81_FR_78907 81 FR 78691 - Clean Air Act Redesignation Substitute for the Houston-Galveston-Brazoria 1997 8-Hour Ozone Nonattainment Area; Texas

81 FR 78691 - Clean Air Act Redesignation Substitute for the Houston-Galveston-Brazoria 1997 8-Hour Ozone Nonattainment Area; Texas

ENVIRONMENTAL PROTECTION AGENCY

Federal Register Volume 81, Issue 216 (November 8, 2016)

Page Range78691-78694
FR Document2016-26586

The Environmental Protection Agency (EPA) is approving a redesignation substitute and making a finding of attainment for the revoked 1997 8-hour ozone National Ambient Air Quality Standard (NAAQS) for the Houston-Galveston-Brazoria ozone nonattainment area (HGB area).

Federal Register, Volume 81 Issue 216 (Tuesday, November 8, 2016)
[Federal Register Volume 81, Number 216 (Tuesday, November 8, 2016)]
[Rules and Regulations]
[Pages 78691-78694]
From the Federal Register Online  [www.thefederalregister.org]
[FR Doc No: 2016-26586]


-----------------------------------------------------------------------

ENVIRONMENTAL PROTECTION AGENCY

40 CFR Parts 52 and 81

[EPA-R06-OAR-2015-0609; FRL-9953-89-Region 6]


Clean Air Act Redesignation Substitute for the Houston-Galveston-
Brazoria 1997 8-Hour Ozone Nonattainment Area; Texas

AGENCY: Environmental Protection Agency (EPA).

ACTION: Final rule.

-----------------------------------------------------------------------

SUMMARY: The Environmental Protection Agency (EPA) is approving a 
redesignation substitute and making a finding of attainment for the 
revoked 1997 8-hour ozone National Ambient Air Quality Standard (NAAQS) 
for the Houston-Galveston-Brazoria ozone nonattainment area (HGB area).

DATES: This rule is effective on December 8, 2016.

ADDRESSES: The EPA has established a docket for this action under 
Docket ID No. EPA-R06-OAR-2015-0609. All documents in the docket are 
listed on the http://www.regulations.gov Web site. Although listed in 
the index, some information is not publicly available, e.g., 
Confidential Business Information or other information whose disclosure 
is restricted by statute. Certain other material, such as copyrighted 
material, is not placed on the Internet and will be publicly available 
only in hard copy form. Publicly available docket materials are 
available either electronically through http://www.regulations.gov or 
in hard copy at the EPA Region 6, 1445 Ross Avenue, Suite 700, Dallas, 
Texas 75202-2733.

FOR FURTHER INFORMATION CONTACT: Tracie Donaldson, 214-665-6633, 
[email protected].

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

I. Background

    The background for this action is discussed in detail in our May 
25, 2016 proposal (81 FR 33166). In that document we proposed to 
approve a redesignation substitute and make a finding of attainment for 
the 1997 8-hour ozone NAAQS for the Houston-Galveston-Brazoria ozone 
nonattainment area (HGB area). The redesignation substitute 
demonstration indicates that the area has attained the revoked 1997 8-
hour ozone NAAQS due to permanent and enforceable emission reductions 
and that it will maintain that NAAQS for ten years from the date of the 
EPA's approval of this demonstration. Final approval of the 
redesignation substitute results in the area no longer being subject to 
any remaining applicable anti-backsliding requirements, including 
nonattainment new source review, associated with the revoked NAAQS. In 
general, final approval of the redesignation substitute allows Texas to 
seek to revise the Texas SIP for the area to remove anti-backsliding 
measures from the active portion of its SIP if it can demonstrate, 
pursuant to CAA section 110(1), that such revision would not interfere 
with attainment or maintenance of any applicable NAAQS, or any other 
requirement of the CAA. Because the EPA believes Texas does not need to 
revise its SIP to alter certain provisions for NNSR effective in the 
HGB area, the offset and threshold requirements applicable in the HGB 
area for NNSR will be automatically altered upon finalization of the 
redesignation substitute.
    We previously approved a HGB area redesignation substitute for the 
revoked 1-hour ozone standard (80 FR 63429). In this action, we are 
also finalizing a non-substantive technical correction to 40 CFR 81.344 
to reflect this approval.
    We received comments on the proposal from five commenters. Our 
response to the comments are below.

II. Response to Comments

    Comment: Three commenters recognized the progress of the area and 
the work of TCEQ in making such significant air quality improvements in 
the HGB area and urged the EPA to finalize this action to reflect the 
changes in the area.
    Response: We agree with the commenters that HGB area has made 
progress in meeting air quality standards. No changes were made to the 
final action based on these comments.
    Comment: One of the supportive commenters urged the EPA to approve 
revisions to the Texas SIP to reflect changes to certain provisions for 
the NNSR program effective in the HGB area as a result of the EPA's 
approval of the

[[Page 78692]]

redesignation substitute. The commenter also asserted that approval of 
the redesignation substitute will result in the area no longer being 
subject to any remaining applicable anti-backsliding requirements.
    Response: Due to the drafting of the Texas SIP, no revision is 
necessary to alter NNSR requirements applicable in the HGB area 
following finalization of this redesignation substitute. The NNSR 
provisions in the existing Texas SIP contains a provision that cross-
references the designation of the area to 40 CFR part 81. See 30 TAC 
section 101.1(71). Because of the structure of this provision, the 
identification of an area's classification, and thus the related major 
source thresholds and offset ratios, is updated without any additional 
revision to the SIP. Therefore, the EPA's approval of the redesignation 
substitute automatically updates the applicable NNSR requirements. 
Following finalization of this rule, the NNSR requirements applicable 
in the HGB area will be in accordance with the HGB area's current 
classification for the 2008 ozone NAAQS for newly permitted sources.\1\ 
We note that approval of this redesignation substitute does not relieve 
sources in the area of their obligations under previously established 
permit conditions.\2\ 81 FR 33161, 33165. The Texas SIP includes a 
suite of approved permitting regulations for the Minor and Major NSR, 
which will continue to apply after approval of the redesignation 
substitute in the HGB area. Each of these programs has been evaluated 
and approved by EPA as consistent with the requirements of the CAA and 
protective of air quality, including the requirements at 40 CFR 51.160 
whereby the TCEQ cannot issue a permit or authorize an activity that 
will result in a violation of applicable portions of the control 
strategy or that will interfere with attainment or maintenance of a 
national standard. So moving forward to a time when the HGB area has a 
marginal designation as the only applicable nonattainment designation, 
new sources and modifications will continue to be permitted and 
authorized under the existing SIP requirements if they are determined 
to be protective of air quality. We would also note that EPA has 
proposed to reclassify Houston from marginal to moderate for the 2008 
ozone NAAQS. 81 FR 66240, September 27, 2016.
---------------------------------------------------------------------------

    \1\ See Section D of the TSD for this action in the docket for 
this rulemaking for additional information.
    \2\ See Final Implementation Rule for 2008 Ozone Standard, 80 FR 
12264, at 12299, footnote 83 and at 12304, footnote 91.
---------------------------------------------------------------------------

    The EPA agrees that approval of the redesignation substitute will 
result in the HGB area no longer being subject to the regulatory anti-
backsliding requirements for the 1997 ozone standard established 
pursuant to the principles of CAA section 172(e). However, if an anti-
backsliding provision is in the Texas SIP and needs to be changed to 
reflect the change in this area's status, such change is subject to the 
SIP revision process, which in turn is subject to review under CAA 
sections 110 and 193, if applicable. To date, Texas has not submitted a 
SIP revision concerning any anti-backsliding provisions for the EPA's 
consideration.
    Comment: One commenter also recognized the progress and supported 
the action but wanted the EPA to clarify that the redesignation 
substitute will permanently eliminate the anti-backsliding requirements 
for the revoked ozone NAAQS.
    Response: Following finalization of a redesignation substitute, an 
area is no longer subject to any remaining applicable anti-backsliding 
requirements associated with the specific revoked NAAQS, including the 
major source thresholds and offset ratios associated with the area's 
classification under those standards. However, as noted previously, any 
changes to a SIP are subject to consistency checks with CAA sections 
110(l) and 193, if applicable. Because the 1997 ozone NAAQS has been 
revoked, no new requirements associated with that NAAQS would come due 
at any future date.
    Comment: One commenter objected to the use of the redesignation 
substitute mechanism and the implications of such an action. The 
commenter incorporates by reference the relevant portions of a brief 
filed in a petition challenging the EPA's promulgation of the 
redesignation substitute. See South Coast Air Quality Mgmt. Dist. v. 
EPA, No. 15-1115 (D.C. Cir.). They contend that the HGB area continues 
to have unhealthy levels of ozone pollution, therefore, raising the 
NNSR thresholds and lowering the offset requirements for the area is 
inappropriate. The commenter further states that our action will result 
``in great expense and inefficiency: because some sources will not 
prevent pollution, they and other sources may have to retrofit at 
greater expense.'' The commenter asks the EPA to either disapprove the 
redesignation substitute or delay action until the underlying 
litigation is resolved.
    Response: The EPA disagrees with the commenter that it is 
inappropriate to approve redesignation substitutes for the Houston-
Galveston-Brazoria area for the 1997 ozone standard. As the commenter 
noted, the EPA created the redesignation substitute in the 2008 ozone 
SIP Requirements Rule as one of two acceptable procedures through which 
a state may demonstrate that it is no longer required to adopt any 
additional applicable requirements for an area which have not already 
been approved into the SIP for a revoked ozone NAAQS. 80 FR 12264, 
12304 (March 6, 2015).
    The EPA acknowledges that this rule has been challenged in the D.C. 
Circuit by the commenter. However, the rule has not been stayed pending 
resolution of the litigation, and as such, it is appropriate to 
continue to implement the 2008 ozone SIP Requirements Rule during the 
pendency of the litigation.
    The EPA believes the redesignation substitute is an appropriate 
mechanism because it serves as a successor to a redesignation to 
attainment, for which these areas would have been eligible if the EPA 
had not revoked the 1-hour and 1997 ozone standards. For a more 
detailed description of why the EPA has determined the HGB area has met 
the redesignation criteria for the revoked 1997 ozone standard, see 81 
FR 33166 for the proposal and Technical Support Document. Upon approval 
of a redesignation substitute, a state may request to revise its SIP to 
shift regulatory anti-backsliding requirements contained in the active 
portion of the SIP to the contingency measures portion of the SIP, 
subject to a showing of consistency with the general anti-backsliding 
checks in CAA sections 110(l) and 193 (if applicable). The EPA approval 
of the redesignation substitute has the same effect on these areas' 
nonattainment regulatory anti-backsliding requirements as would a 
redesignation to attainment for the revoked standard. The EPA believes 
that, under any view of anti-backsliding for a revoked standard, it 
should not mean imposing requirements greater than those that would 
apply if the standard had not been revoked.
    An approvable redesignation substitute must include more than a 
determination of attainment of the prior NAAQS, and show that it 
addresses redesignation criteria for that NAAQS. Moreover, the state 
remains subject to ongoing requirements to meet the new more stringent 
2008 ozone standard in that area. In this context, the EPA believes 
finalizing this action is appropriate--it recognizes and supports 
Texas's progress in having attained the

[[Page 78693]]

prior standards in the HGB area due to permanent and enforceable 
emissions reductions, and reinforces continued attainment by 
demonstrating that the HGB area can maintain the revoked standard. See 
80 FR 12264, 12305.

III. Final Action

    We find that Texas has successfully demonstrated it has met the 
requirements for approval of a redesignation substitute for the revoked 
1997 8-hour ozone NAAQS for the HGB area. We are approving the 
redesignation substitute for the HGB area based on our determination 
that the demonstration provided by the State of Texas shows that the 
HGB area has attained the revoked 1997 8-hour ozone NAAQS due to 
permanent and enforceable emission reductions, and that it will 
maintain that NAAQS for ten years from the date of the EPA's approval 
of this demonstration. As we no longer redesignate nonattainment areas 
to attainment for the revoked 1997 8-hour ozone NAAQS, approval of the 
demonstration serves as a redesignation substitute under the EPA's 
implementing regulations. As a result of this action, Texas is no 
longer required to adopt any additional applicable 1997 8-hour ozone 
NAAQS requirements for the area which have not already been approved 
into the SIP (40 CFR 51.1105(b)(1)). It also allows the state to 
request that the EPA approve the shifting of planning and control 
requirements implemented pursuant to the 1997 ozone NAAQS from the 
active portion of the SIP to the contingency measures portion of the 
SIP, upon a showing of consistency with CAA sections 110(l) and 193 (if 
applicable) (40 CFR 51.1105(b)(2)).
    We are also finalizing a non-substantive technical correction to 40 
CFR 81.344 (Section 107 Attainment Status Designations for Texas) to 
reflect our previous approval of a HGB area redesignation substitute 
demonstration for the revoked 1-hour ozone standard.

IV. Statutory and Executive Order Reviews

    Under Executive Orders 12866 (58 FR 51735, October 4, 1993) and 
13563 (76 FR 3821, January 21, 2011), this action is not a 
``significant regulatory action'' and therefore is not subject to 
review by the Office of Management and Budget. For this reason, this 
action is also not subject to Executive Order 13211, ``Actions 
Concerning Regulations That Significantly Affect Energy Supply, 
Distribution, or Use'' (66 FR 28355, May 22, 2001). This action merely 
approves a demonstration provided by the State of Texas and finds that 
the HGB area is no longer subject to the regulatory anti-backsliding 
requirements under the principles of CAA section 172(e) for the revoked 
1997 8-hour ozone NAAQS; and imposes no additional requirements. 
Accordingly, I certify that this rule will not have a significant 
economic impact on a substantial number of small entities under the 
Regulatory Flexibility Act (5 U.S.C. 601 et seq.). Because this rule 
does not impose any additional enforceable duties, it 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). This rule also does not have a substantial direct 
effect on one or more Indian Tribes, on the relationship between the 
Federal Government and Indian Tribes, or on the distribution of power 
and responsibilities between the Federal Government and Indian Tribes, 
as specified by Executive Order 13175 (65 FR 67249, November 9, 2000), 
nor will it have substantial direct effects on the States, on the 
relationship between the national government and the States, or on the 
distribution of power and responsibilities among the various levels of 
government, as specified in Executive Order 13132 (64 FR 43255, August 
10, 1999), because it merely approves a demonstration provided by the 
State of Texas and find that the HGB area is no longer subject to the 
regulatory anti-backsliding requirements under the principles of CAA 
section 172(e) for the revoked 1997 8-hour ozone NAAQS; and does not 
alter the relationship or the distribution of power and 
responsibilities established in the CAA. This rule also is not subject 
to Executive Order 13045 (62 FR 19885, April 23, 1997), because it is 
not economically significant.
    The rule does not impose an information collection burden under the 
provisions of the Paperwork Reduction Act of 1995 (44 U.S.C. 3501 et 
seq.). Additionally, this rule does not involve establishment of 
technical standards, and thus, the requirements of section 12(d) of the 
National Technology Transfer and Advancement Act of 1995 (15 U.S.C. 272 
note) do not apply.
    Executive Order 12898 (59 FR 7629, February 16, 1994) establishes 
Federal executive policy on environmental justice. Its main provision 
directs Federal agencies, to the greatest extent practicable and 
permitted by law, to make environmental justice part of their mission 
by identifying and addressing, as appropriate, disproportionately high 
and adverse human health or environmental effects of their programs, 
policies, and activities on minority populations and low-income 
populations in the United States. The EPA has determined that this rule 
will not have disproportionately high and adverse human health or 
environmental effects on minority or low-income populations because it 
does not affect the level of protection provided to human health or the 
environment.
    Under section 307(b)(1) of the Clean Air Act, petitions for 
judicial review of this action must be filed in the United States Court 
of Appeals for the appropriate circuit by January 9, 2017. Filing a 
petition for reconsideration by the Administrator of this final rule 
does not affect the finality of this action for the purposes of 
judicial review nor does it extend the time within which a petition for 
judicial review may be filed, and shall not postpone the effectiveness 
of such rule or action. This action may not be challenged later in 
proceedings to enforce its requirements. (See section 307(b)(2).)

List of Subjects

40 CFR Part 52

    Environmental protection, Air pollution control, Incorporation by 
reference, Intergovernmental relations, Nitrogen dioxide, Ozone, 
Volatile organic compounds.

40 CFR Part 81

    Environmental protection, Air pollution control.

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

    Dated: October 27, 2016.
Samuel Coleman,
Acting Regional Administrator, Region 6.

    40 CFR parts 52 and 81 are amended as follows:

PART 52--APPROVAL AND PROMULGATION OF IMPLEMENTATION PLANS

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

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

Subpart SS--Texas

0
2. Section 52.2275 is amended by adding paragraph (n) to read as 
follows:


Sec.  52.2275  Control strategy and regulations: Ozone.

* * * * *
    (n) Approval of Redesignation Substitute for the Houston-Galveston-
Brazoria 1997 Ozone Nonattainment Area. EPA has approved the 
redesignation substitute for the Houston-Galveston-Brazoria 1997 ozone 
NAAQS nonattainment area submitted by the State of Texas on August 18,

[[Page 78694]]

2015. The State is no longer being required to adopt any additional 
applicable 1997 ozone NAAQS requirements for the area.

PART 81--DESIGNATION OF AREAS FOR AIR QUALITY PLANNING PURPOSES

0
3. The authority citation for part 81 continues to read as follows:

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

0
4. Section 81.344 is amended:
0
a. In the table for ``Texas--Ozone (1-Hour Standard)'' by revising the 
entries for ``Houston-Galveston-Brazoria, TX'' and revising footnote 4; 
and
0
b. In the table for ``Texas--1997 8-Hour Ozone NAAQS (Primary and 
Secondary)'' by revising the entries for ``Houston-Galveston-Brazoria, 
TX'' and adding footnote 7.
    The revisions and additions read as follows:


Sec.  81.344  Texas.

* * * * *

                                                                    Texas--Ozone \2\
                                                                   [11-Hour standard]
--------------------------------------------------------------------------------------------------------------------------------------------------------
                                                                Designation                                           Classification
             Designated area             ---------------------------------------------------------------------------------------------------------------
                                            Date \1\                      Type                      Date \1\                      Type
--------------------------------------------------------------------------------------------------------------------------------------------------------
 
                                                                      * * * * * * *
Houston-Galveston-Brazoria Area, TX:
    Brazoria County \4\.................  ...........  Nonattainment............................     11/15/90  Severe-17.
    Chambers County \4\.................  ...........  Nonattainment............................     11/15/90  Severe-17.
    Fort Bend County \4\................  ...........  Nonattainment............................     11/15/90  Severe-17.
    Galveston County \4\................  ...........  Nonattainment............................     11/15/90  Severe-17.
    Harris County \4\...................  ...........  Nonattainment............................     11/15/90  Severe-17.
    Liberty County \4\..................  ...........  Nonattainment............................     11/15/90  Severe-17.
    Montgomery County \4\...............  ...........  Nonattainment............................     11/15/90  Severe-17.
    Waller County \4\...................  ...........  Nonattainment............................     11/15/90  Severe-17.
 
                                                                      * * * * * * *
--------------------------------------------------------------------------------------------------------------------------------------------------------
\1\ This date is October 18, 2000, unless otherwise noted.
\2\ The 1-hour ozone standard is revoked effective June 15, 2005 for all areas in Texas except the San Antonio area where it is revoked effective April
  15, 2009.
 * * * * * * *
\4\ A Redesignation Substitute was approved on October 20, 2015.

* * * * *

                                                             Texas--1997 8-Hour Ozone NAAQS
                                                                 [Primary and secondary]
--------------------------------------------------------------------------------------------------------------------------------------------------------
                                                              Designation \a\                                         Classification
             Designated area             ---------------------------------------------------------------------------------------------------------------
                                            Date\1\                       Type                      Date \1\                      Type
--------------------------------------------------------------------------------------------------------------------------------------------------------
 
                                                                      * * * * * * *
Houston-Galveston-Brazoria, TX:
    Brazoria County \7\.................  ...........  Nonattainment............................        (\4\)  Subpart 2/Severe 15.
    Chambers County \7\.................  ...........  Nonattainment............................        (\4\)  Subpart 2/Severe 15.
    Fort Bend County \7\................  ...........  Nonattainment............................        (\4\)  Subpart 2/Severe 15.
    Galveston County \7\................  ...........  Nonattainment............................        (\4\)  Subpart 2/Severe 15.
    Harris County \7\...................  ...........  Nonattainment............................        (\4\)  Subpart 2/Severe 15.
    Liberty County \7\..................  ...........  Nonattainment............................        (\4\)  Subpart 2/Severe 15.
    Montgomery County \7\...............  ...........  Nonattainment............................        (\4\)  Subpart 2/Severe 15.
    Waller County \7\...................  ...........  Nonattainment............................        (\4\)  Subpart 2/Severe 15.
 
                                                                      * * * * * * *
--------------------------------------------------------------------------------------------------------------------------------------------------------
\a\ Includes Indian Country located in each county or area, except as otherwise specified.
\1\ This date is June 15, 2004, unless otherwise noted.
 * * * * * * *
\4\ Effective October 31, 2008.
 * * * * * * *
\7\A Redesignation Substitute was approved on November 8, 2016.

* * * * *
[FR Doc. 2016-26586 Filed 11-7-16; 8:45 am]
 BILLING CODE 6560-50-P



                                                                       Federal Register / Vol. 81, No. 216 / Tuesday, November 8, 2016 / Rules and Regulations                                                                                  78691

                                                                                                                       TEXAS—1997 8-HOUR OZONE NAAQS
                                                                                                                                       [Primary and secondary]

                                                                                                                                                                  Designation a                                   Category/classification
                                                                                Designated area
                                                                                                                                                Date 1                       Type                         Date 1                       Type


                                                            *                          *                                *                                *                          *                             *                         *
                                                 Dallas-Fort Worth, TX:
                                                      Collin County 5 6 ................................................................   ....................    Nonattainment       ...............                (5)   Subpart   2/Serious.
                                                      Dallas County 5 6 ...............................................................    ....................    Nonattainment       ...............                (5)   Subpart   2/Serious.
                                                      Denton County 5 6 .............................................................      ....................    Nonattainment       ...............                (5)   Subpart   2/Serious.
                                                     Ellis County 5 6 ..................................................................   ....................    Nonattainment       ...............                (5)   Subpart   2/Serious.
                                                      Johnson County 5 6 ...........................................................       ....................    Nonattainment       ...............                (5)   Subpart   2/Serious.
                                                      Kaufman County 5 6 ..........................................................        ....................    Nonattainment       ...............                (5)   Subpart   2/Serious.
                                                      Parker County 5 6 ..............................................................     ....................    Nonattainment       ...............                (5)   Subpart   2/Serious.
                                                      Rockwall County 5 6 ..........................................................       ....................    Nonattainment       ...............                (5)   Subpart   2/Serious.
                                                      Tarrant County 5 6 .............................................................     ....................    Nonattainment       ...............                (5)   Subpart   2/Serious.

                                                              *                             *                             *                              *                          *                             *                         *
                                                     a Includes  Indian Country located in each county or area, except as otherwise specified.
                                                     1 This date is June 15, 2004, unless otherwise noted.
                                                             *                    *                    *                    *                                                      *                              *                        *
                                                     5 Effective January 19, 2011.
                                                     6 A Redesignation Substitute was approved on November 8, 2016.




                                                 *       *         *        *        *                                 publicly available only in hard copy                                   portion of its SIP if it can demonstrate,
                                                 [FR Doc. 2016–26585 Filed 11–7–16; 8:45 am]                           form. Publicly available docket                                        pursuant to CAA section 110(1), that
                                                 BILLING CODE 6560–50–P                                                materials are available either                                         such revision would not interfere with
                                                                                                                       electronically through http://                                         attainment or maintenance of any
                                                                                                                       www.regulations.gov or in hard copy at                                 applicable NAAQS, or any other
                                                 ENVIRONMENTAL PROTECTION                                              the EPA Region 6, 1445 Ross Avenue,                                    requirement of the CAA. Because the
                                                 AGENCY                                                                Suite 700, Dallas, Texas 75202–2733.                                   EPA believes Texas does not need to
                                                                                                                       FOR FURTHER INFORMATION CONTACT:                                       revise its SIP to alter certain provisions
                                                 40 CFR Parts 52 and 81                                                                                                                       for NNSR effective in the HGB area, the
                                                                                                                       Tracie Donaldson, 214–665–6633,
                                                 [EPA–R06–OAR–2015–0609; FRL–9953–89–                                  Donaldson.tracie@epa.gov.                                              offset and threshold requirements
                                                 Region 6]                                                                                                                                    applicable in the HGB area for NNSR
                                                                                                                       SUPPLEMENTARY INFORMATION:
                                                                                                                                                                                              will be automatically altered upon
                                                 Clean Air Act Redesignation Substitute                                Throughout this document ‘‘we,’’ ‘‘us,’’                               finalization of the redesignation
                                                 for the Houston-Galveston-Brazoria                                    and ‘‘our’’ means the EPA.                                             substitute.
                                                 1997 8-Hour Ozone Nonattainment                                       I. Background                                                             We previously approved a HGB area
                                                 Area; Texas                                                                                                                                  redesignation substitute for the revoked
                                                                                                                          The background for this action is                                   1-hour ozone standard (80 FR 63429). In
                                                 AGENCY:  Environmental Protection                                     discussed in detail in our May 25, 2016
                                                 Agency (EPA).                                                                                                                                this action, we are also finalizing a non-
                                                                                                                       proposal (81 FR 33166). In that                                        substantive technical correction to 40
                                                 ACTION: Final rule.                                                   document we proposed to approve a                                      CFR 81.344 to reflect this approval.
                                                                                                                       redesignation substitute and make a                                       We received comments on the
                                                 SUMMARY:   The Environmental Protection                               finding of attainment for the 1997 8-
                                                 Agency (EPA) is approving a                                                                                                                  proposal from five commenters. Our
                                                                                                                       hour ozone NAAQS for the Houston-                                      response to the comments are below.
                                                 redesignation substitute and making a                                 Galveston-Brazoria ozone
                                                 finding of attainment for the revoked                                 nonattainment area (HGB area). The                                     II. Response to Comments
                                                 1997 8-hour ozone National Ambient                                    redesignation substitute demonstration                                    Comment: Three commenters
                                                 Air Quality Standard (NAAQS) for the                                  indicates that the area has attained the                               recognized the progress of the area and
                                                 Houston-Galveston-Brazoria ozone                                      revoked 1997 8-hour ozone NAAQS due                                    the work of TCEQ in making such
                                                 nonattainment area (HGB area).                                        to permanent and enforceable emission                                  significant air quality improvements in
                                                 DATES: This rule is effective on                                      reductions and that it will maintain that                              the HGB area and urged the EPA to
                                                 December 8, 2016.                                                     NAAQS for ten years from the date of                                   finalize this action to reflect the changes
                                                 ADDRESSES: The EPA has established a                                  the EPA’s approval of this                                             in the area.
                                                 docket for this action under Docket ID                                demonstration. Final approval of the                                      Response: We agree with the
                                                 No. EPA–R06–OAR–2015–0609. All                                        redesignation substitute results in the                                commenters that HGB area has made
                                                 documents in the docket are listed on                                 area no longer being subject to any                                    progress in meeting air quality
                                                 the http://www.regulations.gov Web                                    remaining applicable anti-backsliding                                  standards. No changes were made to the
mstockstill on DSK3G9T082PROD with RULES2




                                                 site. Although listed in the index, some                              requirements, including nonattainment                                  final action based on these comments.
                                                 information is not publicly available,                                new source review, associated with the                                    Comment: One of the supportive
                                                 e.g., Confidential Business Information                               revoked NAAQS. In general, final                                       commenters urged the EPA to approve
                                                 or other information whose disclosure is                              approval of the redesignation substitute                               revisions to the Texas SIP to reflect
                                                 restricted by statute. Certain other                                  allows Texas to seek to revise the Texas                               changes to certain provisions for the
                                                 material, such as copyrighted material,                               SIP for the area to remove anti-                                       NNSR program effective in the HGB area
                                                 is not placed on the Internet and will be                             backsliding measures from the active                                   as a result of the EPA’s approval of the


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                                                 78692            Federal Register / Vol. 81, No. 216 / Tuesday, November 8, 2016 / Rules and Regulations

                                                 redesignation substitute. The                           ozone NAAQS. 81 FR 66240, September                     Response: The EPA disagrees with the
                                                 commenter also asserted that approval                   27, 2016.                                             commenter that it is inappropriate to
                                                 of the redesignation substitute will                       The EPA agrees that approval of the                approve redesignation substitutes for
                                                 result in the area no longer being subject              redesignation substitute will result in               the Houston-Galveston-Brazoria area for
                                                 to any remaining applicable anti-                       the HGB area no longer being subject to               the 1997 ozone standard. As the
                                                 backsliding requirements.                               the regulatory anti-backsliding                       commenter noted, the EPA created the
                                                                                                         requirements for the 1997 ozone                       redesignation substitute in the 2008
                                                    Response: Due to the drafting of the
                                                                                                         standard established pursuant to the                  ozone SIP Requirements Rule as one of
                                                 Texas SIP, no revision is necessary to
                                                                                                         principles of CAA section 172(e).                     two acceptable procedures through
                                                 alter NNSR requirements applicable in                                                                         which a state may demonstrate that it is
                                                 the HGB area following finalization of                  However, if an anti-backsliding
                                                                                                         provision is in the Texas SIP and needs               no longer required to adopt any
                                                 this redesignation substitute. The NNSR                                                                       additional applicable requirements for
                                                                                                         to be changed to reflect the change in
                                                 provisions in the existing Texas SIP                                                                          an area which have not already been
                                                                                                         this area’s status, such change is subject
                                                 contains a provision that cross-                                                                              approved into the SIP for a revoked
                                                                                                         to the SIP revision process, which in
                                                 references the designation of the area to                                                                     ozone NAAQS. 80 FR 12264, 12304
                                                                                                         turn is subject to review under CAA
                                                 40 CFR part 81. See 30 TAC section                                                                            (March 6, 2015).
                                                                                                         sections 110 and 193, if applicable. To
                                                 101.1(71). Because of the structure of                                                                          The EPA acknowledges that this rule
                                                                                                         date, Texas has not submitted a SIP
                                                 this provision, the identification of an                                                                      has been challenged in the D.C. Circuit
                                                                                                         revision concerning any anti-
                                                 area’s classification, and thus the related                                                                   by the commenter. However, the rule
                                                                                                         backsliding provisions for the EPA’s
                                                 major source thresholds and offset                                                                            has not been stayed pending resolution
                                                                                                         consideration.
                                                 ratios, is updated without any                                                                                of the litigation, and as such, it is
                                                                                                            Comment: One commenter also
                                                 additional revision to the SIP.                                                                               appropriate to continue to implement
                                                                                                         recognized the progress and supported
                                                 Therefore, the EPA’s approval of the                                                                          the 2008 ozone SIP Requirements Rule
                                                                                                         the action but wanted the EPA to clarify
                                                 redesignation substitute automatically                                                                        during the pendency of the litigation.
                                                                                                         that the redesignation substitute will
                                                 updates the applicable NNSR                                                                                     The EPA believes the redesignation
                                                                                                         permanently eliminate the anti-
                                                 requirements. Following finalization of                                                                       substitute is an appropriate mechanism
                                                                                                         backsliding requirements for the
                                                 this rule, the NNSR requirements                                                                              because it serves as a successor to a
                                                                                                         revoked ozone NAAQS.
                                                 applicable in the HGB area will be in                                                                         redesignation to attainment, for which
                                                                                                            Response: Following finalization of a              these areas would have been eligible if
                                                 accordance with the HGB area’s current
                                                                                                         redesignation substitute, an area is no               the EPA had not revoked the 1-hour and
                                                 classification for the 2008 ozone
                                                                                                         longer subject to any remaining                       1997 ozone standards. For a more
                                                 NAAQS for newly permitted sources.1
                                                                                                         applicable anti-backsliding                           detailed description of why the EPA has
                                                 We note that approval of this                           requirements associated with the
                                                 redesignation substitute does not relieve                                                                     determined the HGB area has met the
                                                                                                         specific revoked NAAQS, including the                 redesignation criteria for the revoked
                                                 sources in the area of their obligations                major source thresholds and offset ratios
                                                 under previously established permit                                                                           1997 ozone standard, see 81 FR 33166
                                                                                                         associated with the area’s classification             for the proposal and Technical Support
                                                 conditions.2 81 FR 33161, 33165. The                    under those standards. However, as
                                                 Texas SIP includes a suite of approved                                                                        Document. Upon approval of a
                                                                                                         noted previously, any changes to a SIP                redesignation substitute, a state may
                                                 permitting regulations for the Minor and                are subject to consistency checks with
                                                 Major NSR, which will continue to                                                                             request to revise its SIP to shift
                                                                                                         CAA sections 110(l) and 193, if                       regulatory anti-backsliding requirements
                                                 apply after approval of the redesignation               applicable. Because the 1997 ozone
                                                 substitute in the HGB area. Each of these                                                                     contained in the active portion of the
                                                                                                         NAAQS has been revoked, no new                        SIP to the contingency measures portion
                                                 programs has been evaluated and                         requirements associated with that
                                                 approved by EPA as consistent with the                                                                        of the SIP, subject to a showing of
                                                                                                         NAAQS would come due at any future                    consistency with the general anti-
                                                 requirements of the CAA and protective                  date.
                                                 of air quality, including the                                                                                 backsliding checks in CAA sections
                                                                                                            Comment: One commenter objected to                 110(l) and 193 (if applicable). The EPA
                                                 requirements at 40 CFR 51.160 whereby                   the use of the redesignation substitute               approval of the redesignation substitute
                                                 the TCEQ cannot issue a permit or                       mechanism and the implications of such                has the same effect on these areas’
                                                 authorize an activity that will result in               an action. The commenter incorporates                 nonattainment regulatory anti-
                                                 a violation of applicable portions of the               by reference the relevant portions of a               backsliding requirements as would a
                                                 control strategy or that will interfere                 brief filed in a petition challenging the             redesignation to attainment for the
                                                 with attainment or maintenance of a                     EPA’s promulgation of the redesignation               revoked standard. The EPA believes
                                                 national standard. So moving forward to                 substitute. See South Coast Air Quality               that, under any view of anti-backsliding
                                                 a time when the HGB area has a                          Mgmt. Dist. v. EPA, No. 15–1115 (D.C.                 for a revoked standard, it should not
                                                 marginal designation as the only                        Cir.). They contend that the HGB area                 mean imposing requirements greater
                                                 applicable nonattainment designation,                   continues to have unhealthy levels of                 than those that would apply if the
                                                 new sources and modifications will                      ozone pollution, therefore, raising the               standard had not been revoked.
                                                 continue to be permitted and authorized                 NNSR thresholds and lowering the                        An approvable redesignation
                                                 under the existing SIP requirements if                  offset requirements for the area is                   substitute must include more than a
                                                 they are determined to be protective of                 inappropriate. The commenter further                  determination of attainment of the prior
                                                 air quality. We would also note that                    states that our action will result ‘‘in               NAAQS, and show that it addresses
                                                 EPA has proposed to reclassify Houston                  great expense and inefficiency: because               redesignation criteria for that NAAQS.
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                                                 from marginal to moderate for the 2008                  some sources will not prevent pollution,              Moreover, the state remains subject to
                                                                                                         they and other sources may have to                    ongoing requirements to meet the new
                                                    1 See Section D of the TSD for this action in the
                                                                                                         retrofit at greater expense.’’ The                    more stringent 2008 ozone standard in
                                                 docket for this rulemaking for additional               commenter asks the EPA to either                      that area. In this context, the EPA
                                                 information.
                                                    2 See Final Implementation Rule for 2008 Ozone       disapprove the redesignation substitute               believes finalizing this action is
                                                 Standard, 80 FR 12264, at 12299, footnote 83 and        or delay action until the underlying                  appropriate—it recognizes and supports
                                                 at 12304, footnote 91.                                  litigation is resolved.                               Texas’s progress in having attained the


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                                                                  Federal Register / Vol. 81, No. 216 / Tuesday, November 8, 2016 / Rules and Regulations                                              78693

                                                 prior standards in the HGB area due to                  no longer subject to the regulatory anti-             populations and low-income
                                                 permanent and enforceable emissions                     backsliding requirements under the                    populations in the United States. The
                                                 reductions, and reinforces continued                    principles of CAA section 172(e) for the              EPA has determined that this rule will
                                                 attainment by demonstrating that the                    revoked 1997 8-hour ozone NAAQS;                      not have disproportionately high and
                                                 HGB area can maintain the revoked                       and imposes no additional                             adverse human health or environmental
                                                 standard. See 80 FR 12264, 12305.                       requirements. Accordingly, I certify that             effects on minority or low-income
                                                                                                         this rule will not have a significant                 populations because it does not affect
                                                 III. Final Action
                                                                                                         economic impact on a substantial                      the level of protection provided to
                                                    We find that Texas has successfully                  number of small entities under the                    human health or the environment.
                                                 demonstrated it has met the                             Regulatory Flexibility Act (5 U.S.C. 601                 Under section 307(b)(1) of the Clean
                                                 requirements for approval of a                          et seq.). Because this rule does not                  Air Act, petitions for judicial review of
                                                 redesignation substitute for the revoked                impose any additional enforceable                     this action must be filed in the United
                                                 1997 8-hour ozone NAAQS for the HGB                     duties, it does not contain any unfunded              States Court of Appeals for the
                                                 area. We are approving the                              mandate or significantly or uniquely                  appropriate circuit by January 9, 2017.
                                                 redesignation substitute for the HGB                    affect small governments, as described                Filing a petition for reconsideration by
                                                 area based on our determination that the                in the Unfunded Mandates Reform Act                   the Administrator of this final rule does
                                                 demonstration provided by the State of                  of 1995 (Pub. L. 104–4). This rule also               not affect the finality of this action for
                                                 Texas shows that the HGB area has                       does not have a substantial direct effect             the purposes of judicial review nor does
                                                 attained the revoked 1997 8-hour ozone                  on one or more Indian Tribes, on the                  it extend the time within which a
                                                 NAAQS due to permanent and                              relationship between the Federal                      petition for judicial review may be filed,
                                                 enforceable emission reductions, and                    Government and Indian Tribes, or on                   and shall not postpone the effectiveness
                                                 that it will maintain that NAAQS for ten                the distribution of power and                         of such rule or action. This action may
                                                 years from the date of the EPA’s                        responsibilities between the Federal                  not be challenged later in proceedings to
                                                 approval of this demonstration. As we                   Government and Indian Tribes, as                      enforce its requirements. (See section
                                                 no longer redesignate nonattainment                     specified by Executive Order 13175 (65                307(b)(2).)
                                                 areas to attainment for the revoked 1997                FR 67249, November 9, 2000), nor will
                                                 8-hour ozone NAAQS, approval of the                     it have substantial direct effects on the             List of Subjects
                                                 demonstration serves as a redesignation                 States, on the relationship between the               40 CFR Part 52
                                                 substitute under the EPA’s                              national government and the States, or
                                                 implementing regulations. As a result of                on the distribution of power and                        Environmental protection, Air
                                                 this action, Texas is no longer required                responsibilities among the various                    pollution control, Incorporation by
                                                 to adopt any additional applicable 1997                 levels of government, as specified in                 reference, Intergovernmental relations,
                                                 8-hour ozone NAAQS requirements for                     Executive Order 13132 (64 FR 43255,                   Nitrogen dioxide, Ozone, Volatile
                                                 the area which have not already been                    August 10, 1999), because it merely                   organic compounds.
                                                 approved into the SIP (40 CFR                           approves a demonstration provided by                  40 CFR Part 81
                                                 51.1105(b)(1)). It also allows the state to             the State of Texas and find that the HGB
                                                 request that the EPA approve the                                                                                Environmental protection, Air
                                                                                                         area is no longer subject to the
                                                 shifting of planning and control                                                                              pollution control.
                                                                                                         regulatory anti-backsliding requirements
                                                 requirements implemented pursuant to                    under the principles of CAA section                       Authority: 42 U.S.C. 7401 et seq.
                                                 the 1997 ozone NAAQS from the active                    172(e) for the revoked 1997 8-hour                      Dated: October 27, 2016.
                                                 portion of the SIP to the contingency                   ozone NAAQS; and does not alter the                   Samuel Coleman,
                                                 measures portion of the SIP, upon a                     relationship or the distribution of power             Acting Regional Administrator, Region 6.
                                                 showing of consistency with CAA                         and responsibilities established in the
                                                 sections 110(l) and 193 (if applicable)                 CAA. This rule also is not subject to                   40 CFR parts 52 and 81 are amended
                                                 (40 CFR 51.1105(b)(2)).                                 Executive Order 13045 (62 FR 19885,                   as follows:
                                                    We are also finalizing a non-                        April 23, 1997), because it is not
                                                 substantive technical correction to 40                                                                        PART 52—APPROVAL AND
                                                                                                         economically significant.                             PROMULGATION OF
                                                 CFR 81.344 (Section 107 Attainment                         The rule does not impose an
                                                 Status Designations for Texas) to reflect                                                                     IMPLEMENTATION PLANS
                                                                                                         information collection burden under the
                                                 our previous approval of a HGB area                     provisions of the Paperwork Reduction                 ■ 1. The authority citation for part 52
                                                 redesignation substitute demonstration                  Act of 1995 (44 U.S.C. 3501 et seq.).                 continues to read as follows:
                                                 for the revoked 1-hour ozone standard.                  Additionally, this rule does not involve
                                                                                                                                                                   Authority: 42 U.S.C. 7401 et seq.
                                                                                                         establishment of technical standards,
                                                 IV. Statutory and Executive Order
                                                                                                         and thus, the requirements of section                 Subpart SS—Texas
                                                 Reviews
                                                                                                         12(d) of the National Technology
                                                    Under Executive Orders 12866 (58 FR                  Transfer and Advancement Act of 1995                  ■ 2. Section 52.2275 is amended by
                                                 51735, October 4, 1993) and 13563 (76                   (15 U.S.C. 272 note) do not apply.                    adding paragraph (n) to read as follows:
                                                 FR 3821, January 21, 2011), this action                    Executive Order 12898 (59 FR 7629,
                                                 is not a ‘‘significant regulatory action’’              February 16, 1994) establishes Federal                § 52.2275 Control strategy and
                                                 and therefore is not subject to review by               executive policy on environmental                     regulations: Ozone.
                                                 the Office of Management and Budget.                    justice. Its main provision directs                   *     *    *     *     *
                                                 For this reason, this action is also not                Federal agencies, to the greatest extent                (n) Approval of Redesignation
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                                                 subject to Executive Order 13211,                       practicable and permitted by law, to                  Substitute for the Houston-Galveston-
                                                 ‘‘Actions Concerning Regulations That                   make environmental justice part of their              Brazoria 1997 Ozone Nonattainment
                                                 Significantly Affect Energy Supply,                     mission by identifying and addressing,                Area. EPA has approved the
                                                 Distribution, or Use’’ (66 FR 28355, May                as appropriate, disproportionately high               redesignation substitute for the
                                                 22, 2001). This action merely approves                  and adverse human health or                           Houston-Galveston-Brazoria 1997 ozone
                                                 a demonstration provided by the State                   environmental effects of their programs,              NAAQS nonattainment area submitted
                                                 of Texas and finds that the HGB area is                 policies, and activities on minority                  by the State of Texas on August 18,


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                                                 78694                Federal Register / Vol. 81, No. 216 / Tuesday, November 8, 2016 / Rules and Regulations

                                                 2015. The State is no longer being                                     Authority: 42 U.S.C. 7401, et seq.                                 ‘‘Houston-Galveston-Brazoria, TX’’ and
                                                 required to adopt any additional                                   ■ 4. Section 81.344 is amended:                                        adding footnote 7.
                                                 applicable 1997 ozone NAAQS                                                                                                                  The revisions and additions read as
                                                 requirements for the area.                                         ■ a. In the table for ‘‘Texas—Ozone (1-
                                                                                                                    Hour Standard)’’ by revising the entries                               follows:
                                                 PART 81—DESIGNATION OF AREAS                                       for ‘‘Houston-Galveston-Brazoria, TX’’                                 § 81.344         Texas.
                                                 FOR AIR QUALITY PLANNING                                           and revising footnote 4; and
                                                 PURPOSES                                                                                                                                  *          *       *          *         *
                                                                                                                    ■ b. In the table for ‘‘Texas—1997 8-
                                                 ■ 3. The authority citation for part 81                            Hour Ozone NAAQS (Primary and
                                                 continues to read as follows:                                      Secondary)’’ by revising the entries for

                                                                                                                                        TEXAS—OZONE 2
                                                                                                                                        [11-Hour standard]

                                                                                                                                                               Designation                                                   Classification
                                                                               Designated area
                                                                                                                                             Date 1                       Type                             Date 1                         Type


                                                         *                          *                                *                                *                          *                                 *                          *
                                                 Houston-Galveston-Brazoria Area, TX:
                                                    Brazoria County 4 .............................................................     ....................    Nonattainment       ...............         11/15/90           Severe-17.
                                                    Chambers County 4 ..........................................................        ....................    Nonattainment       ...............         11/15/90           Severe-17.
                                                    Fort Bend County 4 ...........................................................      ....................    Nonattainment       ...............         11/15/90           Severe-17.
                                                    Galveston County 4 ...........................................................      ....................    Nonattainment       ...............         11/15/90           Severe-17.
                                                    Harris County 4 .................................................................   ....................    Nonattainment       ...............         11/15/90           Severe-17.
                                                    Liberty County 4 ................................................................   ....................    Nonattainment       ...............         11/15/90           Severe-17.
                                                    Montgomery County 4 .......................................................         ....................    Nonattainment       ...............         11/15/90           Severe-17.
                                                    Waller County 4 .................................................................   ....................    Nonattainment       ...............         11/15/90           Severe-17.

                                                              *                           *                             *                             *                          *                                 *                          *
                                                     1 Thisdate is October 18, 2000, unless otherwise noted.
                                                    2 The 1-hour ozone standard is revoked effective June 15, 2005 for all areas in Texas except the San Antonio area where it is revoked effec-
                                                 tive April 15, 2009.
                                                            *                   *                    *                  *                    *                  *                     *
                                                    4 A Redesignation Substitute was approved on October 20, 2015.




                                                 *       *        *        *       *

                                                                                                                    TEXAS—1997 8-HOUR OZONE NAAQS
                                                                                                                                    [Primary and secondary]

                                                                                                                                                               Designation a                                                 Classification
                                                                               Designated area
                                                                                                                                             Date1                        Type                             Date 1                         Type


                                                         *                          *                                *                                *                          *                                 *                          *
                                                 Houston-Galveston-Brazoria, TX:
                                                    Brazoria County 7 .............................................................     ....................    Nonattainment       ...............                    (4)     Subpart   2/Severe   15.
                                                    Chambers County 7 ..........................................................        ....................    Nonattainment       ...............                    (4)     Subpart   2/Severe   15.
                                                    Fort Bend County 7 ...........................................................      ....................    Nonattainment       ...............                    (4)     Subpart   2/Severe   15.
                                                    Galveston County 7 ...........................................................      ....................    Nonattainment       ...............                    (4)     Subpart   2/Severe   15.
                                                    Harris County 7 .................................................................   ....................    Nonattainment       ...............                    (4)     Subpart   2/Severe   15.
                                                    Liberty County 7 ................................................................   ....................    Nonattainment       ...............                    (4)     Subpart   2/Severe   15.
                                                    Montgomery County 7 .......................................................         ....................    Nonattainment       ...............                    (4)     Subpart   2/Severe   15.
                                                    Waller County 7 .................................................................   ....................    Nonattainment       ...............                    (4)     Subpart   2/Severe   15.

                                                              *                           *                             *                             *                          *                                 *                          *
                                                     a Includes  Indian Country located in each county or area, except as otherwise specified.
                                                     1 This date is June 15, 2004, unless otherwise noted.
                                                             *                    *                    *                    *                                                   *                                  *                          *
                                                     4 Effective October 31, 2008.
                                                             *                    *                    *                    *                                                   *                                  *                          *
                                                     7A Redesignation Substitute was approved on November 8, 2016.
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                                                 *       *        *        *       *
                                                 [FR Doc. 2016–26586 Filed 11–7–16; 8:45 am]
                                                 BILLING CODE 6560–50–P




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Document Created: 2018-02-14 08:23:52
Document Modified: 2018-02-14 08:23:52
CategoryRegulatory Information
CollectionFederal Register
sudoc ClassAE 2.7:
GS 4.107:
AE 2.106:
PublisherOffice of the Federal Register, National Archives and Records Administration
SectionRules and Regulations
ActionFinal rule.
DatesThis rule is effective on December 8, 2016.
ContactTracie Donaldson, 214-665-6633, [email protected]
FR Citation81 FR 78691 
CFR Citation40 CFR 52
40 CFR 81
CFR AssociatedEnvironmental Protection; Air Pollution Control; Incorporation by Reference; Intergovernmental Relations; Nitrogen Dioxide; Ozone and Volatile Organic Compounds

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