliminary determination that Georgia's SIP and practices adequately demonstrate consultation with government officials related to the 2010 1-hour SO2 NAAQS when necessary. Accordingly, EPA is proposing to approve Georgia's infrastructure SIP submission with respect to section 110(a)(2)(J) consultation with government officials. --------------------------------------------------------------------------- \25\ Georgia rule 391-3-1-.15, Georgia Transportation Conformity and Consultation Interagency Rule, is approved into the State's SIP. See 77 FR 35866. --------------------------------------------------------------------------- Public notification (127 public notification): GAEPD has public notice mechanisms in place to notify the public of instances or areas exceeding the NAAQS along with associated health effects through the Air Quality Index reporting system in required areas. GAEPD's Ambient Monitoring Web page (www.georgiaair.org/amp) provides information regarding current and historical air quality across the State. Daily air quality forecasts may be disseminated to the public in Atlanta through the Georgia Department of Transportation's electronic billboards. In its SIP submission, Georgia also notes that the non- profit organization in Georgia, ``Clean Air Campaign,'' disseminates statewide air quality information and ways to reduce air pollution. Georgia rule 391-3-1-.04 ``Air Pollution Episodes'' enables the State to conduct certain actions in support of this infrastructure element. In addition, the following State statutes provide Georgia the authority to conduct certain actions in support of this infrastructure element. OCGA 12-9-6(b)(8) provides authority to the Georgia Board of Natural Resources ``To collect and disseminate information and to provide for public notification in matters relating to air quality. . .''. EPA has made the preliminary determination that Georgia's SIP and practices adequately demonstrate the State's ability to provide public notification related to the 2010 1-hour SO2 NAAQS when necessary. Accordingly, EPA is proposing to approve Georgia's infrastructure SIP submission with respect to section 110(a)(2)(J) public notification. PSD: With regard to the PSD element of section 110(a)(2)(J), this requirement may be met by a state's confirmation in an infrastructure SIP submission that new major sources and major modifications in the state are subject to a PSD program meeting all the current structural requirements of part C of title I of the CAA. As discussed in more detail above under section 110(a)(2)(C), Georgia's SIP contains provisions for the State's PSD program that reflect the relevant SIP revisions pertaining to the required structural PSD requirements to satisfy the requirement of the PSD element of section 110(a)(2)(J). EPA has made the preliminary determination that Georgia's SIP and practices are adequate PSD permitting of major sources and major modifications related to the 2010 1-hour SO2 NAAQS for the PSD element of section 110(a)(2)(J). Visibility protection: EPA's 2013 Guidance notes that it does not treat the visibility protection aspects of section 110(a)(2)(J) as applicable for purposes of the infrastructure SIP approval process. EPA recognizes that states are subject to visibility protection and regional haze program requirements under part C of the Act (which includes sections 169A and 169B). However, there are no newly applicable visibility protection obligations after the promulgation of a new or revised NAAQS. Thus, EPA has determined that states do not need to address the visibility component of 110(a)(2)(J) in infrastructure SIP submittals to fulfill its obligations under section 110(a)(2)(J). As such, EPA has made the preliminary determination that it does not need to address the visibility protection element of section 110(a)(2)(J) in Georgia's infrastructure SIP submission related to the 2010 1-hour SO2 NAAQS. 11. 110(a)(2)(K) Air Quality Modeling and Submission of Modeling Data: Section 110(a)(2)(K) of the CAA requires that SIPs provide for performing air quality modeling so that effects on air quality of emissions from NAAQS pollutants can be predicted and submission of such data to the EPA can be made. The Georgia Air Quality Act Article 1: Air Quality (O.C.G.A. Section 12-9-6(b)(13)) provides GAEPD the authority to conduct modeling actions and to submit air quality modeling data to EPA in support of this element. GAEPD maintains personnel with training and experience to conduct source-oriented dispersion modeling with models such as AERMOD that would likely be used for modeling SO2 emissions from sources. The State also notes that its SIP-approved PSD program, which includes specific (dispersion) modeling provisions, provides further support of GAEPD's ability to address this element. All such modeling is conducted in accordance with the provisions of 40 CFR part 51, Appendix W, ``Guideline on Air Quality Models.'' Additionally, Georgia supports a regional effort to coordinate the development of emissions inventories and conduct regional modeling for several NAAQS, including the 2010 1-hour SO2 NAAQS, for the Southeastern states. Taken as a whole, Georgia's air quality regulations and practices demonstrate that GAEPD has the authority to provide relevant data for the purpose of predicting the effect on ambient air quality of the 1-hour SO2 NAAQS. EPA has made the preliminary determination that Georgia's SIP and practices adequately demonstrate the State's ability to provide for air quality and modeling, along with analysis of the associated data, related to the 2010 1-hour SO2 NAAQS. Accordingly, EPA is proposing to approve Georgia's infrastructure SIP submission with respect to section 110(a)(2)(K). 12. 110(a)(2)(L) Permitting Fees: Section 110(a)(2)(L) requires the owner or operator of each major stationary source to pay to the permitting authority, as a condition of any permit required under the CAA, a fee sufficient to cover (i) the reasonable costs of reviewing and acting upon any application for such a permit, and (ii) if the owner or operator receives a permit for such source, the reasonable costs of implementing and enforcing the terms and conditions of any such permit (not including any court costs or other costs associated with any enforcement action), until such fee requirement is superseded with respect to such sources by the Administrator's approval of a fee program under title V. Georgia's PSD and NNSR permitting programs are funded with title V fees. The Georgia Rule for Air Quality 391-3-1-.03(9) ``Permit Fees.'' incorporates the EPA-approved title V fee program and fees for synthetic minor sources. Georgia's authority to mandate funding for processing PSD and NNSR permits is found in Georgia Air Quality Act Article 1: Air Quality (O.C.G.A. 12-9-10). The State notes that these title V operating program fees cover the reasonable cost of implementation and enforcement of PSD and NNSR permits after they have been issued. EPA has made the preliminary determination that Georgia's SIP and practices adequately provide for permitting fees related to the [[Page 6210]] 2010 1-hour SO2 NAAQS, when necessary. Accordingly, EPA is proposing to approve Georgia's infrastructure SIP submission with respect to section 110(a)(2)(L). 13. 110(a)(2)(M) Consultation/participation by affected local entities: Section 110(a)(2)(M) of the Act requires states to provide for consultation and participation in SIP development by local political subdivisions affected by the SIP. Consultation and participation by affected local entities is authorized by the Georgia Air Quality Act: Article 1: Air Quality (O.C.G.A. 12-9-5(b)(17)) and the Georgia Rule for Air Quality 391-3-1-.15--``Transportation Conformity'', which defines the consultation procedures for areas subject to transportation conformity. Furthermore, GAEPD has demonstrated consultation with, and participation by, affected local entities through its work with local political subdivisions during the developing of its Transportation Conformity SIP and has worked with the Federal Land Managers as a requirement of the regional haze rule. EPA has made the preliminary determination that Georgia's SIP and practices adequately demonstrate consultation with affected local entities related to the 2010 1-hour SO2 NAAQS when necessary. V. Proposed Action With the exception of interstate transport provisions pertaining to the contribution to nonattainment or interference with maintenance in other states and visibility protection requirements of section 110(a)(2)(D)(i)(I) and (II) (prongs 1, 2, and 4), EPA is proposing to approve Georgia's October 22, 2013, SIP submission as supplemented on July 25, 2014, for the 2010 1-hour SO2 NAAQS for the above described infrastructure SIP requirements. EPA is proposing to approve Georgia's infrastructure SIP submission for the 2010 1-hour SO2 NAAQS because the submission is consistent with section 110 of the CAA. VI. 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. 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 CAA; and does not provide EPA with the discretionary authority to address, as appropriate, disproportionate human health or environmental effects, using practicable and legally permissible methods, under Executive Order 12898 (59 FR 7629, February 16, 1994). In addition, 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 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. List of Subjects in 40 CFR Part 52 Environmental protection, Air pollution control, Incorporation by reference, Intergovernmental relations, Nitrogen dioxide, Ozone, Reporting and recordkeeping requirements, Volatile organic compounds. Authority: 42 U.S.C. 7401 et seq. Dated: January 12, 2016. Heather McTeer Toney, Regional Administrator, Region 4. [FR Doc. 2016-02303 Filed 2-4-16; 8:45 am] BILLING CODE 6560-50-P
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(1) An operational Draft Information a minimum of 2 well rested crew and exercise extreme caution when entering
System (DIS) approved by a member of members on deck during the lockage. or exiting locks to ensure that the vessel does
the International Association of ■ 10. Revise § 401.45 as follows: not contact any of the structures on the lock.
Classification Societies (IACS) as * * * * *
§ 401.45 Emergency procedure. Issued at Washington, DC, on February 1,
compliant with the Implementation
Specifications found at www.greatlakes- When the speed of a vessel entering 2016. Saint Lawrence Seaway Development
seaway.com and having on board: a lock chamber has to be checked, the Corporation.
(i) An operational AIS with accuracy master shall take all necessary Carrie Lavigne,
= 1 (DGPS); and precautions to stop the vessel in order Chief Counsel.
(ii) Up-to-date electronic navigational to avoid contact with lock structures. At [FR Doc. 2016–02168 Filed 2–4–16; 8:45 am]
charts; and no time shall the vessel deploy its
BILLING CODE 4910–61–P
(iii) Up-to-date charts containing high anchors to stop the vessel when entering
resolution bathymetric data; and a lock chamber.
(2) The DIS Tool Display shall be ■ 11. Revise § 401.47 as follows:
ENVIRONMENTAL PROTECTION
located close to the primary conning § 401.47 Leaving a lock. AGENCY
position, be visible and legible; and
equipped with a pilot plug, if using a (a) Mooring lines shall only be cast off
as directed by the officer in charge of a 40 CFR Part 52
portable DIS.
(i) Verification document of the DIS mooring operation. [EPA–R04–OAR–2015–0152; FRL–9941–95–
must be kept on board the vessel at all (b) No vessel shall proceed out of a Region 4]
times and made available for inspection. lock until the exit gates, ship arresters
and the bridge, if any, are in a fully Air Quality Plans; Georgia;
(ii) A company letter attesting to Infrastructure Requirements for the
officer training on use of the DIS must open position.
(c) When ‘‘Hands Free Mooring 2010 Sulfur Dioxide National Ambient
be kept on board and made available for Air Quality Standard
system (HFM) is used, no vessel shall
inspection.
(iii) In every navigation season, a use its engine(s) until the lock operator AGENCY: Environmental Protection
vessel intending to use the DIS must provides the ‘‘all clear’’ instruction. Agency (EPA).
■ 12. In § 401.79 revise paragraph (a) as
notify the Manager of the Corporation in ACTION: Proposed rule.
follows:
writing at least 24 hours prior to the
commencement of its initial transit in SUMMARY: The Environmental Protection
§ 401.79 Advance notice of arrival, vessels
the System with the DIS. requiring inspection.
Agency (EPA) is proposing to approve
(iv) If for any reason the DIS or AIS portions of the State Implementation
(a) Advance notice of arrival. All Plan (SIP) submission, submitted by the
becomes inoperable, malfunctions or is foreign flagged vessels of 300 GRT or
not used while the vessel is transiting at State of Georgia, through the Georgia
above intending to transit the Seaway Department of Natural Resources (DNR),
a draft greater than the maximum shall submit a completed electronic
permissible draft prescribed under Environmental Protection Division
Notice of Arrival (NOA) prior to (GAEPD), on October 22, 2013, and
§ 401.29(b) in effect at the time, the entering at call in point 2 (CIP2) as
vessel must notify the Manager or the supplemented on July 25, 2014, to
follows: demonstrate that the State meets the
Corporation immediately. * * * * *
■ 8. In § 401.37, revise paragraph (b) as
infrastructure requirements of the Clean
■ 13. In § 401.80 add a new paragraph Air Act (CAA or Act) for the 2010 1-
follows: (c) as follows: hour sulfur dioxide (SO2) national
§ 401.37 Mooring at tie-up walls. ambient air quality standard (NAAQS).
§ 401.80 Reporting dangerous cargo.
* * * * * The CAA requires that each state adopt
* * * * * and submit a SIP for the
(b) Crew members being put ashore on (c) Vessels carrying ‘‘Certain
landing booms and handling mooring implementation, maintenance and
Dangerous Cargo (CDC) as defined in the enforcement of each NAAQS
lines on tie-up walls shall wear Transport Canada ‘‘Marine
approved personal flotation devices. promulgated by EPA, which is
Transportation Security Regulations’’ commonly referred to as an
■ 9. Revise § 401.44 as follows:
(MTSR’s) and the United States Coast ‘‘infrastructure’’ SIP. GAEPD certified
§ 401.44 Mooring in locks. Guard regulations under the Marine that the Georgia SIP contains provisions
(a) Mooring lines shall only be placed Transportation Security Act shall report that ensure the 2010 1-hour SO2
on mooring posts as directed by the the ‘‘Certain Dangerous Cargo’’ to the NAAQS is implemented, enforced, and
officer in charge of the mooring nearest Seaway station prior to a maintained in Georgia. EPA is
operation. Seaway transit. proposing to determine that Georgia’s
(b) No winch from which a mooring ■ 14. In Part 401, Subpart A, Appendix infrastructure submission, submitted on
line runs shall be operated until the 1, revise the Caution statement to read October 22, 2013, and supplemented on
officer in charge of a mooring operation as follows: July 25, 2014, addresses certain required
has signaled that the line has been Appendix 1 infrastructure elements for the 2010 1-
placed on a mooring post. hour SO2 NAAQS.
Ship Dimensions
(c) Once the mooring lines are on the DATES: Written comments must be
mstockstill on DSK4VPTVN1PROD with PROPOSALS
mooring posts, lines shall be kept slack * * * * * received on or before March 7, 2016.
until the ‘‘all clear’’ signal is given by Caution: Masters must take into account
ADDRESSES: Submit your comments,
the ballast draft of the vessel when verifying
the lock personnel. When casting off identified by Docket ID No. EPA–R04–
the maximum permissible dimensions.
signal is received, mooring lines shall be Bridge wings, antennas, masts and, in some OAR–2015–0152, by one of the
kept slack until the ‘‘all clear’’ signal is cases, the samson posts or store cranes could following methods:
given by the lock personnel. be outside the limits of the block diagram 1. www.regulations.gov: Follow the
(d) Vessels being moored by ‘‘Hands and could override the lock wall. Masters on-line instructions for submitting
Free Mooring’’ system (HFM) shall have and pilots must take this into consideration comments.
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More specifically, section 110(a)(1) • 110(a)(2)(L): Permitting fees substantive program provisions.6 EPA
provides the procedural and timing • 110(a)(2)(M): Consultation and therefore believes that while the timing
requirements for SIPs. Section 110(a)(2) Participation by Affected Local Entities requirement in section 110(a)(1) is
lists specific elements that states must III. What is EPA’s approach to the unambiguous, some of the other
meet for ‘‘infrastructure’’ SIP review of infrastructure SIP statutory provisions are ambiguous. In
requirements related to a newly submissions? particular, EPA believes that the list of
established or revised NAAQS. As required elements for infrastructure SIP
mentioned above, these requirements EPA is acting upon the SIP submissions provided in section
include basic SIP elements such as submissions from Georgia that address 110(a)(2) contains ambiguities
requirements for monitoring, basic the infrastructure requirements of CAA concerning what is required for
program requirements and legal sections 110(a)(1) and 110(a)(2) for the inclusion in an infrastructure SIP
authority that are designed to assure 2010 1-hour SO2 NAAQS. The submission.
attainment and maintenance of the requirement for states to make a SIP The following examples of
NAAQS. The requirements are submission of this type arises out of ambiguities illustrate the need for EPA
summarized below and in EPA’s CAA section 110(a)(1). Pursuant to to interpret some section 110(a)(1) and
September 13, 2013, memorandum section 110(a)(1), states must make SIP section 110(a)(2) requirements with
entitled ‘‘Guidance on Infrastructure submissions ‘‘within 3 years (or such respect to infrastructure SIP
State Implementation Plan (SIP) shorter period as the Administrator may submissions for a given new or revised
Elements under Clean Air Act Sections prescribe) after the promulgation of a NAAQS. One example of ambiguity is
110(a)(1) and 110(a)(2).’’ 3 national primary ambient air quality that section 110(a)(2) requires that
• 110(a)(2)(A): Emission Limits and standard (or any revision thereof),’’ and ‘‘each’’ SIP submission must meet the
Other Control Measures these SIP submissions are to provide for list of requirements therein, while EPA
• 110(a)(2)(B): Ambient Air Quality the ‘‘implementation, maintenance, and has long noted that this literal reading
Monitoring/Data System enforcement’’ of such NAAQS. The of the statute is internally inconsistent
• 110(a)(2)(C): Programs for statute directly imposes on states the and would create a conflict with the
Enforcement of Control Measures and duty to make these SIP submissions, nonattainment provisions in part D of
for Construction or Modification of and the requirement to make the title I of the Act, which specifically
Stationary Sources 4 submissions is not conditioned upon address nonattainment SIP
• 110(a)(2)(D)(i)(I) and (II): Interstate EPA’s taking any action other than requirements.7 Section 110(a)(2)(I)
Pollution Transport promulgating a new or revised NAAQS. pertains to nonattainment SIP
• 110(a)(2)(D)(ii): Interstate Pollution Section 110(a)(2) includes a list of requirements and part D addresses
Abatement and International Air specific elements that ‘‘[e]ach such when attainment plan SIP submissions
Pollution plan’’ submission must address. to address nonattainment area
• 110(a)(2)(E): Adequate Resources EPA has historically referred to these requirements are due. For example,
and Authority, Conflict of Interest, and SIP submissions made for the purpose section 172(b) requires EPA to establish
Oversight of Local Governments and of satisfying the requirements of CAA a schedule for submission of such plans
Regional Agencies sections 110(a)(1) and 110(a)(2) as for certain pollutants when the
• 110(a)(2)(F): Stationary Source ‘‘infrastructure SIP’’ submissions. Administrator promulgates the
Monitoring and Reporting Although the term ‘‘infrastructure SIP’’ designation of an area as nonattainment,
• 110(a)(2)(G): Emergency Powers does not appear in the CAA, EPA uses and section 107(d)(1)(B) allows up to
• 110(a)(2)(H): SIP Revisions the term to distinguish this particular two years, or in some cases three years,
• 110(a)(2)(I): Plan Revisions for type of SIP submission from for such designations to be
Nonattainment Areas 5 submissions that are intended to satisfy promulgated.8 This ambiguity illustrates
• 110(a)(2)(J): Consultation with other SIP requirements under the CAA, that rather than apply all the stated
Government Officials, Public such as ‘‘nonattainment SIP’’ or requirements of section 110(a)(2) in a
Notification, and Prevention of ‘‘attainment plan SIP’’ submissions to strict literal sense, EPA must determine
Significant Deterioration (PSD) and address the nonattainment planning
Visibility Protection requirements of part D of title I of the 6 For example: Section 110(a)(2)(E)(i) provides
• 110(a)(2)(K): Air Quality Modeling CAA, ‘‘regional haze SIP’’ submissions that states must provide assurances that they have
and Submission of Modeling Data required by EPA rule to address the adequate legal authority under state and local law
to carry out the SIP; section 110(a)(2)(C) provides
visibility protection requirements of that states must have a SIP-approved program to
3 Two elements identified in section 110(a)(2) are
CAA section 169A, and nonattainment address certain sources as required by part C of title
not governed by the three year submission deadline new source review (NNSR) permit I of the CAA; and section 110(a)(2)(G) provides that
of section 110(a)(1) because SIPs incorporating states must have legal authority to address
necessary local nonattainment area controls are not program submissions to address the
emergencies as well as contingency plans that are
due within three years after promulgation of a new permit requirements of CAA, title I, part triggered in the event of such emergencies.
or revised NAAQS, but rather are due at the time D. 7 See, e.g., ‘‘Rule To Reduce Interstate Transport
the nonattainment area plan requirements are due Section 110(a)(1) addresses the timing of Fine Particulate Matter and Ozone (Clean Air
pursuant to section 172. These requirements are: (1) Interstate Rule); Revisions to Acid Rain Program;
submissions required by section 110(a)(2)(C) to the
and general requirements for
Revisions to the NOx SIP Call; Final Rule,’’ 70 FR
extent that subsection refers to a permit program as infrastructure SIP submissions, and 25162, at 25163—65 (May 12, 2005) (explaining
required in part D, title I of the CAA; and (2) section 110(a)(2) provides more details relationship between timing requirement of section
Submissions required by section 110(a)(2)(I) which concerning the required contents of
mstockstill on DSK4VPTVN1PROD with PROPOSALS
110(a)(2)(D) versus section 110(a)(2)(I)).
pertain to the nonattainment planning requirements
of part D, title I of the CAA. This proposed
these submissions. The list of required 8 EPA notes that this ambiguity within section
110(a)(2) is heightened by the fact that various
rulemaking does not address infrastructure elements provided in section 110(a)(2) subparts of part D set specific dates for submission
elements related to section 110(a)(2)(I) or the contains a wide variety of disparate of certain types of SIP submissions in designated
nonattainment planning requirements of provisions, some of which pertain to nonattainment areas for various pollutants. Note,
110(a)(2)(C). e.g., that section 182(a)(1) provides specific dates
4 This rulemaking only addresses requirements
required legal authority, some of which
for submission of emissions inventories for the
for this element as they relate to attainment areas. pertain to required substantive program ozone NAAQS. Some of these specific dates are
5 As mentioned above, this element is not provisions, and some of which pertain necessarily later than three years after promulgation
relevant to this proposed rulemaking. to requirements for both authority and of the new or revised NAAQS.
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![6208 Federal Register / Vol. 81, No. 24 / Friday, February 5, 2016 / Proposed Rules
of credible evidence.24 EPA is unaware Director of GAEPD has reason to believe 6(b)(12) and 12–9–6(b)(13)) provide
of any provision preventing the use of that a violation of any provision of the Georgia the authority to conduct certain
credible evidence in the Georgia SIP. Georgia Air Quality Act Article 1: Air actions in support of this infrastructure
8. 110(a)(2)(G) Emergency Powers: Quality (O.C.G.A), or environmental element. Section 12–9–6(b)(l2) of the
Section 110(a)(2)(G) of the Act requires rules, regulations or orders have Georgia Air Quality Act requires GAEPD
that states demonstrate authority occurred. O.C.G.A. Section 12–9–14 also to submit SIP revisions whenever
comparable with section 303 of the CAA provides that the Governor may issue revised air quality standards are
and adequate contingency plans to orders as necessary to protect the health promulgated by EPA. EPA has made the
implement such authority. Georgia’s of persons who are, or may be, affected preliminary determination that Georgia
infrastructure SIP submissions cite air by a pollution source or facility after adequately demonstrates a commitment
pollution emergency episodes and ‘‘consult[ation] with local authorities in to provide future SIP revisions related to
preplanned abatement strategies in the order to confirm the correctness of the the 2010 1-hour SO2 NAAQS when
Georgia Air Quality Act: Article 1: Air information on which action proposed necessary. Accordingly, EPA is
Quality (O.C.G.A. Sections 12–9–2 to be taken is based and to ascertain the proposing to approve Georgia’s
Declaration of public policy, 12–9–6 action which such authorities are or will infrastructure SIP submission for the
Powers and duties of director as to air be taking.’’ 2010 1-hour SO2 NAAQS with respect
quality generally, 12–9–12 Injunctive Rule 391–3–1–.04 ‘‘Air Pollution to section 110(a)(2)(H).
relief, 12–9–13 Proceedings for Episodes’’ provides that the Director of 10. 110(a)(2)(J) Consultation with
enforcement, and 12–9–14 Powers of GAEPD ‘‘will proclaim that an Air Government Officials, Public
director in situations involving Pollution Alert, Air Pollution Warning, Notification, and PSD and Visibility
imminent and substantial danger to or Air Pollution Emergency exists when Protection: EPA is proposing to approve
public health), and Rule 391–3–1–.04 the meteorological conditions are such Georgia’s infrastructure SIP submission
‘‘Air Pollution Episodes.’’ O.C.G.A. that an air stagnation condition is in for the 2010 1-hour SO2 NAAQS with
Section 12–9–2 provides ‘‘[i]t is existence and/or the accumulation of air respect to the general requirement in
declared to be the public policy of the contaminants in any place is attaining section 110(a)(2)(J) to include a program
state of Georgia to preserve, protect, and or has attained levels which could, if in the SIP that complies with the
improve air quality . . . to attain and such levels are sustained or exceeded, applicable consultation requirements of
maintain ambient air quality standards lead to a substantial threat to the health section 121, the public notification
so as to safeguard the public health, of persons in the specific area affected.’’ requirements of section 127, PSD and
safety, and welfare.’’ O.C.G.A. Section Collectively the cited provisions visibility protection. EPA’s rationale for
12–9–6(b)(10) provides the Director of provide that GAEPD demonstrates applicable consultation requirements of
GAEPD authority to ‘‘issue orders as authority comparable with section 303 section 121, the public notification
may be necessary to enforce compliance of the CAA and adequate contingency requirements of section 127, PSD, and
with [the Georgia Air Quality Act plans to implement such authority in visibility is described below.
Article 1: Air Quality (O.C.G.A)] and all the State. EPA has made the preliminary Consultation with government
rules and regulations of this article.’’ determination that Georgia’s SIP, and officials (121 consultation): Section
O.C.G.A. Section 12–9–12 provides that State laws are adequate for emergency 110(a)(2)(J) of the CAA requires states to
‘‘[w]henever in the judgment of the powers related to the 2010 1-hour SO2 provide a process for consultation with
director any person has engaged in or is NAAQS. Accordingly, EPA is proposing local governments, designated
about to engage in any act or practice to approve Georgia’s infrastructure SIP organizations, and Federal Land
which constitutes or will constitute an submission with respect to section Managers carrying out NAAQS
unlawful action under [the Georgia Air 110(a)(2)(G). implementation requirements pursuant
Quality Act Article 1: Air Quality 9. 110(a)(2)(H) SIP Revisions: Section to section 121 relative to consultation.
(O.C.G.A)], he may make application to 110(a)(2)(H), in summary, requires each The following State rules and statutes,
the superior court of the county in SIP to provide for revisions of such plan as well as the State’s Regional Haze
which the unlawful act or practice has (i) as may be necessary to take account Implementation Plan (which allows for
been or is about to be engaged in, or in of revisions of such national primary or consultation between appropriate state,
secondary ambient air quality standard local, and tribal air pollution control
which jurisdiction is appropriate, for an
or the availability of improved or more agencies as well as the corresponding
order enjoining such act or practice or
expeditious methods of attaining such Federal Land Managers), provide for
for an order requiring compliance with
standard, and (ii) whenever the consultation with government officials
this article. Upon a showing by the
Administrator finds that the plan is whose jurisdictions might be affected by
director that such person has engaged in
substantially inadequate to attain the SIP development activities: Georgia Air
or is about to engage in any such act or
NAAQS or to otherwise comply with Quality Act Article 1: Air Quality
practice, a permanent or temporary
any additional applicable requirements. (O.C.G.A. Section 12–9–5(b)(17));
injunction, restraining order, or other
GAEPD is responsible for adopting air Georgia Administrative Procedures Act
order shall be granted without the
quality rules and revising SIPs as (O.C.G.A. § 50–13–4); and Georgia Rule
necessity of showing lack of an adequate needed to attain or maintain the 391–3–1–.02(7) as it relates to Class I
remedy of law.’’ O.C.G.A. Section 12– NAAQS in Georgia. The State has the areas. Section 12–9–5(b)(l7) of the
19–13 specifically pertains to ability and authority to respond to calls Georgia Air Quality Act states that the
enforcement proceedings when the for SIP revisions, and has provided a DNR Board is to ‘‘establish satisfactory
mstockstill on DSK4VPTVN1PROD with PROPOSALS
24 ‘‘Credible Evidence,’’ makes allowances for
number of SIP revisions over the years processes of consultation and
owners and/or operators to utilize ‘‘any credible for implementation of the NAAQS. cooperation with local governments or
evidence or information relevant’’ to demonstrate Georgia has no areas that have been other designated organizations of
compliance with applicable requirements if the designated as nonattainment for the elected officials or federal agencies for
appropriate performance or compliance test had 2010 1-hour SO2 NAAQS. See 78 FR the purpose of planning, implementing,
been performed, for the purpose of submitting
compliance certification, and can be used to 47191 (August 5, 2013). and determining requirements under
establish whether or not an owner or operator has The Georgia Air Quality Act Article 1: this article to the extent required by the
violated or is in violation of any rule or standard. Air Quality (O.C.G.A. Section 12–9– federal act.’’
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![6210 Federal Register / Vol. 81, No. 24 / Friday, February 5, 2016 / Proposed Rules
2010 1-hour SO2 NAAQS, when beyond those imposed by state law. For Dated: January 12, 2016.
necessary. Accordingly, EPA is that reason, this proposed action: Heather McTeer Toney,
proposing to approve Georgia’s • Is not a significant regulatory action Regional Administrator, Region 4.
infrastructure SIP submission with subject to review by the Office of [FR Doc. 2016–02303 Filed 2–4–16; 8:45 am]
respect to section 110(a)(2)(L). Management and Budget under BILLING CODE 6560–50–P
13. 110(a)(2)(M) Consultation/ Executive Orders 12866 (58 FR 51735,
participation by affected local entities: October 4, 1993) and 13563 (76 FR 3821,
Section 110(a)(2)(M) of the Act requires January 21, 2011); DEPARTMENT OF COMMERCE
states to provide for consultation and • does not impose an information
participation in SIP development by collection burden under the provisions National Oceanic and Atmospheric
local political subdivisions affected by of the Paperwork Reduction Act (44 Administration
the SIP. Consultation and participation U.S.C. 3501 et seq.);
by affected local entities is authorized • is certified as not having a 50 CFR Parts 300 and 600
by the Georgia Air Quality Act: Article significant economic impact on a [Docket No. 150507434–5999–01]
1: Air Quality (O.C.G.A. 12–9–5(b)(17)) substantial number of small entities
and the Georgia Rule for Air Quality under the Regulatory Flexibility Act (5
RIN 0648–BF09
391–3–1–.15—‘‘Transportation U.S.C. 601 et seq.);
Conformity’’, which defines the Magnuson-Stevens Fishery
consultation procedures for areas • does not contain any unfunded Conservation and Management Act;
subject to transportation conformity. mandate or significantly or uniquely Seafood Import Monitoring Program
Furthermore, GAEPD has demonstrated affect small governments, as described
in the Unfunded Mandates Reform Act AGENCY: National Marine Fisheries
consultation with, and participation by, Service (NMFS), National Oceanic and
affected local entities through its work of 1995 (Pub. L. 104–4);
Atmospheric Administration (NOAA),
with local political subdivisions during • does not have Federalism
Commerce.
the developing of its Transportation implications as specified in Executive
ACTION: Proposed rule; request for
Conformity SIP and has worked with Order 13132 (64 FR 43255, August 10,
1999); comments.
the Federal Land Managers as a
requirement of the regional haze rule. • is not an economically significant SUMMARY: Pursuant to the Magnuson-
EPA has made the preliminary regulatory action based on health or Stevens Fishery Conservation and
determination that Georgia’s SIP and safety risks subject to Executive Order Management Act (MSA), this proposed
practices adequately demonstrate 13045 (62 FR 19885, April 23, 1997); rule would establish filing and
consultation with affected local entities • is not a significant regulatory action recordkeeping procedures relating to the
related to the 2010 1-hour SO2 NAAQS subject to Executive Order 13211 (66 FR importation of certain fish and fish
when necessary. 28355, May 22, 2001); products, in order to implement the
V. Proposed Action • is not subject to requirements of MSA’s prohibition on the import and
Section 12(d) of the National trade, in interstate or foreign commerce,
With the exception of interstate Technology Transfer and Advancement of fish taken, possessed, transported or
transport provisions pertaining to the Act of 1995 (15 U.S.C. 272 note) because sold in violation of any foreign law or
contribution to nonattainment or application of those requirements would regulation. The information to be filed
interference with maintenance in other be inconsistent with the CAA; and is proposed to be collected at the time
states and visibility protection of entry, and makes use of an electronic
• does not provide EPA with the
requirements of section 110(a)(2)(D)(i)(I) single window consistent with the
discretionary authority to address, as
and (II) (prongs 1, 2, and 4), EPA is Safety and Accountability for Every
appropriate, disproportionate human
proposing to approve Georgia’s October (SAFE) Port Act of 2006 and other
health or environmental effects, using
22, 2013, SIP submission as applicable statutes. Specifically, NMFS
practicable and legally permissible
supplemented on July 25, 2014, for the proposes to integrate collection of catch
methods, under Executive Order 12898
2010 1-hour SO2 NAAQS for the above and landing documentation for certain
(59 FR 7629, February 16, 1994).
described infrastructure SIP fish and fish products within the
requirements. EPA is proposing to In addition, the SIP is not approved to government-wide International Trade
approve Georgia’s infrastructure SIP apply on any Indian reservation land or Data System (ITDS) and require
submission for the 2010 1-hour SO2 in any other area where EPA or an electronic information collection
NAAQS because the submission is Indian tribe has demonstrated that a through the Automated Commercial
consistent with section 110 of the CAA. tribe has jurisdiction. In those areas of Environment (ACE) maintained by the
Indian country, the rule does not have Department of Homeland Security,
VI. Statutory and Executive Order tribal implications as specified by Customs and Border Protection (CBP).
Reviews Executive Order 13175 (65 FR 67249, Under these procedures, NMFS would
Under the CAA, the Administrator is November 9, 2000), nor will it impose require an annually renewable
required to approve a SIP submission substantial direct costs on tribal International Fisheries Trade Permit
that complies with the provisions of the governments or preempt tribal law. (IFTP) and specific data for certain fish
Act and applicable Federal regulations. and fish products to be filed and
mstockstill on DSK4VPTVN1PROD with PROPOSALS
List of Subjects in 40 CFR Part 52
See 42 U.S.C. 7410(k); 40 CFR 52.02(a). retained as a condition of import to
Thus, in reviewing SIP submissions, Environmental protection, Air enable the United States to exclude the
EPA’s role is to approve state choices, pollution control, Incorporation by entry into commerce of products of
provided that they meet the criteria of reference, Intergovernmental relations, illegal fishing activities. The
the CAA. Accordingly, this proposed Nitrogen dioxide, Ozone, Reporting and information to be collected and retained
action merely approves state law as recordkeeping requirements, Volatile will help authorities verify that the fish
meeting Federal requirements and does organic compounds. or fish products were lawfully acquired
not impose additional requirements Authority: 42 U.S.C. 7401 et seq. by providing information that traces
VerDate Sep<11>2014 15:58 Feb 04, 2016 Jkt 238001 PO 00000 Frm 00026 Fmt 4702 Sfmt 4702 E:\FR\FM\05FEP1.SGM 05FEP1](https://thefederalregister.org/doc/81_FR_6224/page/11.svg)
Document Created: 2016-02-05 00:17:56
Document Modified: 2016-02-05 00:17:56
| Category | Regulatory Information | |
| Collection | Federal Register | |
| sudoc Class | AE 2.7: GS 4.107: AE 2.106: | |
| Publisher | Office of the Federal Register, National Archives and Records Administration | |
| Section | Proposed Rules | |
| Action | Proposed rule. | |
| Dates | Written comments must be received on or before March 7, 2016. | |
| Contact | Michele Notarianni, 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. Ms. Notarianni can be reached via electronic mail at [email protected] or via telephone at (404) 562-9031. | |
| FR Citation | 81 FR 6200 | |
| CFR Associated | Environmental Protection; Air Pollution Control; Incorporation by Reference; Intergovernmental Relations; Nitrogen Dioxide; Ozone; Reporting and Recordkeeping Requirements and Volatile Organic Compounds |
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