83_FR_36971 83 FR 36824 - Air Plan Approval; Oregon: Lane County Permitting and General Rule Revisions

83 FR 36824 - Air Plan Approval; Oregon: Lane County Permitting and General Rule Revisions

ENVIRONMENTAL PROTECTION AGENCY

Federal Register Volume 83, Issue 147 (July 31, 2018)

Page Range36824-36837
FR Document2018-16371

The Environmental Protection Agency (EPA) proposes to approve, and incorporate by reference, specific changes to the Oregon State Implementation Plan as it applies in Lane County, Oregon. The local air agency in Lane County, Lane Regional Air Protection Agency, has revised its rules to align with recent changes to Oregon state regulations. The revisions, submitted on August 29, 2014 and March 27, 2018, are related to the criteria pollutants for which the EPA has established national ambient air quality standards--carbon monoxide, lead, nitrogen dioxide, ozone, particulate matter, and sulfur dioxide. The regulatory changes address federal particulate matter requirements, update the major and minor source pre-construction permitting programs, add state-level air quality designations, update public processes, and tighten emission standards for dust and smoke.

Federal Register, Volume 83 Issue 147 (Tuesday, July 31, 2018)
[Federal Register Volume 83, Number 147 (Tuesday, July 31, 2018)]
[Proposed Rules]
[Pages 36824-36837]
From the Federal Register Online  [www.thefederalregister.org]
[FR Doc No: 2018-16371]


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ENVIRONMENTAL PROTECTION AGENCY

40 CFR Part 52

[EPA-R10-OAR-2018-0238, FRL-9981-61--Region 10]


Air Plan Approval; Oregon: Lane County Permitting and General 
Rule Revisions

AGENCY: Environmental Protection Agency (EPA).

ACTION: Proposed rule.

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SUMMARY: The Environmental Protection Agency (EPA) proposes to approve, 
and incorporate by reference, specific changes to the Oregon State 
Implementation Plan as it applies in Lane County, Oregon. The local air

[[Page 36825]]

agency in Lane County, Lane Regional Air Protection Agency, has revised 
its rules to align with recent changes to Oregon state regulations. The 
revisions, submitted on August 29, 2014 and March 27, 2018, are related 
to the criteria pollutants for which the EPA has established national 
ambient air quality standards--carbon monoxide, lead, nitrogen dioxide, 
ozone, particulate matter, and sulfur dioxide. The regulatory changes 
address federal particulate matter requirements, update the major and 
minor source pre-construction permitting programs, add state-level air 
quality designations, update public processes, and tighten emission 
standards for dust and smoke.

DATES: Comments must be received on or before August 30, 2018.

ADDRESSES: Submit your comments, identified by Docket ID No. EPA-R10-
OAR-2018-0238, at https://www.regulations.gov. Follow the online 
instructions for submitting comments. Once submitted, comments cannot 
be edited or removed from regulations.gov. The EPA may publish any 
comment received to its public docket. Do not submit electronically any 
information you consider to be Confidential Business Information (CBI) 
or other information the disclosure of which is restricted by statute. 
Multimedia submissions (audio, video, etc.) must be accompanied by a 
written comment. The written comment is considered the official comment 
and should include discussion of all points you wish to make. The EPA 
will generally not consider comments or comment contents located 
outside of the primary submission (i.e., on the web, cloud, or other 
file sharing system). For additional submission methods, the full EPA 
public comment policy, information about CBI or multimedia submissions, 
and general guidance on making effective comments, please visit https://www.epa.gov/dockets/commenting-epa-dockets.

FOR FURTHER INFORMATION CONTACT: Kristin Hall at (206) 553-6357, or 
[email protected].

SUPPLEMENTARY INFORMATION: Throughout this document, wherever ``we,'' 
``us,'' or ``our'' is used, it is intended to refer to the EPA.

Table of Contents

I. Background
II. Evaluation of Revisions
    A. Title 12: General Provisions and Definitions
    B. Title 13: General Duties and Powers of Board and Director
    C. Title 14: Rules of Practice and Procedures
    D. Title 29: Designation of Air Quality Areas
    E. Title 30: Incinerator Regulations
    F. Title 31: Public Participation
    G. Title 32: Emission Standards
    H. Title 33: Prohibited Practices and Control of Special Classes 
of Industry
    I. Title 34: Stationary Source Notification Requirements
    J. Title 35: Stationary Source Testing and Monitoring
    K. Title 36: Excess Emissions
    L. Title 37: Air Contaminant Discharge Permits
    M. Title 38: New Source Review
    N. Title 40: Air Quality Analysis Requirements
    O. Title 41: Emission Reduction Credits
    P. Title 42: Criteria for Establishing Plant Site Emission 
Limits
    Q. Title 48: Rules for Fugitive Emissions
    R. Title 50: Ambient Air Standards and PSD Increments
    S. Title 51: Air Pollution Emergencies
III. Proposed Action
    A. Rules Approved and Incorporated by Reference
    B. Rules Approved but Not Incorporated by Reference
    C. Rules Removed
    D. Rules Deferred
IV. Incorporation by Reference
V. Oregon Notice Provision
VI. Statutory and Executive Order Reviews

I. Background

    Each state has a Clean Air Act (CAA) State Implementation Plan 
(SIP), containing the control measures and strategies used to attain 
and maintain the national ambient air quality standards (NAAQS) 
established for the criteria pollutants (carbon monoxide, lead, 
nitrogen dioxide, ozone, particulate matter, sulfur dioxide). The SIP 
contains such elements as air pollution control regulations, emission 
inventories, attainment demonstrations, and enforcement mechanisms. The 
SIP is a living compilation of these elements and is revised and 
updated by a state over time--to keep pace with federal requirements 
and to address changing air quality issues in that state.
    The Oregon Department of Environmental Quality (ODEQ) implements 
and enforces the Oregon SIP through rules set out in Chapter 340 of the 
Oregon Administrative Rules (OAR). Chapter 340 rules apply in all areas 
of the state, except where the Oregon Environmental Quality Commission 
(EQC) has designated a local agency as having primary jurisdiction.
    Lane Regional Air Protection Agency (LRAPA) has been designated by 
the EQC to implement and enforce state rules in Lane County, and also 
to adopt local rules that apply within Lane County. LRAPA may 
promulgate a local rule in lieu of a state rule provided: (1) It is as 
strict as the corresponding state rule; and (2) it has been submitted 
to and not disapproved by the EQC.\1\ This delegation of authority in 
the Oregon SIP is consistent with CAA section 110(a)(2)(E) requirements 
for state and local air agencies.
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    \1\ See OAR 340-200-0010(3), state effective April 16, 2015, 
codified at 40 CFR 52.1970.
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    On August 29, 2014 and March 27, 2018, LRAPA and ODEQ submitted 
specific revisions to the Oregon SIP as it applies in Lane County. 
These changes align local rules with recently revised state rules, 
approved by the EPA on October 11, 2017 and incorporated by reference 
into the Code of Federal Regulations (CFR) at 40 CFR part 52, subpart 
MM (82 FR 47122). The changes address federal particulate matter 
requirements, revise the major and minor source pre-construction 
permitting programs, add state-level air quality designations, update 
public processes, and tighten emission standards for dust and smoke.
    We note that the March 27, 2018, revisions partially supersede the 
August 29, 2014, revisions. In this action, we are reviewing and taking 
action on the most recent version of the submitted rules applicable in 
Lane County, as described below. In describing our evaluation, we have 
focused on the substantive rule changes. We have not described 
typographical corrections, minor edits, and renumbering changes.

II. Evaluation of Revisions

A. Title 12: General Provisions and Definitions

    Title 12 in LRAPA's rules contains generally-applicable provisions 
and definitions used throughout Lane County air quality rules. The 
submitted revisions align the definitions in Section 12-005 with the 
definitions in state rules, recently reviewed and approved by the 
EPA.\2\ In this section of our evaluation, we discuss key changes to 
existing definitions and substantive new terms used in multiple titles. 
Terms used primarily in a single title are described in the discussion 
section for that particular title.
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    \2\ See OAR 340-200-0020, state effective April 16, 2015, and 
approved by the EPA on October 11, 2017 (82 FR 47122).
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    Key definition changes include narrowing the definition of 
``adjacent'' by limiting the use of this defined term (``interdependent 
facilities that are nearby to each other'') to the ``major source'' and 
``source'' terms in LRAPA's program for air contaminant discharge 
permits. Definitions of the terms ``capture efficiency,'' ``control 
efficiency,'' ``destruction efficiency,''

[[Page 36826]]

and ``removal efficiency'' were added to differentiate amongst similar 
terms.
    LRAPA revised the term ``categorically insignificant activities'' 
to narrow when emissions may be excluded from consideration--in some 
aspects of source permitting--as ``insignificant.'' For example, there 
is a cap on the aggregate emissions from fuel burning equipment that 
may be considered categorically insignificant, and there is also a 
restriction on when emergency generators may be considered 
categorically insignificant (limiting the exemption to no more than 
3,000 horsepower, in the aggregate). We note that LRAPA adopted a new 
category of insignificant emissions, as Oregon did, namely, fuel 
burning equipment brought on site for six months or less for 
construction, maintenance, or similar purposes, provided the equipment 
performs the same function as the permanent equipment, and is operated 
within the source's existing plant site emission limit. Importantly, 
however, insignificant activity emissions must be included in 
determining whether a source is a ``federal major source'' or a ``major 
modification'' subject to federal major new source review (federal 
major NSR).\3\ In addition, categorically insignificant activities must 
still comply with all applicable requirements.
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    \3\ This includes both the prevention of significant 
deterioration (PSD) new source review permitting program that 
applies in attainment and unclassifiable areas (40 CFR 51.166) and 
the nonattainment major source new source review permitting program 
that applies in nonattainment areas (40 CFR 51.165).
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    LRAPA revised definitions to consistently use certain terms, such 
as ``construction,'' ``control device,'' ``federal major source,'' 
``immediately,'' ``fugitive emissions,'' ``major modification,'' 
``major source,'' ``PM10,'' ``PM2.5,'' and 
``stationary source.'' LRAPA added definitions to align with state 
rules, including ``continuous compliance determination method,'' 
``emergency,'' ``emission limitation,'' ``excursion,'' ``greenhouse 
gases,'' ``Indian governing body,'' ``Indian reservation,'' ``potential 
to emit,'' and ``synthetic minor source.'' The term ``internal 
combustion engine'' was defined to clarify the universe of regulated 
fuel burning equipment under local rules.
    In the definition of ``opacity,'' LRAPA spelled out that visual 
opacity determinations are to be made using EPA Method 203B. Method 
203B is designed for time-exception regulations, such as those that 
establish a limit on the average percent opacity for a period or 
periods aggregating more than three minutes in any one hour. There are 
a small number of LRAPA visible emissions standards that are not time-
exception regulations, and in those cases, LRAPA rules specify a 
different test method, including, for example, EPA Method 9. All 
specified methods are included in the March 2015 version of the Oregon 
Source Sampling Manual, approved by the EPA on October 11, 2017, for 
purposes of the limits in the Oregon SIP (82 FR 47122). Please see our 
discussion of opacity standards and methods for visual opacity 
determinations in Section H. below.
    Consistent with the state definition, LRAPA defined the term 
``portable'' as ``designed and capable of being carried or moved from 
one location to another.'' At the same time, the definition of 
``stationary source'' was updated to include portable sources required 
to have permits under the air contaminant discharge permitting program 
at Title 37.
    LRAPA changed the definition of ``modification'' to differentiate 
it from the terms ``major modification'', ``permit modification'', and 
``title I modification'', and to make clear that it applies to a change 
in a portion of a source, as well as a source in its entirety. LRAPA 
also simplified the definition of ``ozone precursor'' to remove 
redundant language pointing to the reference method for measuring 
volatile organic compounds (VOCs). The term ``VOC'' was also updated to 
reflect changes to the federal definition of ``VOC'' at 40 CFR 
51.100(s).
    LRAPA formally defined ``wood fuel-fired device'', consistent with 
the definition in state rules. The term was added and defined as ``a 
device or appliance designed for wood fuel combustion, including 
cordwood stoves, woodstoves, and fireplace stove inserts, fireplaces, 
wood fuel-fired cook stoves, pellet stoves and combination fuel 
furnaces and boilers that burn wood fuels.'' The remainder of the new 
definitions established by LRAPA in Title 12 are common dictionary 
terms and are not discussed in this summary.
    We have evaluated these Title 12 definition changes, and the 
changes to definitions discussed in the sections below, and we propose 
to find that LRAPA's defined terms are consistent with CAA requirements 
and the EPA's implementing regulations. We therefore propose to approve 
the submitted definitions into the Oregon SIP for Lane County.
Other Provisions
    The revisions also include general rules in Title 12 submitted to 
be consistent with state rules in Division 200. LRAPA revised Section 
12-001 General to align with OAR 340-200-0010 Purpose and Application, 
including repealing the SIP-approved version of Section 12-001(2), 
state effective March 8, 1994, and renumbering the section paragraphs. 
Section 12-001(2) stated that ``in cases of apparent conflict between 
rules and regulations within these titles, the most stringent 
regulation applies unless otherwise expressly stated,'' and is 
appropriately removed from the SIP.
    Section 12-010 was added to spell out abbreviations and acronyms 
used throughout the Lane County air quality rules, consistent with OAR 
340-200-0025. LRAPA also added Section 12-020 listing activities that 
are not subject to local air quality regulations, comparable to OAR 
340-200-0030 and Oregon Revised Statutes (ORS) 468A-020. Section 12-
020(2) makes clear, however, that the exceptions in subsection (1) do 
not apply to the extent such local air regulations are necessary to 
implement CAA requirements. We note that LRAPA added Section 12-025 
identifying key reference materials, including the March 2015 version 
of the Oregon Source Sampling Manual, approved by the EPA into the 
Oregon SIP on October 11, 2017 (82 FR 47122). We propose to approve and 
incorporate by reference these changes to Title 12.
    Consistent with our recent action on OAR 340-200-0050, LRAPA did 
not submit Section 12-030 Compliance Schedules for approval into the 
SIP. Any compliance schedule established by LRAPA under this provision 
must be specifically submitted to, and approved by the EPA, before it 
will be federally-enforceable or change the requirements of the EPA-
approved SIP.\4\
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    \4\ 40 CFR 51.102(a)(2) and (c) and 260; 82 FR 47122, October 
11, 2017.
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B. Title 13: General Duties and Powers of Board and Director

    Title 13 sets out general authority to adopt, implement and enforce 
regulations in Lane County, including issuing permits. These general 
authority provisions were first approved into the Oregon SIP in 1993 
(58 FR 47385, September 9, 1993). We note, that at the time of that 
original approval, the general authority provisions were located in 
Title 12, and were later renumbered to Title 13. These provisions 
contain long-standing requirements for make-up of the LRAPA Board and 
disclosures of potential conflicts of interest for board members and 
director, approved as meeting CAA

[[Page 36827]]

state board requirements under section 128.\5\
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    \5\ LRAPA Section 12-025, renumbered to Section 13-025; 58 FR 
47385, September 9, 1993.
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    We propose to find that the submitted updates to Title 13 remain 
consistent with CAA section 110 requirements for permit issuance, 
enforcement authority, state and local agencies, and state boards. In 
this action, we are proposing to approve Title 13 to the extent the 
provisions relate to the implementation of requirements in the SIP, but 
we note we are not incorporating these provisions by reference into 40 
CFR part 52, subpart MM. These types of rules are generally not 
incorporated by reference into the CFR because they may conflict with 
the EPA's independent administrative and enforcement procedures under 
the CAA.

C. Title 14: Rules of Practice and Procedures

    The submissions revise Title 14 to align with Oregon's SIP-approved 
state rules in Division 11. LRAPA's revisions follow the Oregon 
Attorney General Model Rules, as do the comparable Oregon rules, and 
address procedures for filing and serving documents in contested cases 
(appeals of LRAPA and ODEQ actions). Title 14 was revised to improve 
the clarity and completeness of contested case appeals coming before 
the LRAPA Board. This title provides authority needed to implement the 
SIP in Lane County, and is consistent with the CAA requirements for the 
issuance of permits and enforcement authority. The EPA therefore 
proposes to approve the submitted revisions to Title 14 Rules of 
Practice and Procedures, to the extent it relates to implementation of 
requirements contained in the Oregon SIP. We are not incorporating 
these rules by reference into the CFR, however, because we rely on the 
EPA's independent administrative and enforcement procedures under the 
CAA.

D. Title 29: Designation of Air Quality Areas

    This division contains rules for the designation of air quality 
areas in Lane County. In Section 29-0010, LRAPA culled definitions to 
leave only those directly related to designated areas in Lane County, 
including Eugene-Springfield and Oakridge. Sections 29-0020, 0050, and 
0060 were added to mirror state air quality region and prevention of 
significant deterioration area rules in OAR 340-204-0020, 0050, and 
0060, respectively. Section 29-0030 addresses the two nonattainment 
areas in Lane County, namely the Oakridge Urban Growth Boundary (coarse 
particulate matter (PM10)) and the Oakridge Nonattainment 
Area (fine particulate matter (PM2.5)). In addition, LRAPA 
added Sections 29-0070 Special Control Areas, 29-0080 Motor Vehicle 
Inspection Boundary Designations, and 29-0090 Oxygenated Gasoline 
Control Areas, to correspond to state rule sections OAR 340-204-0070, 
0080, and 0090, respectively.
    A significant change in this title is the introduction of three 
concepts: ``sustainment areas,'' ``reattainment areas,'' and 
``priority'' sources.\6\ Both sustainment and reattainment areas are 
state-level designations designed to add to federal requirements. We 
note that LRAPA and Oregon have both implemented a state-level 
designation in the past--specifically, the maintenance area 
designation. Following Oregon's lead, LRAPA is now defining two added 
state designations intended to help areas address air quality problems 
by further regulating emission increases from major and minor sources.
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    \6\ See Sections 29-0300 through 0320 and the corresponding 
state provisions at OAR 340-204-0300 through 0320.
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    To designate an area as sustainment or reattainment, the LRAPA rule 
revisions create a similar process as was used in the past to designate 
a maintenance area. The process includes public notice, a rule change, 
and approval by the LRAPA Board. Oregon and LRAPA designed the new 
designations and associated requirements with the stated intent to help 
solve air quality issues while not changing attainment planning 
requirements or federal requirements for major stationary sources.
    The sustainment area designation is designed to apply to an area 
where monitored values exceed, or have the potential to exceed, ambient 
air quality standards, but which has not been formally designated 
nonattainment by the EPA.\7\ To construct or modify a major or minor 
source in a sustainment area, the owner or operator may need to offset 
new emissions with reductions from other sources, including the option 
of targeting ``priority'' sources, in that area. Priority sources are 
defined as sources causing or contributing to elevated emissions levels 
in the area. This is determined using local airshed information, such 
as emissions inventories and modeling results. A new major or minor 
stationary source seeking to construct in a sustainment area may obtain 
more favorable offsets from priority sources.
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    \7\ As codified at 40 CFR part 81.
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    The reattainment area designation is designed to apply to an area 
that is formally designated nonattainment by the EPA, but that has 
achieved three years of quality-assured/quality-controlled monitoring 
data showing the area is attaining the relevant standard.\8\ When an 
area has met attainment planning requirements and has attained the 
standard, the CAA requires that a state submit, and the EPA approve, a 
maintenance plan demonstrating attainment for the next ten years. The 
state may then request that the EPA redesignate the area to attainment. 
In the interim, LRAPA may designate the area a reattainment area. The 
submitted rules require that all elements of the area's attainment plan 
continue to apply with a reattainment designation. However, minor 
sources will be subject to less stringent state new source review 
permitting requirements--unless the source has been specifically 
identified as a significant contributor to air quality problems in the 
area, or the source has control requirements that are relied on as part 
of the attainment plan. The federal requirements for redesignation 
remain in place and are unchanged.
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    \8\ See Section 29-0310.
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    In the submissions, LRAPA included the Oakridge area as a state-
designated reattainment area with respect to PM2.5.\9\ We 
note that at the federal level, the EPA has approved the Oakridge 
PM2.5 attainment plan, determined the Oakridge area attained 
the 2006 24-hour PM2.5 NAAQS by the applicable attainment 
date, and achieved clean data for the most recent three years of valid, 
certified monitoring data (83 FR 5537, February 8, 2017). However, the 
Oakridge area remains a federal nonattainment area for the 2006 24-hour 
PM2.5 NAAQS until LRAPA and Oregon submit a maintenance plan 
to the EPA to ensure the area can continue to meet the standard for the 
next 10 years, and the EPA approves the maintenance plan and 
redesignates the Oakridge area to attainment.\10\ We propose to 
determine that designation of the Oakridge area as a state reattainment 
area does not change federal requirements for the area, and that the 
Oakridge PM2.5 attainment plan remains in effect.
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    \9\ See Section 29-0310(2)(a).
    \10\ See 40 FR 81.338.
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    We propose to approve these revisions to Title 29 because the 
submitted rules for state-level designations are consistent with CAA 
requirements and the EPA's implementing regulations for attainment 
planning and major source pre-construction permitting. The related 
changes to LRAPA's major and minor source permitting program--and our

[[Page 36828]]

evaluation of those changes--are discussed in detail in Section M. 
below.

E. Title 30: Incinerator Regulations

    The submissions made changes to LRAPA's incinerator regulations 
consistent with those in state rule at Division 230. Most changes were 
minor; however, a significant change was made to tighten limits and 
clarify the appropriate method of compliance for crematory 
incinerators. Consistent with our previous action on August 3, 2001, we 
propose to approve the revisions to Title 30, except as those rules 
relate to hazardous air pollutants and odors that are not also criteria 
pollutants or precursors (66 FR 40616).

F. Title 31: Public Participation

    Title 31 governs public participation in the review of proposed 
permit actions. This title corresponds to Division 209 in state rules. 
LRAPA submitted this title for SIP approval, consistent with recent 
changes to Oregon's public participation rules. Title 31 provides four 
different levels of public process, depending on the type of permitting 
action, with Category I having the least amount of public notice and 
opportunities for public participation, and Category IV having the 
most. The majority of new source review permitting actions are subject 
to category III, for which LRAPA provides public notice and an 
opportunity for a hearing at a reasonable time and place if requested, 
or if LRAPA otherwise determines a public hearing is necessary. 
Category IV public process apply to major new source review permitting 
actions, and LRAPA provides an informational meeting before issuing a 
draft permit for public review and comment.
    LRAPA has aligned the requirements for informational meetings with 
state rules in Division 209, to provide at least a 14-day public 
notice, before the scheduled informational meeting. The submitted rules 
also make clear that although LRAPA accepts, and will consider, 
comments from the public during the informational meeting, LRAPA does 
not maintain an official record of the informational meeting, or 
respond in writing to comments provided at the informational meeting. 
This same approach to informational meetings in state rules was 
approved by the EPA into the Oregon SIP on October 11, 2017 (82 FR 
47122).
    The submissions also addressed public participation requirements 
for permitting in state-designated sustainment and reattainment areas, 
detailed the option of email notification, and identified where public 
comment records are made available for review. Hearing procedures, laid 
out at Section 31-0070, correlate with hearing provisions at OAR 340-
209-0070. We propose to approve the hearing procedures, but not 
incorporate them by reference, to avoid confusion or potential conflict 
with the EPA's independent authorities.
    In sum, we have concluded that the submitted LRAPA public 
participation rules are consistent with the CAA and federal 
requirements for public notice of new source review actions in 40 CFR 
51.161 Public availability of information, 40 CFR 51.165 Permit 
requirements, and 40 CFR 51.166 Prevention of significant deterioration 
of air quality, and we propose to approve them.

G. Title 32: Emission Standards

    This title contains emission standards and provisions of general 
applicability, including requirements for highest and best practicable 
treatment and control, operating and maintenance, typically achievable 
control technology, additional requirements imposed on a permit by 
permit basis, particulate emission limits for process equipment and 
other sources (other than fuel or refuse burning equipment or fugitive 
emissions), and alternative emission limits (bubbles).
    LRAPA made changes to Section 32-001 to clarify what definitions 
apply to this section (those in Titles 12 and 29) in addition to more 
specific definitions for ``distillate fuel oil'' and ``residual fuel 
oil.'' In Section 32-007, LRAPA clarified that pressure drop and 
ammonia slip are operational, maintenance, and work practice 
requirements that may be established in a permit condition or notice of 
construction approval. Section 32-008 Typically Achievable Control 
Technology was also updated by moving procedural requirements from the 
definitions section to this section, and revising them to account for 
Oregon's changes to NSR, Major NSR and Type A State NSR, discussed 
below in Section M.
    Notably, LRAPA retained its general, SIP-approved visible emission 
standards in the form of an aggregate exception of three minutes in a 
60-minute period. Three-minute aggregate periods are to be measured by 
EPA Method 203B, a continuous opacity monitoring system, or an 
alternative monitoring method approved by LRAPA and that has been 
determined by the EPA to be equivalent to Method 203B. While LRAPA's 
form and method for evaluating visible emissions from sources are 
different than those in Oregon's corresponding SIP-approved rules (OAR 
340-208-0110 was recently revised to a 6-minute block average as 
measured by EPA Method 9), both forms and their associated test methods 
are equally-valid means to measure opacity and determine compliance 
with standards.\11\
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    \11\ The EPA approved OAR 340-208-0110, state effective April 
16, 2015 on October 11, 2017 (82 FR 47122).
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    LRAPA also made changes to phase in tighter visible emission limits 
granted to wood-fired boilers in operation before 1970. These sources 
are required to meet a 40% visible emission limit. However, starting in 
2020, these sources must meet a 20% visible emissions limit, except for 
certain, limited situations where a boiler-specific, short-term limit 
may be established in a source's operating permit, if appropriate and 
allowed under the SIP-approved permitting program.
    Notably, LRAPA revised particulate emission limits under Section 
32-015 to reduce emissions from certain non-fuel-burning sources built 
before June 1970. The rules in this section phase in tighter standards 
for older sources, generally tightening grain loading standards for 
existing sources from 0.2 grains per dry standard cubic foot (gr/dscf) 
to between 0.10 and 0.15 gr/dscf, depending on whether there is 
existing source test data for the source, and what that data shows. 
Timelines to achieve these rates depend on whether sources were built 
before or after June 1, 1970. Existing sources that operate equipment 
less frequently (less than 867 hours a year) must meet less stringent 
standards. For new sources, LRAPA has increased the stringency of the 
grain loading standard by adding a significant digit, revising the 
standard from 0.1 gr/dscf to 0.10 gr/dscf. Compliance with the grain 
loading standards is determined using test methods specifically 
identified in the March 2015 version of the Oregon Source Testing 
Manual, approved on October 11, 2017 (82 FR 47122).
    LRAPA also tightened grain loading standards for fuel burning 
equipment (Sections 32-020 and 025) in the same manner as described 
above. Process weight provisions in Section 32-045 were aligned with 
state rules, and the listing of process weight limitations was moved to 
Section 32-8010. Sulfur content of fuels and sulfur dioxide emission 
limits in Section 32-065 were also updated by removing a coal space-
heating exemption that expired in 1983, and clarifying that recovery 
furnaces are regulated in Title 33.
    We propose to approve the revisions to Title 32 because they are 
consistent with the CAA and strengthen the SIP.

[[Page 36829]]

We note we are taking no action on Sections 32-050, and 32-055 because 
they are nuisance provisions related to concealment and masking of 
emissions and particle fallout. We are also taking no action on the 
acid rain provision in Section 32-075. These types of provisions are 
generally not appropriate for SIP approval because they are not related 
to attainment and maintenance of the NAAQS under CAA section 110 and 
the SIP.

H. Title 33: Prohibited Practices and Control of Special Classes of 
Industry

    Title 33 establishes controls on specific sectors, including board 
products facilities, charcoal plants, Kraft pulp mills, and hot mix 
asphalt plants. LRAPA clarified that Title 12 definitions apply to this 
section, except where specific definitions are established in Title 33. 
Throughout this title, LRAPA removed open burning provisions made 
obsolete now that LRAPA limits open burning through regulations 
established in Title 47, most recently approved by the EPA on October 
23, 2015 (80 FR 64346).
    In Section 33-060, LRAPA made changes to improve the enforceability 
of opacity limits on veneer dryers and hardboard manufacturing 
operations. Section 33-070 was updated to ensure local rules for Kraft 
pulp mills are as stringent as the state equivalent. LRAPA also revised 
what was formerly referred to as ``replacement or significant 
upgrading'' of equipment for purposes of determining whether more 
restrictive standards apply. Alternative temperatures for hardboard 
tempering ovens must be approved using the procedures in the federal 
NESHAP for Plywood and Composite Wood Products, 40 CFR part 63, subpart 
DDDD. LRAPA added source test methods for particulate matter and 
demonstrations of oxygen concentrations in recovery furnace and lime 
kiln gases. Under the reporting section, LRAPA removed the alternative 
sampling option where transmissometers are not feasible because all 
pulp mills in Oregon now have transmissometers. Minor changes were made 
under a provision in this section authorizing LRAPA to determine that 
upset conditions at a subject source are chronic and correctable by the 
installation of new or modified process or control equipment, and the 
establishment of a program and schedule to effectively eliminate the 
deficiencies causing the upset conditions. This provision is consistent 
with the corresponding state provision at OAR 340-234-0270.\12\
---------------------------------------------------------------------------

    \12\ See EPA proposed approval of OAR 340-234-0270, state 
effective April 16, 2015 (March 22, 2017, 82 FR 14654 at page 
14667).
---------------------------------------------------------------------------

    LRAPA revised Section 33-075 Hot Mix Asphalt Plants to specify the 
appropriate test method to determine compliance. In addition, LRAPA 
added a requirement that hot mix asphalt plants must develop a fugitive 
emissions control plan if requested.
    Except for the requirements relating to total reduced sulfur, odor, 
and reduction of animal matter, we propose to approve the submitted 
changes to Title 33 because they strengthen the SIP and are consistent 
with CAA requirements. Total reduced sulfur, odor, and reduction of 
animal matter requirements are not appropriate for SIP approval because 
they are not criteria pollutants, not related to the criteria 
pollutants regulated under title I of the CAA, not essential for 
meeting and maintaining the NAAQS, nor related to the requirements for 
SIPs under section 110 of the CAA. We are therefore excluding from the 
SIP the following parts of Section 33-070: The definitions of ``Other 
sources'' and ``Total Reduced Sulfur (TRS)'' in paragraph (1), and 
paragraphs (3)(a), (4)(b), (5)(b), (6)(a), and (6)(b); and Section 33-
080 Reduction of Animal Matter.

I. Title 34: Stationary Source Notification Requirements

    Title 34 contains a registration program for sources not subject to 
one of LRAPA's operating permit programs, as well as some of the 
requirements for the construction of new and modified sources. In 
Section 34-010, LRAPA broadened the applicability of this title, as 
Oregon did in Division 210, so that it applies to ``air contaminant 
sources'' and to ``modifications of existing portable sources that are 
required to have permits under title 37'', in addition to stationary 
sources. Sections 34-016 and 34-017 were added for recordkeeping and 
reporting, and enforcement, respectively.\13\ LRAPA also added a new 
section for general source registration requirements and detailed the 
information an owner or operator must submit to register and re-
register. Sections 34-034, 035, and 036 were added to clarify when a 
Notice of Construction application is required, how the construction/
modification is categorized for purposes of process and public review, 
and what to include in a notice to construct.
---------------------------------------------------------------------------

    \13\ See OAR 340-214-0114, and OAR 340-214-0120.
---------------------------------------------------------------------------

    LRAPA added Sections 34-037 and 038 to spell out when sources may 
proceed with construction or modification, and that construction 
approval does not mean approval to operate the source, unless the 
source is not required to obtain an ACDP under Title 37.
    We propose to approve the revisions to Title 34 because we have 
determined they are consistent with CAA requirements and correct or 
clarify existing source notification requirements to help ensure that 
changes to sources go through the appropriate approval process. We note 
that Section 34-170 through 200 are not appropriate for SIP approval 
because they are related to title V of the CAA, not title I and the 
SIP.

J. Title 35: Stationary Source Testing and Monitoring

    This title contains general requirements for source testing and 
monitoring. Title 35 was recently established to correlate closely with 
state provisions in Division 212. LRAPA clarified the term ``stationary 
source'' to include portable sources that require permits under Title 
37. This change is consistent with the term as used in other titles. 
LRAPA also clarified, with respect to stack height and dispersion 
technique requirements, the procedures referenced in 40 CFR 51.164 are 
the major and minor NSR review procedures used in Oregon, as 
applicable.
    Section 35-0140 sets forth test methods, and requires that 
sampling, testing, or measurements performed pursuant to this title 
conform to the methods in Oregon's March 2015 revised versions of the 
Source Sampling Manual, Volumes I and II, and Continuous Monitoring 
Manual. The revised manuals were approved by the EPA into the Oregon 
SIP on October 11, 2017 (82 FR 47122). In that action we concluded that 
the revised manuals are consistent with the EPA's monitoring 
requirements for criteria pollutants and we approved them for the 
purpose of the limits approved into the SIP.
    We note that the submitted provisions in Section 35-0200 through 
0280 are related to compliance assurance monitoring, and are not 
appropriate for SIP approval. The specified rules apply to title V 
sources only and implement the requirements of 40 CFR parts 64 and 70. 
We are taking no action on these rules because they are not appropriate 
for SIP approval under section 110 of title I of the CAA.

K. Title 36: Excess Emissions

    LRAPA made several revisions to the excess emissions and emergency 
provision requirements in Title 36 and

[[Page 36830]]

submitted them for approval into the SIP. We are deferring action on 
the Title 36 revisions. We intend to address the submitted provisions 
of Title 36 in a separate, future action.

L. Title 37: Air Contaminant Discharge Permits

    The Air Contaminant Discharge Permit (ACDP) program is both the 
federally-enforceable non-title V state operating permit program, and 
also the administrative mechanism used to implement the notice of 
construction and new source review programs. There are six types of 
ACDPs under state and LRAPA rules: Construction, General, Short Term 
Activity, Basic, Simple, and Standard. The types of ACDPs have not 
changed, but LRAPA has made some changes and clarifications to the 
criteria and requirements for the various ACDPs. LRAPA also revised 
application requirements to set application renewal deadlines, and to 
clarify the required contents of applications.
    The applicability rules at Section 37-0020 reference the table of 
applicability criteria for the types of permits in Section 37-8010 
Table 1. The associated fees are listed at Section 37-8020 Table 2. 
These sections are consistent with OAR 340-216-8010 Table 1 and OAR 
216-8020 Table 2, respectively, including the type of ACDP (Basic, 
General, Simple, or Standard) each source category is required to 
obtain prior to construction and operation. Overall, the list of 
sources required to obtain Basic, General, Simple, or Standard ACDPs 
was slightly expanded, with one exception. LRAPA removed the 
requirement that greenhouse gas-only sources obtain a Standard ACDP, 
and pay the associated permitting fees, consistent with the federal 
court decision described below in Section M.
    For Construction ACDPs at Section 37-0052, LRAPA added a qualifier 
to the rule that construction commence within 18 months after the 
permit is issued. This deadline now applies only if a source is subject 
to federal major NSR and certain state major NSR permitting, which we 
have discussed in more detail below. LRAPA also added language to the 
public notice requirements for a modified Construction ACDP, making 
clear when public notice as a Category I permit action is appropriate, 
as opposed to a Category II permit action under Title 31. Although the 
construction permit itself expires, the requirements remain in effect 
and must be added to the subsequent operating permit.\14\
---------------------------------------------------------------------------

    \14\ See Section 37-0082.
---------------------------------------------------------------------------

    General ACDP requirements at Section 37-0060 were updated to refer 
to the appropriate public notice procedures, reference the fee class 
for specific source categories, and confirm the procedures that will be 
used to rescind a source's General ACDP, if the source no longer 
qualifies and must obtain a Simple or Standard ACDP instead. LRAPA also 
changed the rule section to make clear that the agency may rescind an 
individual source's assignment to a General Permit. When notified, the 
source has 60 days to submit an application for a Simple or Standard 
ACDP. General ACDP Attachments, Section 37-0062, was updated to clarify 
public notice requirements and fees.
    For Simple ACDPs, it is now clear that LRAPA may determine a source 
ineligible for a Simple ACDP with generic emission limits, and instead, 
require the source obtain a Standard ACDP with source-specific emission 
limits, as necessary. LRAPA also clarified the public notice 
requirements and fees for Simple ACDPs and removed redundant 
requirements from the section that are also in Section 37-0020.
    The requirements at Section 37-0066 were updated to lay out the 
different application requirements for sources seeking a Standard ACDP 
permit when they are subject to federal major versus minor NSR. LRAPA 
also changed this section to allow sources with multiple activities or 
processes at a single site, covered by more than one General ACDP or 
that has multiple processes, to obtain a Standard ACDP.
    For processing permits, LRAPA's provision at Section 37-0082 now 
expressly provide that sources with expired ACDP permits may continue 
operating under the expired permit if they have submitted a timely and 
complete renewal application. Sources may also request a contested case 
hearing, if LRAPA revokes a permit or denies a permit renewal. We have 
determined in our review that LRAPA's Title 37 provisions are 
consistent with the Division 216 rule sections recently approved by the 
EPA on October 11, 2017 (82 FR 47122). Therefore, we find Title 37 is 
consistent with CAA requirements and propose to approve the submitted 
provisions.

M. Title 38: New Source Review

    Parts C and D of title I of the CAA, 42 U.S.C. 7470-7515, set forth 
preconstruction review and permitting program requirements that apply 
to new and modified major stationary sources of air pollutants, known 
as major new source review (major NSR). The CAA major NSR programs 
include a combination of air quality planning and air pollution control 
technology program requirements. States adopt major NSR programs as 
part of their SIP. Part C is the Prevention of Significant 
Deterioration (PSD) program, which applies in areas that meet the NAAQS 
(attainment areas), as well as in areas for which there is insufficient 
information to determine whether the area meets the NAAQS 
(unclassifiable areas). Part D is the nonattainment new source review 
(nonattainment NSR) program, which applies in areas that are not in 
attainment of the NAAQS (nonattainment areas).
    The EPA regulations for SIPs implementing these programs are 
contained in 40 CFR 51.165 and 51.166, and appendix S to part 51. 
Regulations addressing the EPA's minor new source review (NSR) 
requirements are located at 40 CFR 51.160 through 164. We note that 
states generally have more flexibility in designing minor NSR programs. 
Minor NSR programs, however, must still ensure that emissions from the 
construction or modification of a facility, building, structure, or 
installation (or any combination thereof) will not interfere with 
attainment and maintenance of the NAAQS, or violate an applicable 
portion of a control strategy approved into the SIP.
    Oregon and LRAPA's major NSR program has long differed from the 
federal major NSR programs in several respects. The program does not 
subject the same sources and modifications to major NSR as would the 
EPA's rules. It also has had lower major source thresholds for sources 
in nonattainment and maintenance areas. The program requires fugitive 
emissions to be included in applicability determinations for all new 
major sources and modifications to existing major sources. However, 
Oregon and LRAPA also utilize a Plant Site Emission Limit, or ``PSEL,'' 
approach to defining ``major'' modifications, rather than the 
contemporaneous net emissions increase approach used in the EPA's main 
major NSR program (not the EPA's plant-wide applicability limit (PAL) 
option). The EPA has previously determined that, overall, the major NSR 
program in Oregon is at least as stringent as the EPA's major NSR 
program and meets the requirements of 40 CFR 51.165 and 51.166.\15\
---------------------------------------------------------------------------

    \15\ See 76 FR 80747, 80748 (December 27, 2011) (final action); 
76 FR 59090, 59094 (Sept. 23, 2011) (proposed action).
---------------------------------------------------------------------------

    Under the previous SIP-approved program, both federal major sources 
and large minor sources have been covered

[[Page 36831]]

by Title 38. The submitted changes to Title 38 revise this approach and 
establish distinct components within Title 38, referred to as Major New 
Source Review (LRAPA Major NSR--Sections 38-0045 through 0070) and 
State New Source Review (State NSR--Sections 38-0245 through 0270) to 
help clarify the requirements that apply to federal major sources and 
large minor sources. Pre-construction review and permitting of other 
minor sources continue to be covered in Title 34 Stationary Source 
Notification Requirements, Title 37 Air Contaminant Discharge Permits, 
and Title 42 Plant Site Emission Limits.
    As discussed above, Oregon and LRAPA have created two new state 
designations. ``Sustainment'' areas are state-designated areas that are 
violating or close to violating the NAAQS but which are not formally 
designated nonattainment by the EPA. ``Reattainment'' areas are state-
designated areas that have been designated nonattainment by the EPA, 
but that have achieved improved air quality, and data shows the area is 
attaining the NAAQS. Key changes to the LRAPA Major NSR and State NSR 
programs are discussed below.
Section 38-0010 Applicability, General Prohibitions, General 
Requirements, and Jurisdiction
    LRAPA has narrowed the scope of sources that are subject to LRAPA 
Major NSR in nonattainment and maintenance areas by increasing the 
thresholds, from the significant emission rate (SER) to the major 
source thresholds in the CAA specified for the current nonattainment 
areas in Lane County.\16\ At the same time, LRAPA's State NSR 
requirements under Title 38 apply to the construction of new sources 
with emissions of a regulated air pollutant at or above the SER, as 
well as increases in emissions of a regulated pollutant from existing 
sources that equal or exceed the SER over the netting basis. This is 
consistent with Oregon's rules in Division 224.
---------------------------------------------------------------------------

    \16\ See Title 12.
---------------------------------------------------------------------------

    LRAPA has divided the State NSR program into two parts: Type A, 
which generally applies in nonattainment, reattainment, and maintenance 
areas, and Type B, for attainment, unclassifiable, and sustainment 
areas. Sources subject to Type A State NSR remain subject to many of 
the same requirements that apply to such sources under the current SIP-
approved program in nonattainment \17\ and maintenance areas, whereas 
sources subject to Type B State NSR are subject to requirements 
equivalent to the minor NSR requirements under the PSEL rules in the 
current SIP.\18\ Because LRAPA's changes to the definition of ``federal 
major source'' in nonattainment areas are consistent with the federal 
definition of ``major stationary source'' at 40 CFR 51.165 for the 
designated areas in Lane County, and because LRAPA has retained most of 
the characteristics of the previous Major NSR permitting program for 
Type A State NSR, the EPA proposes to approve these revisions.
---------------------------------------------------------------------------

    \17\ Key changes are discussed below in the discussion of State 
NSR.
    \18\ Sources in sustainment areas subject to Section 38-0245(2) 
are also subject to Type A NSR.
---------------------------------------------------------------------------

    LRAPA also made revisions here, and in several other places in its 
rules, to be consistent with changes to the federal PSD rules made in 
response to a Supreme Court decision on greenhouse gases (May 7, 2015, 
80 FR 26183).\19\ Specifically, LRAPA revised definitions and 
procedures in Titles 12, 36, 37, 38, and 42 to remove greenhouse gas-
only sources from PSD applicability. Therefore, as required by the 
federal PSD program, a source is now subject to the LRAPA Major NSR 
requirements for greenhouse gases in attainment and unclassifiable 
areas only when the source is subject to LRAPA Major NSR requirements 
anyway, for one or more criteria pollutants. As specified in the 
federal PSD regulations, LRAPA's rules continue to require that sources 
of greenhouse gases subject to LRAPA Major NSR in attainment and 
unclassifiable areas for a criteria pollutant, are also subject to 
LRAPA Major NSR for greenhouse gases.
---------------------------------------------------------------------------

    \19\ Utility Air Regulatory Group v. Environmental Protection 
Agency, 134 S.Ct. 2427 (2014).
---------------------------------------------------------------------------

    LRAPA also made clear in this section that a source is subject to 
Title 38 requirements for the designated area in which the source is 
located--for each regulated pollutant, including precursors. Finally, 
revisions clarify that a subject source must not begin actual 
construction, continue construction, or operate without complying with 
the requirements of Title 38 and obtaining an ACDP permit authorizing 
construction or operation.
Section 38-0025 Major Modification
    LRAPA moved the definition of ``major modification'' from Title 12 
to Title 38, to reflect that the former definition was really a 
procedure for determining whether a major modification has, or will 
occur, rather than a true definition. The revised definition and 
procedure are intended to better explain how emissions increases and 
decreases are tracked and factored into calculations for major 
modifications.
    LRAPA also specified that emissions from categorically 
insignificant activities, aggregate insignificant emissions, and 
fugitive emissions must be included in determining whether a major 
modification has occurred. In addition, LRAPA clarified that major 
modifications for ozone precursors, or PM2.5 precursors, 
also constitute major modifications for ozone and PM2.5, 
respectively. Finally, language was added stating that the PSEL, 
netting basis, and emissions changes must be recalculated when more 
accurate or reliable emissions information becomes available, to 
determine whether a major modification has occurred.
Section 38-0030 New Source Review Procedural Requirements
    LRAPA revised this section to account for differing LRAPA Major NSR 
and State NSR procedures. Included are: When LRAPA will determine 
whether an application is complete; when a final determination will be 
made; when construction is permitted; how to revise a permit and extend 
it; and when and how LRAPA will terminate an NSR permit.
    With respect to the provision in the federal PSD regulations 
authorizing extensions to the 18-month construction time limitation in 
40 CFR 52.21(r)(2) ``upon a satisfactory showing that an extension is 
justified,'' LRAPA revised its extension provisions to be consistent 
with recent EPA guidance. This guidance sets out the EPA's views on 
what constitutes an adequate justification for an extension of the 18-
month timeframe under 40 CFR 52.21(r)(2) for commencing construction of 
a source that has been issued a PSD permit.\20\ LRAPA also extended the 
time period for making a final determination on an LRAPA Major NSR or 
Type A State NSR permit from six months to one year, to reflect the 
more complex nature of such permitting actions. The one-year time-frame 
for permit issuance is consistent with the EPA's requirements for major 
NSR permitting.\21\
---------------------------------------------------------------------------

    \20\ Memorandum from Stephen D. Page, Director of EPA's Office 
of Air Quality Planning and Standards, to Regional Air Division 
Directors, Region 1-10, entitled Guidance on Extension of Prevention 
of Significant Deterioration (PSD) Permits under 40 CFR 52.21(r)(2), 
dated January 31, 2014.
    \21\ See 40 CFR 52.21(q)(2).
---------------------------------------------------------------------------

Section 38-0038 Fugitive and Secondary Emissions
    This section was moved and amended to account for State NSR 
requirements.

[[Page 36832]]

For sources subject to LRAPA Major NSR and Type A State NSR, fugitive 
emissions are included in the calculation of emission rates and subject 
to the same controls and analyses required for emissions from 
identifiable stacks or vents. Secondary emissions are not included in 
potential to emit calculations for LRAPA Major NSR or Type A State NSR, 
but once a source is subject to LRAPA Major NSR or Type A State NSR, 
secondary emissions must be considered in the required air quality 
impact analysis in Titles 38 and 40.
Sections 38-0045 Through 0070 Major NSR
    LRAPA has made changes consistent with Oregon's corresponding rules 
and has specified LRAPA Major NSR requirements for each of the 
following designations: Sustainment, nonattainment, reattainment, 
maintenance, and attainment/unclassifiable.
Major NSR in Sustainment Areas
    New sources and modifications subject to LRAPA Major NSR in 
sustainment areas (areas that are classified as attainment/
unclassifiable by the EPA but have air quality either violating the 
NAAQS or just below the NAAQS) must meet PSD requirements for each 
sustainment pollutant, but must also satisfy additional requirements 
for obtaining offsets and demonstrating a net air quality benefit to 
address the air quality problems in the area, as discussed in more 
detail below. Because such areas are designated as attainment/
unclassifiable by the EPA, requiring compliance with LRAPA's PSD 
requirements meets federal requirements. The additional requirements 
for obtaining offsets and demonstrating a net air quality benefit go 
beyond CAA requirements for attainment/classifiable areas and are thus 
approvable.
Major NSR in Nonattainment Areas
    For new sources and modifications subject to LRAPA Major NSR in 
nonattainment areas, LRAPA reorganized and clarified the requirements, 
aligning with state rules, including that they apply for each pollutant 
for which the area is designated nonattainment. Lowest Achievable 
Emission Rate (LAER) and offsets continue to be required for such 
sources and modifications. In addition, LRAPA's submitted revisions 
tighten offsets required in nonattainment areas (except with respect to 
ozone). LRAPA rules now initially require 1.2:1 offsets to emissions in 
non-ozone areas. If offsets are obtained from priority sources, the 
ratio may be reduced to 1:1, equivalent to the federal requirement in 
40 CFR 51.165(a)(9)(i).
    The submitted changes also tighten requirements for sources seeking 
construction permit extensions, and limit extension requests to two 18-
month periods, with certain additional review and re-evaluation steps. 
We note that, beyond the federal rules, the rules applicable in Lane 
County extend best available control technology (BACT) and offset 
requirements to new and modified minor sources in nonattainment areas.
Major NSR in Reattainment Areas
    In reattainment areas (areas meeting the NAAQS but not yet 
redesignated to attainment), new sources and modifications subject to 
LRAPA Major NSR must continue to meet all nonattainment LRAPA Major NSR 
requirements for the reattainment pollutant. In addition, to ensure air 
quality does not again deteriorate, LRAPA requires that sources subject 
to LRAPA Major NSR also meet other requirements for each reattainment 
pollutant. Specifically, the owner or operator of the source must 
demonstrate the source will not cause or contribute to a new violation 
of the ambient air quality standard, or PSD increment, by conducting an 
air quality analysis as outlined in Title 40.
Major NSR in Maintenance Areas
    In maintenance areas, new sources and modifications subject to 
LRAPA Major NSR must continue to comply with LRAPA Major NSR 
requirements for attainment/unclassifiable areas (i.e., PSD), and also 
conduct a demonstration or obtain allowances to ensure a net air 
quality benefit in the area. Rather than setting out the specific PSD 
requirements in this section, however, this section simply references 
the PSD requirements at Section 38-0070.
Major NSR in Attainment/Unclassifiable Areas (PSD)
    For the construction of new sources and modifications subject to 
LRAPA Major NSR in attainment or unclassifiable areas, LRAPA revised 
its rules to address court decisions impacting federal PSD rules. 
First, as discussed above, LRAPA revised definitions and procedures in 
Titles 12, 36, 37, 38, and 42 to remove greenhouse gas-only sources 
from PSD applicability. Therefore, as required under the EPA's federal 
PSD program, a source is now subject to the LRAPA Major NSR 
requirements for greenhouse gases only when the source also is subject 
to LRAPA PSD requirements for one or more criteria pollutants.
    Second, LRAPA revised its requirements for preconstruction 
monitoring to address another court decision and the resulting 
revisions to the EPA's PSD rules. On October 20, 2010, the EPA 
promulgated the 2010 PSD PM2.5 Implementation Rule, revising 
the federal significant monitoring concentration (SMC) and significant 
impact levels (SILs) for PM2.5 (75 FR 64864). On January 22, 
2013, the U.S. Court of Appeals for the District of Columbia, in Sierra 
Club v. EPA,\22\ issued a judgment that, among other things, vacated 
the provisions adding the PM2.5 SMC to the federal 
regulations at 40 CFR 51.166(i)(5)(i)(c) and 52.21(i)(5)(i)(c). In its 
decision, the court held that the EPA did not have the authority to use 
SMCs to exempt permit applicants from the statutory requirement in CAA 
section 165(e)(2) that ambient monitoring data for PM2.5 be 
included in all PSD permit applications. Although the PM2.5 
SMC was not a required element, where a state program contained an SMC 
and applied it to allow new permits without requiring ambient 
PM2.5 monitoring data, the provision would be inconsistent 
with the court's opinion and CAA section 165(e)(2).
---------------------------------------------------------------------------

    \22\ 703 F.3d 458 (D.C. Cir. 2013).
---------------------------------------------------------------------------

    At the EPA's request, the decision also vacated and remanded the 
portions of the 2010 PSD PM2.5 Implementation Rule that 
revised 40 CFR 51.166 and 40 CFR 52.21 related to SILs for 
PM2.5. The EPA requested this vacatur and remand of two of 
the three provisions in the EPA regulations that contain SILs for 
PM2.5 because the wording of these two SIL provisions (40 
CFR 51.166(k)(2) and 40 CFR 52.21(k)(2)) was inconsistent with the 
explanation of when and how SILs should be used by permitting 
authorities, that we provided in the preamble to the Federal Register 
publication when we promulgated these provisions. Specifically, the EPA 
erred because the language promulgated in 2010 did not provide 
permitting authorities the discretion to require a cumulative impact 
analysis notwithstanding that the source's impact is below the SIL, 
where there is information that shows the proposed source would lead to 
a violation of the NAAQS or increments. The third SIL provision (40 CFR 
51.165(b)(2)) was not vacated and remains in effect. On December 9, 
2013, the EPA removed the vacated PM2.5 SILs and SMC 
provisions from federal PSD regulations (78 FR 73698). On April 17, 
2018, the EPA issued guidance to states on

[[Page 36833]]

recommended PM2.5 (and ozone) SILs.\23\ As stated in this 
guidance, the EPA intends to use information yielded from application 
of this guidance by permitting authorities to determine whether a 
future rulemaking to codify SILs is appropriate.
---------------------------------------------------------------------------

    \23\ Memorandum from Peter Tsirigotis, Director of EPA's Office 
of Air Quality Planning and Standards, to Regional Air Division 
Directors, Region 1-10, entitled Guidance on Significant Impact 
Levels for Ozone and Fine Particles in the Prevention of Significant 
Deterioration Permitting Program, dated April 17, 2018.
---------------------------------------------------------------------------

    In response to the vacatur and remand, LRAPA submitted revisions to 
several titles. LRAPA revised the PM2.5 SMC to zero, as the 
EPA did, to address this issue in the federal PSD regulations. LRAPA 
also revised the definition of ``significant impact levels'' or ``SIL'' 
in state rules, removed the vacated language and added text to make 
clear that ``no source may cause or contribute to a new violation of an 
ambient air quality standard or PSD increment even if the single source 
impact is less than the significant impact level.'' We propose to 
approve LRAPA's revisions as consistent with the court decision.
    LRAPA also aligned local rules with state rules to remove language 
allowing the substitution of post-construction monitoring for 
preconstruction monitoring. LRAPA added an exemption from the 
preconstruction ambient air monitoring requirement, with LRAPA's 
approval, if representative or conservative background concentration 
data is available, and the source demonstrates that such data is 
adequate to determine that the source would not cause or contribute to 
a violation of an ambient air quality standard or any applicable PSD 
increment. These revisions, along with the other existing provisions 
regarding preconstruction monitoring in LRAPA's PSD regulations, are 
consistent with 40 CFR 51.166(m)(iii) and therefore we propose to 
approve them.
    Finally, LRAPA added the requirement to demonstrate a net air 
quality benefit for subject sources that will have a significant impact 
on air quality in a designated area other than the area in which the 
source is located. This demonstration of net air quality benefit is 
beyond federal PSD requirements, and will be discussed in more detail 
below.
Sections 38-0245 Through 0270 State NSR
    Title 38 now also specifies State NSR requirements for sustainment, 
nonattainment, reattainment, maintenance, and attainment/unclassifiable 
areas. For sources that emit between the SER and 100 tons per year in 
nonattainment and maintenance areas (Type A State NSR sources), LRAPA 
has relaxed some of the requirements, as compared to the current SIP, 
that historically went beyond federal requirements. In nonattainment 
areas, if the increase in emissions from the source is the result of a 
major modification,\24\ BACT rather than LAER is now required. In 
maintenance areas, Type A State NSR sources are no longer required to 
conduct preconstruction monitoring to support the ambient air impact 
analysis for the source.
---------------------------------------------------------------------------

    \24\ Oregon and LRAPA use the term ``major modification'' for 
physical and operational changes that result in significant 
increases to both existing major and existing minor sources.
---------------------------------------------------------------------------

    In both nonattainment and maintenance areas, LRAPA's State NSR 
rules allow a reduction of the offset ratio if some of the offsets come 
from sources that are contributing to air quality problems in the area 
(which historically have been woodstoves). As we found in our 2017 
action on the Oregon SIP, the State NSR requirements in sustainment and 
reattainment areas go beyond CAA requirements for minor NSR programs by 
requiring a demonstration of a net air quality benefit (discussed 
below).\25\ (October 11, 2017, 82 FR 47122).
---------------------------------------------------------------------------

    \25\ October 11, 2017, 82 FR 47122.
---------------------------------------------------------------------------

    Because BACT, LAER, pre-construction monitoring, and offsets are 
not required components of a State's SIP-approved minor NSR program, 
and because the offset requirements now provide sources with incentives 
to obtain offsets from sources found to be specifically contributing to 
air quality problems in the area, we propose to find that LRAPA's minor 
NSR program continues to meet CAA requirements for approval.
Sections 38-0500 Through 0540 Net Air Quality Benefit Emission Offsets
    The CAA requires that, for nonattainment NSR, the proposed major 
source or major modifications must obtain emissions reductions of the 
affected nonattainment pollutant from the same source or other sources 
in the area to offset the proposed emissions increase.\26\ Consistent 
with that requirement, the EPA's nonattainment NSR regulations require 
that major sources and major modifications in nonattainment areas 
obtain emissions offsets at a ratio of at least 1 to 1 (1:1) from 
existing sources in the area to offset emissions from the new or 
modified source.\27\
---------------------------------------------------------------------------

    \26\ See CAA section 173(c).
    \27\ See 40 CFR 51.165(a)(9)(i).
---------------------------------------------------------------------------

    LRAPA revised the criteria for demonstrating a net air quality 
benefit, in line with Oregon's rule revisions approved by the EPA on 
October 11, 2017 (82 FR 47122). In addition to the incentives provided 
to sources subject to Type A State NSR in sustainment and reattainment 
areas (to obtain offsets from priority sources discussed above) LRAPA 
made an additional change. Rules were revised to provide incentives for 
major sources to use priority source offsets for LRAPA Major NSR 
sources in nonattainment and reattainment areas by increasing the 
required offset ratio for major sources to 1.2:1 from the current 1:1. 
If a source subject to LRAPA Major NSR obtains offsets of some 
emissions increases from priority sources, the ratio may be reduced to 
no less than 1:1, the minimum offset level under the federal 
nonattainment NSR program.
    We note that LRAPA did not submit Section 38-0510(3) for SIP 
approval because the submissions do not also include a demonstration 
for inter-pollutant offset ratios as recommended by the EPA's inter-
pollutant offset policy.\28\ LRAPA also did not submit Section 38-0520 
for SIP approval, in this case because the section addresses ozone 
nonattainment areas, of which Lane County has none. We propose to 
approve the revisions to LRAPA's net air quality benefit emissions 
rules, except Sections 38-0510(3) and 38-0520, for which LRAPA did not 
request approval.
---------------------------------------------------------------------------

    \28\ Gina McCarthy, EPA Administrator. ``Revised Policy to 
Address Reconsideration of Inter-pollutant Trading Provisions for 
Fine Particles (PM2.5),'' Memorandum to Regional 
Administrators, July 21, 2011.
---------------------------------------------------------------------------

Summary
    We propose to approve the submitted revisions to Title 38 because 
we have determined that, in conjunction with other provisions including 
but not limited to rules in Titles 12, 31, 34, 35, 40, 42, and 50, the 
revisions are consistent with the requirements of the federal PSD and 
minor NSR permitting programs applicable statewide. We have also 
determined that the submitted changes are consistent with the federal 
requirements for nonattainment NSR for the current designated 
nonattainment areas in Lane County.\29\
---------------------------------------------------------------------------

    \29\ See 40 CFR 51.160 through 161, 51.165, and 51.166. See also 
EPA proposed approval of Oregon nonattainment NSR program (March 22, 
2017, 82 FR 14654 at page 14663).
---------------------------------------------------------------------------

N. Title 40: Air Quality Analysis Requirements

    This title contains the air quality analysis requirements, which 
are

[[Page 36834]]

primarily used in Title 38 New Source Review. By its terms, this title 
does not apply unless a rule in another section refers to Title 40. 
Substantive changes include revising the definition of ``allowable 
emissions'' at Section 40-0020(1) to add ``40 CFR part 62'' to the list 
of referenced standards and clarifying the definition of ``baseline 
concentration year'' at Section 40-0020(2), that varies depending on 
the pollutant for a particular designated area. LRAPA also revised the 
definitions of ``competing PSD increment consuming source impacts'' and 
``competing NAAQS [national ambient air quality standards] source 
impacts'' \30\ to broaden the reference to include all of LRAPA's 
ambient air quality standards at Title 50 (which include the NAAQS) 
\31\ and to specify that in calculating these concentrations, sources 
may factor in the distance from the new or modified source to other 
emission sources (range of influence or ROI), spatial distribution of 
existing emission sources, topography, and meteorology.
---------------------------------------------------------------------------

    \30\ See Sections 40-0020(4) and (5), respectively.
    \31\ Our approval of Section 38-0020(4) and (5) would not extend 
to those ambient standards in Title 50 that we have excluded from 
our approval.
---------------------------------------------------------------------------

    LRAPA also clarified and reorganized the defined ROI formula at 
Section 38-0020(10). The ROI is the distance from the new or modified 
source or source impact area to other emission sources that could 
impact that area. The ROI and source impact area are used to predict 
the air quality impacts of a new or modified source. LRAPA continues to 
limit the maximum ROI to 50 kilometers and has moved the constant 
values in the ROI formula from the table at the end of the division 
into the text of the rule.
    PSD requirements were revised to align with the court decision 
vacating and remanding the PM2.5 SIL. Please see Section M. 
above for a discussion of the court decision. This title now includes 
language stating that application of a SIL as a screening tool does not 
preclude LRAPA from requiring additional analysis to evaluate whether a 
proposed source or modification will cause or contribute to a violation 
of an air quality standard or PSD increment.
    PSD requirements for demonstrating compliance with air quality 
related values were also updated. LRAPA made clear that, if applicable, 
the analysis applies to each emission unit that increases the actual 
emissions of a regulated pollutant above the portion of the netting 
basis attributable to that emission unit. In addition, the term ``air 
quality related values'' includes visibility, deposition, and ozone 
impacts. A visibility analysis for sources impacting the Columbia River 
Gorge National Scenic Area, is now required, where applicable, to 
evaluate potential impacts on that area. We propose to approve Title 40 
into the LRAPA SIP as meeting CAA requirements, including the EPA's 
major NSR permitting regulations at 40 CFR 51.165 and 51.166, and the 
regional haze requirements at 40 CFR part 51, subpart P.

O. Title 41: Emission Reduction Credits

    In Title 41, LRAPA submitted revisions to clarify when reductions 
in criteria pollutant emissions that are also hazardous air pollutant 
emissions are creditable. Emission reductions required to meet federal 
NESHAP standards in 40 CFR parts 61 or 63 are not creditable reductions 
for purposes of Major NSR in nonattainment or reattainment areas in 
Lane County. However, criteria pollutant reductions that are in excess 
of, or incidental to, the required hazardous air pollutant reductions 
can potentially earn credits--as long as all conditions are met. LRAPA 
also lowered the threshold for banking credits in the Oakridge area--
from ten tons to one ton--to encourage trading activity. Finally, the 
rules were revised to specify when such credits are considered used up, 
and when they expire. The revisions are consistent with the CAA and the 
EPA's implementing regulations and we propose to approve them.

P. Title 42: Criteria for Establishing Plant Site Emission Limits

    This division contains a regulatory program for managing airshed 
capacity through a PSEL. PSELs are used in Oregon, including Lane 
County, to protect ambient air quality standards, prevent significant 
deterioration of air quality, and to ensure protection of visibility. 
Establishing such a limit is a mandatory step in the Oregon and LRAPA 
source permitting process. A PSEL is designed to be set at the actual 
baseline emissions from a source plus approved emissions increases and 
minus required emissions reductions. This design is intended to 
maintain a more realistic emissions inventory. Oregon and LRAPA use a 
fixed baseline year of 1977 or 1978 (or a prior year if more 
representative of normal operation) and factor in all approved 
emissions increases and required emissions decreases since baseline, to 
set the allowable emissions in the PSEL. Increases and decreases since 
the baseline year do not affect the baseline, but are included in the 
difference between baseline and allowable emissions.
    ``Netting basis'' is a concept in this program that defines both 
the baseline emissions from which increases are measured--to determine 
if changes are subject to review--as well as the process for re-
establishing the baseline, after changes have been through the new 
source review permitting process.
    As noted above, the PSEL program is used, in part, to implement NSR 
permitting. For major NSR, if a PSEL is calculated at a level greater 
than an established SER over the baseline actual emission rate, an 
evaluation of the air quality impact and major NSR permitting are 
required. If not, the PSEL is set without further review (a 
construction permit may also be required). For minor NSR (State NSR), a 
similar calculation is conducted. If the difference is greater than the 
SER, an air quality analysis is required to evaluate whether ambient 
air quality standards and increments are protected. The air quality 
analysis results may require the source to reduce the airshed impact 
and/or comply with a tighter emission limit.
    LRAPA submitted a number of changes to the PSEL requirements in 
this title, to align with similar changes to state rules. Many of the 
changes are organizational, centralizing requirements related to PSELs 
in Title 42. Other changes are more substantive. LRAPA revised the 
criteria for establishing PSELs at Sections 42-0035 through 0090 by 
consolidating requirements from other sections into these provisions, 
and revising them to take into account the differentiated major and 
State NSR requirements. LRAPA also updated the source-specific annual 
PSEL provision, at Section 42-0041, to account for PM2.5 and 
major and State NSR requirements. We note that as previously written, 
the PSEL rule included provisions for PSEL increases that were not 
subject to New Source Review. The submissions revoke those provisions 
and instead make these PSEL increases subject to the State New Source 
Review requirements in Title 38. The comprehensive requirements for 
approval of such PSEL increases in sustainment, nonattainment, 
reattainment, maintenance, and attainment/unclassifiable areas are as 
stringent as the current requirements.
    LRAPA updated the short-term PSEL requirements at Section 42-0042 
to spell out the process a source must follow to request an increase in 
a short-term PSEL--and when that source must obtain offsets, or an 
allocation, from an available growth allowance in the area.

[[Page 36835]]

    At Section 42-0046, LRAPA clarified how the initial netting basis 
for PM2.5 is set and how potential increases are limited. 
Changes were made to spell out how a source's netting basis may be 
reduced--when a rule, order or permit condition requires the 
reductions--and how unassigned emissions and emissions reduction 
credits are to be addressed. In addition, the submitted revisions 
clarify that a source may retain a netting basis if that source 
relocates to a different site, as opposed to an adjacent site. However, 
it is only allowed if LRAPA determines the different site is within or 
affects the same airshed, and that the time span between operation at 
the old site and new sites is less than six months.
    At Section 42-0048, LRAPA consolidated baseline period and baseline 
emission rate provisions, and indicated when a baseline emission rate 
may be recalculated--limited to circumstances when more accurate or 
reliable emission factor information becomes available, or when 
regulatory changes require additional emissions units be addressed. 
Changes were also made to Section 42-0051, which addresses actual 
emissions, and how to appropriately calculate the mass emissions of a 
pollutant from an emissions source during a specified time period. 
LRAPA revised this provision to account for the changes in the program 
that differentiate major NSR from State NSR.
    We note that Section 42-0055 unassigned emissions procedures were 
clarified. The rule section was revised to state that a source may not 
use emissions that are removed from the netting basis--including 
emission reductions required by rule, order or permit condition--for 
netting any future permit actions. LRAPA also updated Section 42-0090, 
addressing the impact on PSEL calculations and permitting requirements 
when sources combine, split, and change primary Standard Industrial 
Code. The changes make clear that sources must qualify to combine, and 
that it will impact the netting basis and SER, and trigger new source 
review and recordkeeping requirements, if applicable.
    Except for Section 42-0060, we propose to approve Title 42 into the 
SIP because we believe the revisions to the PSEL requirements are 
intended to clarify and strengthen the rules. Section 42-0060 is not 
appropriate for SIP approval because it is applicable to sources of 
hazardous air pollutants addressed under CAA section 112, rather than 
sources of criteria pollutants addressed under CAA section 110.

Q. Title 48: Rules for Fugitive Emissions

    LRAPA submitted fugitive emission requirements in Title 48 for SIP 
approval, consistent with Oregon's fugitive emissions rules in Division 
208. This title requires sources to take reasonable precautions to 
prevent fugitive emissions, and may require a fugitive emissions 
control plan to prevent visible emissions from leaving a facility 
property for more than 18 seconds in a six-minute period. Compliance is 
based on EPA Method 22, Visual Determination of Fugitive Emissions from 
Material Sources and Smoke Emissions from Flares. We propose to approve 
Title 48 into the SIP because we have determined that these fugitive 
emissions rules are consistent with CAA requirements.

R. Title 50: Ambient Air Standards and PSD Increments

    Title 50 contains ambient air quality standards and Prevention of 
Significant Deterioration (PSD) increments applicable in Lane County. 
Most notably, LRAPA updated Title 50 for all current federal national 
ambient air quality standards and federal reference methods.\32\
---------------------------------------------------------------------------

    \32\ See Sections 50-015 through 045.
---------------------------------------------------------------------------

    At Section 50-005(2), LRAPA added language expressly stating that 
no source may cause or contribute to a new violation of an ambient air 
quality standard or a PSD increment, even if the single source impact 
is less than the significant impact level. This change was made to 
address a court decision vacating and remanding regulatory text for the 
PM2.5 significant impact level. Please see Section M for a 
detailed discussion of the basis for our determination that this 
change, along with other related changes, adequately addresses the 
court decision.
    LRAPA updated the table of PSD increments, also known as maximum 
allowable increases and clarified that PSD increments are compared to 
aggregate increases in pollution concentrations from the new or 
modified source over the baseline concentration.\33\ LRAPA included 
ambient air quality thresholds for pollutants in this title, moved from 
Title 38, to centralize ambient standards and thresholds. Finally, 
LRAPA consolidated requirements for areas subject to an approved 
maintenance plan, moving ambient standards and thresholds from Title 38 
into Section 50-065. We propose to approve the submitted revisions to 
Title 50 as being consistent with CAA requirements and implementing 
regulations at 40 CFR parts 50 and 51.
---------------------------------------------------------------------------

    \33\ See Section 50-055.
---------------------------------------------------------------------------

S. Title 51: Air Pollution Emergencies

    This title establishes criteria for identifying and declaring air 
pollution episodes at levels below the levels of significant harm. 
LRAPA submitted mostly minor changes to this title. However, 
significant changes were made to establish a significant harm level for 
PM2.5, and PM2.5 trigger levels corresponding 
with alert, warning, and emergency episodes. We propose to approve the 
submitted revisions to Title 51 because this title remains consistent 
with the EPA's rules at 40 CFR part 51, subpart H Prevention of Air 
Pollution Emergency Episodes.

III. Proposed Action

    We propose to approve, and incorporate by reference into the SIP, 
specific rule revisions submitted by Oregon and LRAPA on August 29, 
2014 (state effective March 31, 2014) and March 27, 2018 (state 
effective March 23, 2018), to apply in Lane County. We also propose to 
approve, but not incorporate by reference, specific provisions that 
provide LRAPA with authority needed for SIP approval.
    As requested by LRAPA and the state, we are removing certain rules 
from the SIP, because they are obsolete, redundant, or replaced by 
equivalent or more stringent local rules. We are also deferring action 
on a section of rules because we intend to address them in a separate, 
future action.
    We note that the submissions include changes to OAR 340-200-0040, a 
rule that describes the Oregon procedures for adopting its SIP and 
references all of the state air regulations that have been adopted by 
LRAPA and ODEQ for approval into the SIP (as a matter of state law), 
whether or not they have yet been submitted to or approved by the EPA. 
We are not approving the changes to OAR 340-200-0040 because the 
federally-approved SIP consists only of regulations and other 
requirements that have been submitted by LRAPA and ODEQ and approved by 
the EPA.

A. Rules Approved and Incorporated by Reference

    We propose to approve into the Oregon SIP, and incorporate by 
reference at 40 CFR part 52, subpart MM, revisions to the following 
LRAPA rule sections. Each rule section listed is state effective March 
23, 2018, unless marked with an asterisk, denoting it is effective 
March 31, 2014:
     Title 12--Definitions (001, 005, 010, 020, 025);

[[Page 36836]]

     Title 29--Designation of Air Quality Areas (0010, 0020, 
0030, 0040, 0050, 0060, 0070*, 0080*, 0090*, 0300, 0310, 0320);
     Title 30--Incinerator Regulations (010, 015*, 020*--except 
(2) and (8), 025*--except (9), 030*--except (1)(I) and (2)(E), 035*, 
040*, 045*--except (3), 050*, 055*, 060*);
     Title 31--Public Participation (0010, 0020, 0030, 0040, 
0050, 0060, 0070, 0080);
     Title 32--Emission Standards (001, 005, 006, 007, 008, 
009, 010, 015, 020, 030, 045, 050, 060, 065, 070, 090*, 100, 8010);
     Title 33--Prohibited Practices and Control of Special 
Classes of Industry (005, 060, 065, 070--except, in (1), the 
definitions of ``non-condensables'', ``other sources'', and ``TRS'', 
(3)(a), (4)(b), (5)(b), (6)(a), (6)(b), 500);
     Title 34--Stationary Source Notification Requirements 
(005, 010, 015, 016, 017, 020, 025, 030, 034, 035, 036, 037, 038);
     Title 35--Stationary Source Testing and Monitoring (0010, 
0110, 0120, 0130, 0140, 0150*);
     Title 37--Air Contaminant Discharge Permits (0010, 0020, 
0025, 0030, 0040, 0052, 0054, 0056, 0060, 0062, 0064, 0066, 0068, 0070, 
0082, 0084, 0090, 0094, 8010, 8020);
     Title 38--New Source Review (0010, 0020, 0025, 0030, 0034, 
0038, 0040, 0045, 0050, 0055, 0060, 0070, 0245, 0250, 0255, 0260, 0270, 
0500, 0510--except (3), 0530, 0540);
     Title 40--Air Quality Analysis Requirements (0010, 0020, 
0030, 0040, 0045, 0050, 0060, 0070);
     Title 41--Emission Reduction Credits (0010*, 0020, 0030);
     Title 42--Stationary Source Plant Site Emission Limits 
(0010, 0020, 0030, 0035, 0040, 0041, 0042, 0046, 0048, 0051, 0055, 
0080, 0090);
     Title 48--Rules for Fugitive Emissions (001, 005, 010, 
015);
     Title 50--Ambient Air Standards and PSD Increments (001, 
005, 015, 025, 030, 035, 040, 045, 050, 055, 060*, 065); and
     Title 51--Air Pollution Emergencies (005, 007, 010, 011, 
015, 020, 025, Table I, Table II, Table III).

B. Rules Approved But Not Incorporated by Reference

    We propose to approve, but not incorporate by reference, the 
following LRAPA rule sections. Each rule section is state effective 
March 23, 2018, unless marked with an asterisk, denoting the rule is 
effective March 31, 2014:
     Title 13--General Duties and Powers of Board and Director 
(005*, 010*, 020*, 025*, 030*, 035*); and
     Title 14--Rules of Practice and Procedures (110, 115, 120, 
125, 130, 135, 140, 145, 147, 150, 155, 160, 165, 170, 175, 185, 190, 
200, 205).

C. Rules Removed

    We are removing the following rules from the current federally-
approved Oregon SIP at 40 CFR part 52, subpart MM, because they have 
been repealed, replaced by rules noted in paragraph A. above, or the 
state has asked that they be removed:
     Title 12--Definitions (001(2)), state effective March 8, 
1994;
     Title 30--Incinerator Regulations (005), state effective 
March 8, 1994;
     Title 33--Prohibited Practices and Control of Special 
Classes of Industry (030, 045), state effective November 10, 1994; and
     Title 34--Stationary Source Notification Requirements 
(040), state effective June 13, 2000.
    We also are removing the following rules in the table entitled, 
``Rules Also Approved for Lane County'', state effective April 16, 
2015, because LRAPA has submitted equivalent or more stringent local 
rules to apply in place of those requirements:

Table 5--EPA-Approved Oregon Administrative Rules (OAR) Also Approved 
for Lane County

     Division 200--General Air Pollution Procedures and 
Definitions (0020);
     Division 202--Ambient Air Quality Standards and PSD 
Increments (0050);
     Division 204--Designation of Air Quality Areas (0300, 
0310, 0320);
     Division 208--Visible Emissions and Nuisance Requirements 
(0110, 0210);
     Division 214--Stationary Source Reporting Requirements 
(0114)(5);
     Division 216--Air Contaminant Discharge Permits (0040, 
8010);
     Division 222--Stationary Source Plant Site Emission Limits 
(0090);
     Division 224 -New Source Review (0030, 0530);
     Division 225--Air Quality Analysis Requirements (0010, 
0020, 0030, 0040, 0045, 0050, 0060, 0070);
     Division 226--General Emissions Standards (0210); and
     Division 228--Requirements for Fuel Burning Equipment and 
Fuel Sulfur Content (0210).

D. Rules Deferred

    We are deferring action on the following rules, state effective 
March 23, 2018, because we intend to address them in a separate, future 
action:
     Title 36--Excess Emissions (001, 005, 010, 015, 020, 025, 
030).

IV. Incorporation by Reference

    In this rule, we are proposing to include in a final rule 
regulatory text that includes incorporation by reference. In accordance 
with requirements of 1 CFR 51.5, we are proposing to incorporate by 
reference the provisions described above in Section III. Proposed 
Action. The EPA has made, and will continue to make, these documents 
generally available electronically through https://www.regulations.gov 
and in hard copy at the appropriate EPA office (see the FOR FURTHER 
INFORMATION CONTACT section of this preamble for more information).

V. Oregon Notice Provision

    Oregon Revised Statute 468.126 prohibits ODEQ from imposing a 
penalty for violation of an air, water or solid waste permit unless the 
source has been provided five days' advanced written notice of the 
violation and has not come into compliance or submitted a compliance 
schedule within that five-day period. By its terms, the statute does 
not apply to Oregon's title V program or to any program if application 
of the notice provision would disqualify the program from federal 
delegation. Oregon has previously confirmed that, because application 
of the notice provision would preclude EPA approval of the Oregon SIP, 
no advance notice is required for violation of SIP requirements.

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 CAA and applicable 
federal regulations. 42 U.S.C. 7410(k); 40 CFR 52.02(a). Thus, in 
reviewing SIP submissions, the EPA's role is to 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);
     is not an Executive Order 13771 (82 FR 9339, February 2, 
2017) regulatory action because SIP approvals are exempted under 
Executive Order 12866;
     does not impose an information collection burden under the 
provisions of the Paperwork Reduction Act (44 U.S.C. 3501 et seq.);

[[Page 36837]]

     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 this action does not involve technical standards; and
     does not provide the EPA with the discretionary authority 
to address, as appropriate, disproportionate human health or 
environmental effects, using practicable and legally permissible 
methods, under Executive Order 12898 (59 FR 7629, February 16, 1994).
    The SIP is not approved to apply on any Indian reservation land or 
in any other area where the EPA or an Indian tribe has demonstrated 
that a tribe has jurisdiction. In those areas of Indian country, the 
rule does not have tribal implications 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, Lead, Nitrogen dioxide, Ozone, 
Particulate matter, Reporting and recordkeeping requirements, Sulfur 
oxides, Volatile organic compounds.

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

    Dated: July 23, 2018.
Chris Hladick,
Regional Administrator, Region 10.
[FR Doc. 2018-16371 Filed 7-30-18; 8:45 am]
 BILLING CODE 6560-50-P



                                                 36824                    Federal Register / Vol. 83, No. 147 / Tuesday, July 31, 2018 / Proposed Rules

                                                 full EPA public comment policy,                          II. Proposed Action                                   Order 13132 (64 FR 43255, August 10,
                                                 information about CBI or multimedia                         EPA is proposing to approve the West               1999);
                                                 submissions, and general guidance on                     Virginia SIP revision updating the date                 • is not an economically significant
                                                 making effective comments, please visit                  of incorporation by reference, which                  regulatory action based on health or
                                                 http://www2.epa.gov/dockets/                             was submitted on June 8, 2018. EPA is                 safety risks subject to Executive Order
                                                 commenting-epa-dockets.                                  soliciting public comments on the                     13045 (62 FR 19885, April 23, 1997);
                                                                                                          issues discussed in this document.                      • is not a significant regulatory action
                                                 FOR FURTHER INFORMATION CONTACT:
                                                                                                          These comments will be considered                     subject to Executive Order 13211 (66 FR
                                                 Joseph Schulingkamp, (215) 814–2021,                                                                           28355, May 22, 2001);
                                                 or by email at schulingkamp.joseph@                      before taking final action.
                                                                                                                                                                  • is not subject to requirements of
                                                 epa.gov.                                                 III. Incorporation by Reference                       Section 12(d) of the National
                                                 SUPPLEMENTARY INFORMATION:      On June 8,                  In this proposed rule, EPA is                      Technology Transfer and Advancement
                                                 2018, the West Virginia Department of                    proposing to include in a final EPA rule              Act of 1995 (15 U.S.C. 272 note) because
                                                 Environmental Protection (WVDEP)                         regulatory text that includes                         application of those requirements would
                                                 submitted a formal revision to its SIP                   incorporation by reference. In                        be inconsistent with the CAA; and
                                                 pertaining to amendments of Legislative                  accordance with requirements of 1 CFR                   • does not provide EPA with the
                                                 Rule, 45CSR8—Ambient Air Quality                         51.5, EPA is proposing to incorporate by              discretionary authority to address, as
                                                 Standards. The SIP revision consists of                  reference 45CSR8, as effective on June 1,             appropriate, disproportionate human
                                                 revising the effective date of the                       2018. EPA has made, and will continue                 health or environmental effects, using
                                                 incorporation by reference of the                        to make, these materials generally                    practicable and legally permissible
                                                 NAAQS and the associated monitoring                      available through http://                             methods, under Executive Order 12898
                                                                                                          www.regulations.gov and at the EPA                    (59 FR 7629, February 16, 1994).
                                                 reference and equivalent methods.
                                                                                                          Region III Office (please contact the                   In addition, this proposed rule,
                                                 I. Summary of SIP Revision                               person identified in the FOR FURTHER                  updating the effective date of West
                                                                                                          INFORMATION CONTACT section of this                   Virginia’s 45CSR8, does not have tribal
                                                    This SIP revision is required by                      preamble for more information).                       implications as specified by Executive
                                                 WVDEP in order to update the State’s                                                                           Order 13175 (65 FR 67249, November 9,
                                                 incorporation by reference of the                        IV. Statutory and Executive Order
                                                                                                          Reviews                                               2000), because the SIP is not approved
                                                 primary and secondary NAAQS and the                                                                            to apply in Indian country located in the
                                                 ambient air monitoring reference and                        Under the CAA, the Administrator is                state, and EPA notes that it will not
                                                 equivalent methods, found in 40 CFR                      required to approve a SIP submission                  impose substantial direct costs on tribal
                                                 parts 50 and 53, respectively. Currently,                that complies with the provisions of the              governments or preempt tribal law.
                                                 45CSR8 incorporates by reference 40                      CAA and applicable federal regulations.
                                                 CFR parts 50 and 53 as effective on June                 42 U.S.C. 7410(k); 40 CFR 52.02(a).                   List of Subjects in 40 CFR Part 52
                                                 1, 2016. Since that date, EPA retained                   Thus, in reviewing SIP submissions,                     Environmental protection, Air
                                                 the standard for lead and made a                         EPA’s role is to approve state choices,               pollution control, Carbon monoxide,
                                                 technical correction to the particulate                  provided that they meet the criteria of               Incorporation by reference, Lead,
                                                 standard. See 81 FR 71906 and 82 FR                      the CAA. Accordingly, this action                     Nitrogen dioxide, Ozone, Particulate
                                                 14325, respectively. EPA also                            merely approves state law as meeting                  matter, Sulfur oxides.
                                                 designated one new ambient air                           federal requirements and does not
                                                                                                                                                                  Authority: 42 U.S.C. 7401 et seq.
                                                 monitoring reference method for                          impose additional requirements beyond
                                                 measuring concentrations of sulfur                       those imposed by state law. For that                    Dated: July 23, 2018.
                                                 dioxide, four new ambient air                            reason, this proposed action:                         Cosmo Servidio,
                                                 monitoring equivalent methods for                           • Is not a ‘‘significant regulatory                Regional Administrator, Region III.
                                                 measuring concentrations of fine and                     action’’ subject to review by the Office              [FR Doc. 2018–16375 Filed 7–30–18; 8:45 am]
                                                 coarse particulate matter (PM2.5 and                     of Management and Budget under                        BILLING CODE 6560–50–P
                                                 PM10, respectively), and two new                         Executive Orders 12866 (58 FR 51735,
                                                 equivalent methods for measuring                         October 4, 1993) and 13563 (76 FR 3821,
                                                 concentrations of nitrogen dioxide                       January 21, 2011);                                    ENVIRONMENTAL PROTECTION
                                                 (NO2) in ambient air.                                       • is not an Executive Order 13771 (82              AGENCY
                                                                                                          FR 9339, February 2, 2017) regulatory
                                                    The amendments to the legislative                     action because SIP approvals are                      40 CFR Part 52
                                                 rule include the following changes: To                   exempted under Executive Order 12866.
                                                                                                                                                                [EPA–R10–OAR–2018–0238, FRL–9981–
                                                 section 45–8–1 (General), the filing,                       • does not impose an information                   61—Region 10]
                                                 effective, and incorporation by reference                collection burden under the provisions
                                                 dates are changed to reflect the update                  of the Paperwork Reduction Act (44                    Air Plan Approval; Oregon: Lane
                                                 of the legislative rule; to section                      U.S.C. 3501 et seq.);                                 County Permitting and General Rule
                                                 45–8–3 (Adoption of Standards), the                         • is certified as not having a                     Revisions
                                                 effective dates for the incorporation by                 significant economic impact on a
                                                 reference of the primary and secondary                   substantial number of small entities                  AGENCY:  Environmental Protection
                                                 NAAQS and the ambient air monitoring                     under the Regulatory Flexibility Act (5               Agency (EPA).
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                                                 reference and equivalent methods are                     U.S.C. 601 et seq.);                                  ACTION: Proposed rule.
                                                 changed. The filing and effective dates                     • does not contain any unfunded
                                                 of the legislative rule were updated to                  mandate or significantly or uniquely                  SUMMARY:  The Environmental Protection
                                                 March 22, 2018 and June 1, 2018                          affect small governments, as described                Agency (EPA) proposes to approve, and
                                                 respectively. The effective date of the                  in the Unfunded Mandates Reform Act                   incorporate by reference, specific
                                                 incorporation by reference of 40 CFR                     of 1995 (Pub. L. 104–4);                              changes to the Oregon State
                                                 parts 50 and 53 changed from June 1,                        • does not have federalism                         Implementation Plan as it applies in
                                                 2016 to June 1, 2017.                                    implications as specified in Executive                Lane County, Oregon. The local air


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                                                                          Federal Register / Vol. 83, No. 147 / Tuesday, July 31, 2018 / Proposed Rules                                                  36825

                                                 agency in Lane County, Lane Regional                        D. Title 29: Designation of Air Quality            It is as strict as the corresponding state
                                                 Air Protection Agency, has revised its                         Areas                                           rule; and (2) it has been submitted to
                                                 rules to align with recent changes to                       E. Title 30: Incinerator Regulations               and not disapproved by the EQC.1 This
                                                                                                             F. Title 31: Public Participation
                                                 Oregon state regulations. The revisions,                                                                       delegation of authority in the Oregon
                                                                                                             G. Title 32: Emission Standards
                                                 submitted on August 29, 2014 and                            H. Title 33: Prohibited Practices and              SIP is consistent with CAA section
                                                 March 27, 2018, are related to the                             Control of Special Classes of Industry          110(a)(2)(E) requirements for state and
                                                 criteria pollutants for which the EPA                       I. Title 34: Stationary Source Notification        local air agencies.
                                                 has established national ambient air                           Requirements                                       On August 29, 2014 and March 27,
                                                 quality standards—carbon monoxide,                          J. Title 35: Stationary Source Testing and         2018, LRAPA and ODEQ submitted
                                                 lead, nitrogen dioxide, ozone,                                 Monitoring                                      specific revisions to the Oregon SIP as
                                                 particulate matter, and sulfur dioxide.                     K. Title 36: Excess Emissions                      it applies in Lane County. These
                                                 The regulatory changes address federal                      L. Title 37: Air Contaminant Discharge             changes align local rules with recently
                                                                                                                Permits                                         revised state rules, approved by the EPA
                                                 particulate matter requirements, update                     M. Title 38: New Source Review
                                                 the major and minor source pre-                                                                                on October 11, 2017 and incorporated
                                                                                                             N. Title 40: Air Quality Analysis
                                                 construction permitting programs, add                          Requirements
                                                                                                                                                                by reference into the Code of Federal
                                                 state-level air quality designations,                       O. Title 41: Emission Reduction Credits            Regulations (CFR) at 40 CFR part 52,
                                                 update public processes, and tighten                        P. Title 42: Criteria for Establishing Plant       subpart MM (82 FR 47122). The changes
                                                 emission standards for dust and smoke.                         Site Emission Limits                            address federal particulate matter
                                                 DATES: Comments must be received on
                                                                                                             Q. Title 48: Rules for Fugitive Emissions          requirements, revise the major and
                                                                                                             R. Title 50: Ambient Air Standards and             minor source pre-construction
                                                 or before August 30, 2018.                                     PSD Increments                                  permitting programs, add state-level air
                                                 ADDRESSES: Submit your comments,                            S. Title 51: Air Pollution Emergencies             quality designations, update public
                                                 identified by Docket ID No. EPA–R10–                     III. Proposed Action                                  processes, and tighten emission
                                                 OAR–2018–0238, at https://                                  A. Rules Approved and Incorporated by
                                                                                                                Reference
                                                                                                                                                                standards for dust and smoke.
                                                 www.regulations.gov. Follow the online                                                                            We note that the March 27, 2018,
                                                 instructions for submitting comments.                       B. Rules Approved but Not Incorporated by
                                                                                                                Reference                                       revisions partially supersede the August
                                                 Once submitted, comments cannot be                          C. Rules Removed                                   29, 2014, revisions. In this action, we
                                                 edited or removed from regulations.gov.                     D. Rules Deferred                                  are reviewing and taking action on the
                                                 The EPA may publish any comment                          IV. Incorporation by Reference                        most recent version of the submitted
                                                 received to its public docket. Do not                    V. Oregon Notice Provision                            rules applicable in Lane County, as
                                                 submit electronically any information                    VI. Statutory and Executive Order Reviews             described below. In describing our
                                                 you consider to be Confidential                                                                                evaluation, we have focused on the
                                                                                                          I. Background
                                                 Business Information (CBI) or other                                                                            substantive rule changes. We have not
                                                 information the disclosure of which is                      Each state has a Clean Air Act (CAA)               described typographical corrections,
                                                 restricted by statute. Multimedia                        State Implementation Plan (SIP),                      minor edits, and renumbering changes.
                                                 submissions (audio, video, etc.) must be                 containing the control measures and
                                                 accompanied by a written comment.                        strategies used to attain and maintain                II. Evaluation of Revisions
                                                 The written comment is considered the                    the national ambient air quality                      A. Title 12: General Provisions and
                                                 official comment and should include                      standards (NAAQS) established for the                 Definitions
                                                 discussion of all points you wish to                     criteria pollutants (carbon monoxide,
                                                                                                          lead, nitrogen dioxide, ozone,                           Title 12 in LRAPA’s rules contains
                                                 make. The EPA will generally not
                                                                                                          particulate matter, sulfur dioxide). The              generally-applicable provisions and
                                                 consider comments or comment
                                                                                                          SIP contains such elements as air                     definitions used throughout Lane
                                                 contents located outside of the primary
                                                                                                          pollution control regulations, emission               County air quality rules. The submitted
                                                 submission (i.e., on the web, cloud, or
                                                                                                          inventories, attainment demonstrations,               revisions align the definitions in Section
                                                 other file sharing system). For
                                                                                                          and enforcement mechanisms. The SIP                   12–005 with the definitions in state
                                                 additional submission methods, the full
                                                                                                          is a living compilation of these elements             rules, recently reviewed and approved
                                                 EPA public comment policy,
                                                                                                          and is revised and updated by a state                 by the EPA.2 In this section of our
                                                 information about CBI or multimedia
                                                                                                          over time—to keep pace with federal                   evaluation, we discuss key changes to
                                                 submissions, and general guidance on
                                                                                                          requirements and to address changing                  existing definitions and substantive new
                                                 making effective comments, please visit
                                                                                                          air quality issues in that state.                     terms used in multiple titles. Terms
                                                 https://www.epa.gov/dockets/
                                                                                                             The Oregon Department of                           used primarily in a single title are
                                                 commenting-epa-dockets.
                                                                                                          Environmental Quality (ODEQ)                          described in the discussion section for
                                                 FOR FURTHER INFORMATION CONTACT:                                                                               that particular title.
                                                                                                          implements and enforces the Oregon
                                                 Kristin Hall at (206) 553–6357, or                                                                                Key definition changes include
                                                                                                          SIP through rules set out in Chapter 340
                                                 hall.kristin@epa.gov.                                                                                          narrowing the definition of ‘‘adjacent’’
                                                                                                          of the Oregon Administrative Rules
                                                 SUPPLEMENTARY INFORMATION:                               (OAR). Chapter 340 rules apply in all                 by limiting the use of this defined term
                                                 Throughout this document, wherever                       areas of the state, except where the                  (‘‘interdependent facilities that are
                                                 ‘‘we,’’ ‘‘us,’’ or ‘‘our’’ is used, it is                Oregon Environmental Quality                          nearby to each other’’) to the ‘‘major
                                                 intended to refer to the EPA.                            Commission (EQC) has designated a                     source’’ and ‘‘source’’ terms in LRAPA’s
                                                                                                          local agency as having primary                        program for air contaminant discharge
                                                 Table of Contents
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                                                                                                          jurisdiction.                                         permits. Definitions of the terms
                                                 I. Background                                               Lane Regional Air Protection Agency                ‘‘capture efficiency,’’ ‘‘control
                                                 II. Evaluation of Revisions                              (LRAPA) has been designated by the                    efficiency,’’ ‘‘destruction efficiency,’’
                                                    A. Title 12: General Provisions and
                                                      Definitions
                                                                                                          EQC to implement and enforce state
                                                                                                                                                                  1 See OAR 340–200–0010(3), state effective April
                                                    B. Title 13: General Duties and Powers of             rules in Lane County, and also to adopt
                                                                                                                                                                16, 2015, codified at 40 CFR 52.1970.
                                                      Board and Director                                  local rules that apply within Lane                      2 See OAR 340–200–0020, state effective April 16,
                                                    C. Title 14: Rules of Practice and                    County. LRAPA may promulgate a local                  2015, and approved by the EPA on October 11, 2017
                                                      Procedures                                          rule in lieu of a state rule provided: (1)            (82 FR 47122).



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                                                 36826                    Federal Register / Vol. 83, No. 147 / Tuesday, July 31, 2018 / Proposed Rules

                                                 and ‘‘removal efficiency’’ were added to                 minutes in any one hour. There are a                  200. LRAPA revised Section 12–001
                                                 differentiate amongst similar terms.                     small number of LRAPA visible                         General to align with OAR 340–200–
                                                    LRAPA revised the term                                emissions standards that are not time-                0010 Purpose and Application,
                                                 ‘‘categorically insignificant activities’’ to            exception regulations, and in those                   including repealing the SIP-approved
                                                 narrow when emissions may be                             cases, LRAPA rules specify a different                version of Section 12–001(2), state
                                                 excluded from consideration—in some                      test method, including, for example,                  effective March 8, 1994, and
                                                 aspects of source permitting—as                          EPA Method 9. All specified methods                   renumbering the section paragraphs.
                                                 ‘‘insignificant.’’ For example, there is a               are included in the March 2015 version                Section 12–001(2) stated that ‘‘in cases
                                                 cap on the aggregate emissions from fuel                 of the Oregon Source Sampling Manual,                 of apparent conflict between rules and
                                                 burning equipment that may be                            approved by the EPA on October 11,                    regulations within these titles, the most
                                                 considered categorically insignificant,                  2017, for purposes of the limits in the               stringent regulation applies unless
                                                 and there is also a restriction on when                  Oregon SIP (82 FR 47122). Please see                  otherwise expressly stated,’’ and is
                                                 emergency generators may be                              our discussion of opacity standards and               appropriately removed from the SIP.
                                                 considered categorically insignificant                   methods for visual opacity
                                                 (limiting the exemption to no more than                  determinations in Section H. below.                      Section 12–010 was added to spell out
                                                 3,000 horsepower, in the aggregate). We                     Consistent with the state definition,              abbreviations and acronyms used
                                                 note that LRAPA adopted a new                            LRAPA defined the term ‘‘portable’’ as                throughout the Lane County air quality
                                                 category of insignificant emissions, as                  ‘‘designed and capable of being carried               rules, consistent with OAR 340–200–
                                                 Oregon did, namely, fuel burning                         or moved from one location to another.’’              0025. LRAPA also added Section 12–
                                                 equipment brought on site for six                        At the same time, the definition of                   020 listing activities that are not subject
                                                 months or less for construction,                         ‘‘stationary source’’ was updated to                  to local air quality regulations,
                                                 maintenance, or similar purposes,                        include portable sources required to                  comparable to OAR 340–200–0030 and
                                                 provided the equipment performs the                      have permits under the air contaminant                Oregon Revised Statutes (ORS) 468A–
                                                 same function as the permanent                           discharge permitting program at Title                 020. Section 12–020(2) makes clear,
                                                 equipment, and is operated within the                    37.                                                   however, that the exceptions in
                                                 source’s existing plant site emission                       LRAPA changed the definition of                    subsection (1) do not apply to the extent
                                                 limit. Importantly, however,                             ‘‘modification’’ to differentiate it from             such local air regulations are necessary
                                                 insignificant activity emissions must be                 the terms ‘‘major modification’’, ‘‘permit            to implement CAA requirements. We
                                                 included in determining whether a                        modification’’, and ‘‘title I                         note that LRAPA added Section 12–025
                                                 source is a ‘‘federal major source’’ or a                modification’’, and to make clear that it             identifying key reference materials,
                                                 ‘‘major modification’’ subject to federal                applies to a change in a portion of a                 including the March 2015 version of the
                                                 major new source review (federal major                   source, as well as a source in its                    Oregon Source Sampling Manual,
                                                 NSR).3 In addition, categorically                        entirety. LRAPA also simplified the                   approved by the EPA into the Oregon
                                                 insignificant activities must still comply               definition of ‘‘ozone precursor’’ to                  SIP on October 11, 2017 (82 FR 47122).
                                                 with all applicable requirements.                        remove redundant language pointing to                 We propose to approve and incorporate
                                                    LRAPA revised definitions to                          the reference method for measuring                    by reference these changes to Title 12.
                                                 consistently use certain terms, such as                  volatile organic compounds (VOCs). The                   Consistent with our recent action on
                                                 ‘‘construction,’’ ‘‘control device,’’                    term ‘‘VOC’’ was also updated to reflect              OAR 340–200–0050, LRAPA did not
                                                 ‘‘federal major source,’’ ‘‘immediately,’’               changes to the federal definition of                  submit Section 12–030 Compliance
                                                 ‘‘fugitive emissions,’’ ‘‘major                          ‘‘VOC’’ at 40 CFR 51.100(s).                          Schedules for approval into the SIP.
                                                 modification,’’ ‘‘major source,’’ ‘‘PM10,’’                 LRAPA formally defined ‘‘wood fuel-
                                                                                                                                                                Any compliance schedule established
                                                 ‘‘PM2.5,’’ and ‘‘stationary source.’’                    fired device’’, consistent with the
                                                                                                                                                                by LRAPA under this provision must be
                                                 LRAPA added definitions to align with                    definition in state rules. The term was
                                                                                                                                                                specifically submitted to, and approved
                                                 state rules, including ‘‘continuous                      added and defined as ‘‘a device or
                                                                                                                                                                by the EPA, before it will be federally-
                                                 compliance determination method,’’                       appliance designed for wood fuel
                                                                                                                                                                enforceable or change the requirements
                                                 ‘‘emergency,’’ ‘‘emission limitation,’’                  combustion, including cordwood stoves,
                                                                                                                                                                of the EPA-approved SIP.4
                                                 ‘‘excursion,’’ ‘‘greenhouse gases,’’                     woodstoves, and fireplace stove inserts,
                                                 ‘‘Indian governing body,’’ ‘‘Indian                      fireplaces, wood fuel-fired cook stoves,              B. Title 13: General Duties and Powers
                                                 reservation,’’ ‘‘potential to emit,’’ and                pellet stoves and combination fuel                    of Board and Director
                                                 ‘‘synthetic minor source.’’ The term                     furnaces and boilers that burn wood
                                                 ‘‘internal combustion engine’’ was                       fuels.’’ The remainder of the new                        Title 13 sets out general authority to
                                                 defined to clarify the universe of                       definitions established by LRAPA in                   adopt, implement and enforce
                                                 regulated fuel burning equipment under                   Title 12 are common dictionary terms                  regulations in Lane County, including
                                                 local rules.                                             and are not discussed in this summary.                issuing permits. These general authority
                                                    In the definition of ‘‘opacity,’’ LRAPA                  We have evaluated these Title 12                   provisions were first approved into the
                                                 spelled out that visual opacity                          definition changes, and the changes to                Oregon SIP in 1993 (58 FR 47385,
                                                 determinations are to be made using                      definitions discussed in the sections                 September 9, 1993). We note, that at the
                                                 EPA Method 203B. Method 203B is                          below, and we propose to find that                    time of that original approval, the
                                                 designed for time-exception regulations,                 LRAPA’s defined terms are consistent                  general authority provisions were
                                                 such as those that establish a limit on                  with CAA requirements and the EPA’s                   located in Title 12, and were later
                                                 the average percent opacity for a period                 implementing regulations. We therefore                renumbered to Title 13. These
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                                                 or periods aggregating more than three                   propose to approve the submitted                      provisions contain long-standing
                                                                                                          definitions into the Oregon SIP for Lane              requirements for make-up of the LRAPA
                                                   3 This includes both the prevention of significant     County.                                               Board and disclosures of potential
                                                 deterioration (PSD) new source review permitting                                                               conflicts of interest for board members
                                                 program that applies in attainment and                   Other Provisions                                      and director, approved as meeting CAA
                                                 unclassifiable areas (40 CFR 51.166) and the
                                                 nonattainment major source new source review
                                                                                                            The revisions also include general
                                                 permitting program that applies in nonattainment         rules in Title 12 submitted to be                       4 40 CFR 51.102(a)(2) and (c) and 260; 82 FR

                                                 areas (40 CFR 51.165).                                   consistent with state rules in Division               47122, October 11, 2017.



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                                                                          Federal Register / Vol. 83, No. 147 / Tuesday, July 31, 2018 / Proposed Rules                                            36827

                                                 state board requirements under section                   particulate matter (PM10)) and the                    formally designated nonattainment by
                                                 128.5                                                    Oakridge Nonattainment Area (fine                     the EPA, but that has achieved three
                                                   We propose to find that the submitted                  particulate matter (PM2.5)). In addition,             years of quality-assured/quality-
                                                 updates to Title 13 remain consistent                    LRAPA added Sections 29–0070 Special                  controlled monitoring data showing the
                                                 with CAA section 110 requirements for                    Control Areas, 29–0080 Motor Vehicle                  area is attaining the relevant standard.8
                                                 permit issuance, enforcement authority,                  Inspection Boundary Designations, and                 When an area has met attainment
                                                 state and local agencies, and state                      29–0090 Oxygenated Gasoline Control                   planning requirements and has attained
                                                 boards. In this action, we are proposing                 Areas, to correspond to state rule                    the standard, the CAA requires that a
                                                 to approve Title 13 to the extent the                    sections OAR 340–204–0070, 0080, and                  state submit, and the EPA approve, a
                                                 provisions relate to the implementation                  0090, respectively.                                   maintenance plan demonstrating
                                                 of requirements in the SIP, but we note                     A significant change in this title is the          attainment for the next ten years. The
                                                 we are not incorporating these                           introduction of three concepts:                       state may then request that the EPA
                                                 provisions by reference into 40 CFR part                 ‘‘sustainment areas,’’ ‘‘reattainment                 redesignate the area to attainment. In
                                                 52, subpart MM. These types of rules are                 areas,’’ and ‘‘priority’’ sources.6 Both              the interim, LRAPA may designate the
                                                 generally not incorporated by reference                  sustainment and reattainment areas are                area a reattainment area. The submitted
                                                 into the CFR because they may conflict                   state-level designations designed to add              rules require that all elements of the
                                                 with the EPA’s independent                               to federal requirements. We note that                 area’s attainment plan continue to apply
                                                 administrative and enforcement                           LRAPA and Oregon have both                            with a reattainment designation.
                                                 procedures under the CAA.                                implemented a state-level designation in              However, minor sources will be subject
                                                 C. Title 14: Rules of Practice and                       the past—specifically, the maintenance                to less stringent state new source review
                                                 Procedures                                               area designation. Following Oregon’s                  permitting requirements—unless the
                                                                                                          lead, LRAPA is now defining two added                 source has been specifically identified
                                                    The submissions revise Title 14 to                    state designations intended to help areas             as a significant contributor to air quality
                                                 align with Oregon’s SIP-approved state                   address air quality problems by further               problems in the area, or the source has
                                                 rules in Division 11. LRAPA’s revisions                  regulating emission increases from                    control requirements that are relied on
                                                 follow the Oregon Attorney General                       major and minor sources.                              as part of the attainment plan. The
                                                 Model Rules, as do the comparable                           To designate an area as sustainment                federal requirements for redesignation
                                                 Oregon rules, and address procedures                     or reattainment, the LRAPA rule                       remain in place and are unchanged.
                                                 for filing and serving documents in                      revisions create a similar process as was                In the submissions, LRAPA included
                                                 contested cases (appeals of LRAPA and                    used in the past to designate a                       the Oakridge area as a state-designated
                                                 ODEQ actions). Title 14 was revised to                   maintenance area. The process includes                reattainment area with respect to PM2.5.9
                                                 improve the clarity and completeness of                  public notice, a rule change, and                     We note that at the federal level, the
                                                 contested case appeals coming before                     approval by the LRAPA Board. Oregon                   EPA has approved the Oakridge PM2.5
                                                 the LRAPA Board. This title provides                     and LRAPA designed the new                            attainment plan, determined the
                                                 authority needed to implement the SIP                    designations and associated                           Oakridge area attained the 2006 24-hour
                                                 in Lane County, and is consistent with                   requirements with the stated intent to                PM2.5 NAAQS by the applicable
                                                 the CAA requirements for the issuance                    help solve air quality issues while not               attainment date, and achieved clean
                                                 of permits and enforcement authority.                    changing attainment planning                          data for the most recent three years of
                                                 The EPA therefore proposes to approve                    requirements or federal requirements for              valid, certified monitoring data (83 FR
                                                 the submitted revisions to Title 14 Rules                major stationary sources.                             5537, February 8, 2017). However, the
                                                 of Practice and Procedures, to the extent                   The sustainment area designation is                Oakridge area remains a federal
                                                 it relates to implementation of                          designed to apply to an area where                    nonattainment area for the 2006 24-hour
                                                 requirements contained in the Oregon                     monitored values exceed, or have the                  PM2.5 NAAQS until LRAPA and Oregon
                                                 SIP. We are not incorporating these                      potential to exceed, ambient air quality              submit a maintenance plan to the EPA
                                                 rules by reference into the CFR,                         standards, but which has not been                     to ensure the area can continue to meet
                                                 however, because we rely on the EPA’s                    formally designated nonattainment by                  the standard for the next 10 years, and
                                                 independent administrative and                           the EPA.7 To construct or modify a                    the EPA approves the maintenance plan
                                                 enforcement procedures under the CAA.                    major or minor source in a sustainment                and redesignates the Oakridge area to
                                                 D. Title 29: Designation of Air Quality                  area, the owner or operator may need to               attainment.10 We propose to determine
                                                 Areas                                                    offset new emissions with reductions                  that designation of the Oakridge area as
                                                                                                          from other sources, including the option              a state reattainment area does not
                                                   This division contains rules for the                   of targeting ‘‘priority’’ sources, in that
                                                 designation of air quality areas in Lane                                                                       change federal requirements for the
                                                                                                          area. Priority sources are defined as                 area, and that the Oakridge PM2.5
                                                 County. In Section 29–0010, LRAPA                        sources causing or contributing to
                                                 culled definitions to leave only those                                                                         attainment plan remains in effect.
                                                                                                          elevated emissions levels in the area.
                                                 directly related to designated areas in                                                                           We propose to approve these
                                                                                                          This is determined using local airshed
                                                 Lane County, including Eugene-                                                                                 revisions to Title 29 because the
                                                                                                          information, such as emissions
                                                 Springfield and Oakridge. Sections 29–                                                                         submitted rules for state-level
                                                                                                          inventories and modeling results. A new
                                                 0020, 0050, and 0060 were added to                                                                             designations are consistent with CAA
                                                                                                          major or minor stationary source
                                                 mirror state air quality region and                                                                            requirements and the EPA’s
                                                                                                          seeking to construct in a sustainment
                                                 prevention of significant deterioration                                                                        implementing regulations for attainment
                                                                                                          area may obtain more favorable offsets
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                                                 area rules in OAR 340–204–0020, 0050,                                                                          planning and major source pre-
                                                                                                          from priority sources.
                                                 and 0060, respectively. Section 29–0030                     The reattainment area designation is               construction permitting. The related
                                                 addresses the two nonattainment areas                    designed to apply to an area that is                  changes to LRAPA’s major and minor
                                                 in Lane County, namely the Oakridge                                                                            source permitting program—and our
                                                 Urban Growth Boundary (coarse                              6 See Sections 29–0300 through 0320 and the
                                                                                                                                                                  8 See Section 29–0310.
                                                                                                          corresponding state provisions at OAR 340–204–
                                                   5 LRAPA  Section 12–025, renumbered to Section         0300 through 0320.                                      9 See Section 29–0310(2)(a).
                                                 13–025; 58 FR 47385, September 9, 1993.                    7 As codified at 40 CFR part 81.                      10 See 40 FR 81.338.




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                                                 36828                    Federal Register / Vol. 83, No. 147 / Tuesday, July 31, 2018 / Proposed Rules

                                                 evaluation of those changes—are                          records are made available for review.                SIP-approved rules (OAR 340–208–0110
                                                 discussed in detail in Section M. below.                 Hearing procedures, laid out at Section               was recently revised to a 6-minute block
                                                                                                          31–0070, correlate with hearing                       average as measured by EPA Method 9),
                                                 E. Title 30: Incinerator Regulations
                                                                                                          provisions at OAR 340–209–0070. We                    both forms and their associated test
                                                   The submissions made changes to                        propose to approve the hearing                        methods are equally-valid means to
                                                 LRAPA’s incinerator regulations                          procedures, but not incorporate them by               measure opacity and determine
                                                 consistent with those in state rule at                   reference, to avoid confusion or                      compliance with standards.11
                                                 Division 230. Most changes were minor;                   potential conflict with the EPA’s                        LRAPA also made changes to phase in
                                                 however, a significant change was made                   independent authorities.                              tighter visible emission limits granted to
                                                 to tighten limits and clarify the                          In sum, we have concluded that the                  wood-fired boilers in operation before
                                                 appropriate method of compliance for                     submitted LRAPA public participation                  1970. These sources are required to
                                                 crematory incinerators. Consistent with                  rules are consistent with the CAA and                 meet a 40% visible emission limit.
                                                 our previous action on August 3, 2001,                   federal requirements for public notice of             However, starting in 2020, these sources
                                                 we propose to approve the revisions to                   new source review actions in 40 CFR                   must meet a 20% visible emissions
                                                 Title 30, except as those rules relate to                51.161 Public availability of                         limit, except for certain, limited
                                                 hazardous air pollutants and odors that                  information, 40 CFR 51.165 Permit                     situations where a boiler-specific, short-
                                                 are not also criteria pollutants or                      requirements, and 40 CFR 51.166                       term limit may be established in a
                                                 precursors (66 FR 40616).                                Prevention of significant deterioration of            source’s operating permit, if appropriate
                                                 F. Title 31: Public Participation                        air quality, and we propose to approve                and allowed under the SIP-approved
                                                                                                          them.                                                 permitting program.
                                                    Title 31 governs public participation                                                                          Notably, LRAPA revised particulate
                                                 in the review of proposed permit                         G. Title 32: Emission Standards
                                                                                                                                                                emission limits under Section 32–015 to
                                                 actions. This title corresponds to                         This title contains emission standards              reduce emissions from certain non-fuel-
                                                 Division 209 in state rules. LRAPA                       and provisions of general applicability,              burning sources built before June 1970.
                                                 submitted this title for SIP approval,                   including requirements for highest and                The rules in this section phase in tighter
                                                 consistent with recent changes to                        best practicable treatment and control,               standards for older sources, generally
                                                 Oregon’s public participation rules.                     operating and maintenance, typically                  tightening grain loading standards for
                                                 Title 31 provides four different levels of               achievable control technology,                        existing sources from 0.2 grains per dry
                                                 public process, depending on the type                    additional requirements imposed on a                  standard cubic foot (gr/dscf) to between
                                                 of permitting action, with Category I                    permit by permit basis, particulate                   0.10 and 0.15 gr/dscf, depending on
                                                 having the least amount of public notice                 emission limits for process equipment                 whether there is existing source test
                                                 and opportunities for public                             and other sources (other than fuel or                 data for the source, and what that data
                                                 participation, and Category IV having                    refuse burning equipment or fugitive                  shows. Timelines to achieve these rates
                                                 the most. The majority of new source                     emissions), and alternative emission                  depend on whether sources were built
                                                 review permitting actions are subject to                 limits (bubbles).                                     before or after June 1, 1970. Existing
                                                 category III, for which LRAPA provides                     LRAPA made changes to Section 32–
                                                                                                                                                                sources that operate equipment less
                                                 public notice and an opportunity for a                   001 to clarify what definitions apply to
                                                                                                                                                                frequently (less than 867 hours a year)
                                                 hearing at a reasonable time and place                   this section (those in Titles 12 and 29)
                                                                                                                                                                must meet less stringent standards. For
                                                 if requested, or if LRAPA otherwise                      in addition to more specific definitions
                                                                                                                                                                new sources, LRAPA has increased the
                                                 determines a public hearing is                           for ‘‘distillate fuel oil’’ and ‘‘residual
                                                                                                                                                                stringency of the grain loading standard
                                                 necessary. Category IV public process                    fuel oil.’’ In Section 32–007, LRAPA
                                                                                                                                                                by adding a significant digit, revising
                                                 apply to major new source review                         clarified that pressure drop and
                                                                                                                                                                the standard from 0.1 gr/dscf to 0.10 gr/
                                                 permitting actions, and LRAPA provides                   ammonia slip are operational,
                                                                                                                                                                dscf. Compliance with the grain loading
                                                 an informational meeting before issuing                  maintenance, and work practice
                                                                                                                                                                standards is determined using test
                                                 a draft permit for public review and                     requirements that may be established in
                                                                                                                                                                methods specifically identified in the
                                                 comment.                                                 a permit condition or notice of
                                                                                                                                                                March 2015 version of the Oregon
                                                    LRAPA has aligned the requirements                    construction approval. Section 32–008
                                                                                                                                                                Source Testing Manual, approved on
                                                 for informational meetings with state                    Typically Achievable Control
                                                                                                                                                                October 11, 2017 (82 FR 47122).
                                                 rules in Division 209, to provide at least               Technology was also updated by moving
                                                                                                                                                                   LRAPA also tightened grain loading
                                                 a 14-day public notice, before the                       procedural requirements from the
                                                                                                                                                                standards for fuel burning equipment
                                                 scheduled informational meeting. The                     definitions section to this section, and
                                                                                                                                                                (Sections 32–020 and 025) in the same
                                                 submitted rules also make clear that                     revising them to account for Oregon’s
                                                                                                                                                                manner as described above. Process
                                                 although LRAPA accepts, and will                         changes to NSR, Major NSR and Type A
                                                                                                                                                                weight provisions in Section 32–045
                                                 consider, comments from the public                       State NSR, discussed below in Section
                                                                                                                                                                were aligned with state rules, and the
                                                 during the informational meeting,                        M.
                                                                                                                                                                listing of process weight limitations was
                                                 LRAPA does not maintain an official                        Notably, LRAPA retained its general,
                                                                                                                                                                moved to Section 32–8010. Sulfur
                                                 record of the informational meeting, or                  SIP-approved visible emission standards
                                                                                                                                                                content of fuels and sulfur dioxide
                                                 respond in writing to comments                           in the form of an aggregate exception of
                                                                                                                                                                emission limits in Section 32–065 were
                                                 provided at the informational meeting.                   three minutes in a 60-minute period.
                                                                                                                                                                also updated by removing a coal space-
                                                 This same approach to informational                      Three-minute aggregate periods are to be
                                                                                                                                                                heating exemption that expired in 1983,
                                                 meetings in state rules was approved by                  measured by EPA Method 203B, a
                                                                                                                                                                and clarifying that recovery furnaces are
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                                                 the EPA into the Oregon SIP on October                   continuous opacity monitoring system,
                                                                                                                                                                regulated in Title 33.
                                                 11, 2017 (82 FR 47122).                                  or an alternative monitoring method
                                                                                                                                                                   We propose to approve the revisions
                                                    The submissions also addressed                        approved by LRAPA and that has been
                                                                                                                                                                to Title 32 because they are consistent
                                                 public participation requirements for                    determined by the EPA to be equivalent
                                                                                                                                                                with the CAA and strengthen the SIP.
                                                 permitting in state-designated                           to Method 203B. While LRAPA’s form
                                                 sustainment and reattainment areas,                      and method for evaluating visible                        11 The EPA approved OAR 340–208–0110, state
                                                 detailed the option of email notification,               emissions from sources are different                  effective April 16, 2015 on October 11, 2017 (82 FR
                                                 and identified where public comment                      than those in Oregon’s corresponding                  47122).



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                                                                          Federal Register / Vol. 83, No. 147 / Tuesday, July 31, 2018 / Proposed Rules                                              36829

                                                 We note we are taking no action on                       with the corresponding state provision                  proceed with construction or
                                                 Sections 32–050, and 32–055 because                      at OAR 340–234–0270.12                                  modification, and that construction
                                                 they are nuisance provisions related to                     LRAPA revised Section 33–075 Hot                     approval does not mean approval to
                                                 concealment and masking of emissions                     Mix Asphalt Plants to specify the                       operate the source, unless the source is
                                                 and particle fallout. We are also taking                 appropriate test method to determine                    not required to obtain an ACDP under
                                                 no action on the acid rain provision in                  compliance. In addition, LRAPA added                    Title 37.
                                                 Section 32–075. These types of                           a requirement that hot mix asphalt                        We propose to approve the revisions
                                                 provisions are generally not appropriate                 plants must develop a fugitive                          to Title 34 because we have determined
                                                                                                          emissions control plan if requested.                    they are consistent with CAA
                                                 for SIP approval because they are not                       Except for the requirements relating to              requirements and correct or clarify
                                                 related to attainment and maintenance                    total reduced sulfur, odor, and                         existing source notification
                                                 of the NAAQS under CAA section 110                       reduction of animal matter, we propose                  requirements to help ensure that
                                                 and the SIP.                                             to approve the submitted changes to                     changes to sources go through the
                                                 H. Title 33: Prohibited Practices and                    Title 33 because they strengthen the SIP                appropriate approval process. We note
                                                 Control of Special Classes of Industry                   and are consistent with CAA                             that Section 34–170 through 200 are not
                                                                                                          requirements. Total reduced sulfur,                     appropriate for SIP approval because
                                                    Title 33 establishes controls on                      odor, and reduction of animal matter                    they are related to title V of the CAA,
                                                 specific sectors, including board                        requirements are not appropriate for SIP                not title I and the SIP.
                                                 products facilities, charcoal plants, Kraft              approval because they are not criteria
                                                                                                          pollutants, not related to the criteria                 J. Title 35: Stationary Source Testing
                                                 pulp mills, and hot mix asphalt plants.                                                                          and Monitoring
                                                 LRAPA clarified that Title 12                            pollutants regulated under title I of the
                                                 definitions apply to this section, except                CAA, not essential for meeting and                         This title contains general
                                                                                                          maintaining the NAAQS, nor related to                   requirements for source testing and
                                                 where specific definitions are
                                                                                                          the requirements for SIPs under section                 monitoring. Title 35 was recently
                                                 established in Title 33. Throughout this
                                                                                                          110 of the CAA. We are therefore                        established to correlate closely with
                                                 title, LRAPA removed open burning
                                                                                                          excluding from the SIP the following                    state provisions in Division 212. LRAPA
                                                 provisions made obsolete now that                                                                                clarified the term ‘‘stationary source’’ to
                                                                                                          parts of Section 33–070: The definitions
                                                 LRAPA limits open burning through                        of ‘‘Other sources’’ and ‘‘Total Reduced                include portable sources that require
                                                 regulations established in Title 47, most                Sulfur (TRS)’’ in paragraph (1), and                    permits under Title 37. This change is
                                                 recently approved by the EPA on                          paragraphs (3)(a), (4)(b), (5)(b), (6)(a),              consistent with the term as used in
                                                 October 23, 2015 (80 FR 64346).                          and (6)(b); and Section 33–080                          other titles. LRAPA also clarified, with
                                                    In Section 33–060, LRAPA made                         Reduction of Animal Matter.                             respect to stack height and dispersion
                                                 changes to improve the enforceability of                                                                         technique requirements, the procedures
                                                                                                          I. Title 34: Stationary Source
                                                 opacity limits on veneer dryers and                                                                              referenced in 40 CFR 51.164 are the
                                                                                                          Notification Requirements
                                                 hardboard manufacturing operations.                                                                              major and minor NSR review
                                                                                                             Title 34 contains a registration                     procedures used in Oregon, as
                                                 Section 33–070 was updated to ensure
                                                                                                          program for sources not subject to one                  applicable.
                                                 local rules for Kraft pulp mills are as
                                                                                                          of LRAPA’s operating permit programs,                      Section 35–0140 sets forth test
                                                 stringent as the state equivalent. LRAPA                 as well as some of the requirements for
                                                 also revised what was formerly referred                                                                          methods, and requires that sampling,
                                                                                                          the construction of new and modified                    testing, or measurements performed
                                                 to as ‘‘replacement or significant                       sources. In Section 34–010, LRAPA                       pursuant to this title conform to the
                                                 upgrading’’ of equipment for purposes                    broadened the applicability of this title,              methods in Oregon’s March 2015
                                                 of determining whether more restrictive                  as Oregon did in Division 210, so that                  revised versions of the Source Sampling
                                                 standards apply. Alternative                             it applies to ‘‘air contaminant sources’’               Manual, Volumes I and II, and
                                                 temperatures for hardboard tempering                     and to ‘‘modifications of existing                      Continuous Monitoring Manual. The
                                                 ovens must be approved using the                         portable sources that are required to                   revised manuals were approved by the
                                                 procedures in the federal NESHAP for                     have permits under title 37’’, in addition              EPA into the Oregon SIP on October 11,
                                                 Plywood and Composite Wood Products,                     to stationary sources. Sections 34–016                  2017 (82 FR 47122). In that action we
                                                 40 CFR part 63, subpart DDDD. LRAPA                      and 34–017 were added for                               concluded that the revised manuals are
                                                 added source test methods for                            recordkeeping and reporting, and                        consistent with the EPA’s monitoring
                                                 particulate matter and demonstrations                    enforcement, respectively.13 LRAPA                      requirements for criteria pollutants and
                                                 of oxygen concentrations in recovery                     also added a new section for general                    we approved them for the purpose of
                                                 furnace and lime kiln gases. Under the                   source registration requirements and                    the limits approved into the SIP.
                                                 reporting section, LRAPA removed the                     detailed the information an owner or                       We note that the submitted provisions
                                                 alternative sampling option where                        operator must submit to register and re-                in Section 35–0200 through 0280 are
                                                 transmissometers are not feasible                        register. Sections 34–034, 035, and 036                 related to compliance assurance
                                                                                                          were added to clarify when a Notice of                  monitoring, and are not appropriate for
                                                 because all pulp mills in Oregon now
                                                                                                          Construction application is required,                   SIP approval. The specified rules apply
                                                 have transmissometers. Minor changes
                                                                                                          how the construction/modification is                    to title V sources only and implement
                                                 were made under a provision in this                      categorized for purposes of process and
                                                 section authorizing LRAPA to determine                                                                           the requirements of 40 CFR parts 64 and
                                                                                                          public review, and what to include in a                 70. We are taking no action on these
                                                 that upset conditions at a subject source
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                                                                                                          notice to construct.                                    rules because they are not appropriate
                                                 are chronic and correctable by the                          LRAPA added Sections 34–037 and
                                                 installation of new or modified process                                                                          for SIP approval under section 110 of
                                                                                                          038 to spell out when sources may                       title I of the CAA.
                                                 or control equipment, and the
                                                 establishment of a program and                             12 See EPA proposed approval of OAR 340–234–          K. Title 36: Excess Emissions
                                                 schedule to effectively eliminate the                    0270, state effective April 16, 2015 (March 22, 2017,
                                                                                                          82 FR 14654 at page 14667).                               LRAPA made several revisions to the
                                                 deficiencies causing the upset                             13 See OAR 340–214–0114, and OAR 340–214–             excess emissions and emergency
                                                 conditions. This provision is consistent                 0120.                                                   provision requirements in Title 36 and


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                                                 36830                      Federal Register / Vol. 83, No. 147 / Tuesday, July 31, 2018 / Proposed Rules

                                                 submitted them for approval into the                         General ACDP requirements at                        combination of air quality planning and
                                                 SIP. We are deferring action on the Title                  Section 37–0060 were updated to refer                 air pollution control technology
                                                 36 revisions. We intend to address the                     to the appropriate public notice                      program requirements. States adopt
                                                 submitted provisions of Title 36 in a                      procedures, reference the fee class for               major NSR programs as part of their SIP.
                                                 separate, future action.                                   specific source categories, and confirm               Part C is the Prevention of Significant
                                                                                                            the procedures that will be used to                   Deterioration (PSD) program, which
                                                 L. Title 37: Air Contaminant Discharge                     rescind a source’s General ACDP, if the               applies in areas that meet the NAAQS
                                                 Permits                                                    source no longer qualifies and must                   (attainment areas), as well as in areas for
                                                    The Air Contaminant Discharge                           obtain a Simple or Standard ACDP                      which there is insufficient information
                                                 Permit (ACDP) program is both the                          instead. LRAPA also changed the rule                  to determine whether the area meets the
                                                 federally-enforceable non-title V state                    section to make clear that the agency                 NAAQS (unclassifiable areas). Part D is
                                                 operating permit program, and also the                     may rescind an individual source’s                    the nonattainment new source review
                                                 administrative mechanism used to                           assignment to a General Permit. When                  (nonattainment NSR) program, which
                                                 implement the notice of construction                       notified, the source has 60 days to                   applies in areas that are not in
                                                 and new source review programs. There                      submit an application for a Simple or                 attainment of the NAAQS
                                                 are six types of ACDPs under state and                     Standard ACDP. General ACDP                           (nonattainment areas).
                                                 LRAPA rules: Construction, General,                        Attachments, Section 37–0062, was                        The EPA regulations for SIPs
                                                 Short Term Activity, Basic, Simple, and                    updated to clarify public notice                      implementing these programs are
                                                 Standard. The types of ACDPs have not                      requirements and fees.                                contained in 40 CFR 51.165 and 51.166,
                                                 changed, but LRAPA has made some                             For Simple ACDPs, it is now clear                   and appendix S to part 51. Regulations
                                                 changes and clarifications to the criteria                 that LRAPA may determine a source                     addressing the EPA’s minor new source
                                                 and requirements for the various                           ineligible for a Simple ACDP with                     review (NSR) requirements are located
                                                 ACDPs. LRAPA also revised application                      generic emission limits, and instead,                 at 40 CFR 51.160 through 164. We note
                                                 requirements to set application renewal                    require the source obtain a Standard                  that states generally have more
                                                 deadlines, and to clarify the required                     ACDP with source-specific emission                    flexibility in designing minor NSR
                                                 contents of applications.                                  limits, as necessary. LRAPA also                      programs. Minor NSR programs,
                                                    The applicability rules at Section 37–                  clarified the public notice requirements              however, must still ensure that
                                                 0020 reference the table of applicability                  and fees for Simple ACDPs and removed                 emissions from the construction or
                                                 criteria for the types of permits in                       redundant requirements from the                       modification of a facility, building,
                                                 Section 37–8010 Table 1. The associated                    section that are also in Section 37–0020.             structure, or installation (or any
                                                                                                              The requirements at Section 37–0066                 combination thereof) will not interfere
                                                 fees are listed at Section 37–8020
                                                                                                            were updated to lay out the different                 with attainment and maintenance of the
                                                 Table 2. These sections are consistent
                                                                                                            application requirements for sources                  NAAQS, or violate an applicable
                                                 with OAR 340–216–8010 Table 1 and
                                                                                                            seeking a Standard ACDP permit when                   portion of a control strategy approved
                                                 OAR 216–8020 Table 2, respectively,
                                                                                                            they are subject to federal major versus              into the SIP.
                                                 including the type of ACDP (Basic,
                                                                                                            minor NSR. LRAPA also changed this                       Oregon and LRAPA’s major NSR
                                                 General, Simple, or Standard) each
                                                                                                            section to allow sources with multiple                program has long differed from the
                                                 source category is required to obtain
                                                                                                            activities or processes at a single site,             federal major NSR programs in several
                                                 prior to construction and operation.                       covered by more than one General
                                                 Overall, the list of sources required to                                                                         respects. The program does not subject
                                                                                                            ACDP or that has multiple processes, to               the same sources and modifications to
                                                 obtain Basic, General, Simple, or                          obtain a Standard ACDP.
                                                 Standard ACDPs was slightly expanded,                                                                            major NSR as would the EPA’s rules. It
                                                                                                              For processing permits, LRAPA’s                     also has had lower major source
                                                 with one exception. LRAPA removed                          provision at Section 37–0082 now
                                                 the requirement that greenhouse gas-                                                                             thresholds for sources in nonattainment
                                                                                                            expressly provide that sources with                   and maintenance areas. The program
                                                 only sources obtain a Standard ACDP,                       expired ACDP permits may continue
                                                 and pay the associated permitting fees,                                                                          requires fugitive emissions to be
                                                                                                            operating under the expired permit if                 included in applicability determinations
                                                 consistent with the federal court                          they have submitted a timely and
                                                 decision described below in Section M.                                                                           for all new major sources and
                                                                                                            complete renewal application. Sources                 modifications to existing major sources.
                                                    For Construction ACDPs at Section                       may also request a contested case
                                                 37–0052, LRAPA added a qualifier to                                                                              However, Oregon and LRAPA also
                                                                                                            hearing, if LRAPA revokes a permit or                 utilize a Plant Site Emission Limit, or
                                                 the rule that construction commence                        denies a permit renewal. We have
                                                 within 18 months after the permit is                                                                             ‘‘PSEL,’’ approach to defining ‘‘major’’
                                                                                                            determined in our review that LRAPA’s                 modifications, rather than the
                                                 issued. This deadline now applies only                     Title 37 provisions are consistent with
                                                 if a source is subject to federal major                                                                          contemporaneous net emissions
                                                                                                            the Division 216 rule sections recently               increase approach used in the EPA’s
                                                 NSR and certain state major NSR                            approved by the EPA on October 11,
                                                 permitting, which we have discussed in                                                                           main major NSR program (not the EPA’s
                                                                                                            2017 (82 FR 47122). Therefore, we find                plant-wide applicability limit (PAL)
                                                 more detail below. LRAPA also added                        Title 37 is consistent with CAA
                                                 language to the public notice                                                                                    option). The EPA has previously
                                                                                                            requirements and propose to approve                   determined that, overall, the major NSR
                                                 requirements for a modified                                the submitted provisions.
                                                 Construction ACDP, making clear when                                                                             program in Oregon is at least as
                                                 public notice as a Category I permit                       M. Title 38: New Source Review                        stringent as the EPA’s major NSR
                                                                                                                                                                  program and meets the requirements of
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                                                 action is appropriate, as opposed to a                       Parts C and D of title I of the CAA,
                                                 Category II permit action under Title 31.                                                                        40 CFR 51.165 and 51.166.15
                                                                                                            42 U.S.C. 7470–7515, set forth
                                                 Although the construction permit itself                                                                             Under the previous SIP-approved
                                                                                                            preconstruction review and permitting
                                                 expires, the requirements remain in                                                                              program, both federal major sources and
                                                                                                            program requirements that apply to new
                                                 effect and must be added to the                                                                                  large minor sources have been covered
                                                                                                            and modified major stationary sources
                                                 subsequent operating permit.14                             of air pollutants, known as major new                    15 See 76 FR 80747, 80748 (December 27, 2011)
                                                                                                            source review (major NSR). The CAA                    (final action); 76 FR 59090, 59094 (Sept. 23, 2011)
                                                   14 See   Section 37–0082.                                major NSR programs include a                          (proposed action).



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                                                                          Federal Register / Vol. 83, No. 147 / Tuesday, July 31, 2018 / Proposed Rules                                                    36831

                                                 by Title 38. The submitted changes to                    B State NSR are subject to requirements                factored into calculations for major
                                                 Title 38 revise this approach and                        equivalent to the minor NSR                            modifications.
                                                 establish distinct components within                     requirements under the PSEL rules in                      LRAPA also specified that emissions
                                                 Title 38, referred to as Major New                       the current SIP.18 Because LRAPA’s                     from categorically insignificant
                                                 Source Review (LRAPA Major NSR—                          changes to the definition of ‘‘federal                 activities, aggregate insignificant
                                                 Sections 38–0045 through 0070) and                       major source’’ in nonattainment areas                  emissions, and fugitive emissions must
                                                 State New Source Review (State NSR—                      are consistent with the federal                        be included in determining whether a
                                                 Sections 38–0245 through 0270) to help                   definition of ‘‘major stationary source’’              major modification has occurred. In
                                                 clarify the requirements that apply to                   at 40 CFR 51.165 for the designated                    addition, LRAPA clarified that major
                                                 federal major sources and large minor                    areas in Lane County, and because                      modifications for ozone precursors, or
                                                 sources. Pre-construction review and                     LRAPA has retained most of the                         PM2.5 precursors, also constitute major
                                                 permitting of other minor sources                        characteristics of the previous Major                  modifications for ozone and PM2.5,
                                                 continue to be covered in Title 34                       NSR permitting program for Type A                      respectively. Finally, language was
                                                 Stationary Source Notification                           State NSR, the EPA proposes to approve                 added stating that the PSEL, netting
                                                 Requirements, Title 37 Air Contaminant                   these revisions.                                       basis, and emissions changes must be
                                                 Discharge Permits, and Title 42 Plant                       LRAPA also made revisions here, and                 recalculated when more accurate or
                                                 Site Emission Limits.                                    in several other places in its rules, to be            reliable emissions information becomes
                                                    As discussed above, Oregon and                        consistent with changes to the federal                 available, to determine whether a major
                                                 LRAPA have created two new state                         PSD rules made in response to a                        modification has occurred.
                                                 designations. ‘‘Sustainment’’ areas are                  Supreme Court decision on greenhouse
                                                 state-designated areas that are violating                                                                       Section 38–0030 New Source Review
                                                                                                          gases (May 7, 2015, 80 FR 26183).19
                                                 or close to violating the NAAQS but                                                                             Procedural Requirements
                                                                                                          Specifically, LRAPA revised definitions
                                                 which are not formally designated                        and procedures in Titles 12, 36, 37, 38,                  LRAPA revised this section to account
                                                 nonattainment by the EPA.                                and 42 to remove greenhouse gas-only                   for differing LRAPA Major NSR and
                                                 ‘‘Reattainment’’ areas are state-                        sources from PSD applicability.                        State NSR procedures. Included are:
                                                 designated areas that have been                          Therefore, as required by the federal                  When LRAPA will determine whether
                                                 designated nonattainment by the EPA,                     PSD program, a source is now subject to                an application is complete; when a final
                                                 but that have achieved improved air                      the LRAPA Major NSR requirements for                   determination will be made; when
                                                 quality, and data shows the area is                      greenhouse gases in attainment and                     construction is permitted; how to revise
                                                 attaining the NAAQS. Key changes to                      unclassifiable areas only when the                     a permit and extend it; and when and
                                                 the LRAPA Major NSR and State NSR                        source is subject to LRAPA Major NSR                   how LRAPA will terminate an NSR
                                                 programs are discussed below.                            requirements anyway, for one or more                   permit.
                                                                                                          criteria pollutants. As specified in the                  With respect to the provision in the
                                                 Section 38–0010 Applicability,                                                                                  federal PSD regulations authorizing
                                                 General Prohibitions, General                            federal PSD regulations, LRAPA’s rules
                                                                                                          continue to require that sources of                    extensions to the 18-month construction
                                                 Requirements, and Jurisdiction                                                                                  time limitation in 40 CFR 52.21(r)(2)
                                                                                                          greenhouse gases subject to LRAPA
                                                   LRAPA has narrowed the scope of                        Major NSR in attainment and                            ‘‘upon a satisfactory showing that an
                                                 sources that are subject to LRAPA Major                  unclassifiable areas for a criteria                    extension is justified,’’ LRAPA revised
                                                 NSR in nonattainment and maintenance                     pollutant, are also subject to LRAPA                   its extension provisions to be consistent
                                                 areas by increasing the thresholds, from                 Major NSR for greenhouse gases.                        with recent EPA guidance. This
                                                 the significant emission rate (SER) to the                  LRAPA also made clear in this section               guidance sets out the EPA’s views on
                                                 major source thresholds in the CAA                       that a source is subject to Title 38                   what constitutes an adequate
                                                 specified for the current nonattainment                  requirements for the designated area in                justification for an extension of the 18-
                                                 areas in Lane County.16 At the same                      which the source is located—for each                   month timeframe under 40 CFR
                                                 time, LRAPA’s State NSR requirements                     regulated pollutant, including                         52.21(r)(2) for commencing construction
                                                 under Title 38 apply to the construction                 precursors. Finally, revisions clarify that            of a source that has been issued a PSD
                                                 of new sources with emissions of a                       a subject source must not begin actual                 permit.20 LRAPA also extended the time
                                                 regulated air pollutant at or above the                  construction, continue construction, or                period for making a final determination
                                                 SER, as well as increases in emissions                   operate without complying with the                     on an LRAPA Major NSR or Type A
                                                 of a regulated pollutant from existing                   requirements of Title 38 and obtaining                 State NSR permit from six months to
                                                 sources that equal or exceed the SER                     an ACDP permit authorizing                             one year, to reflect the more complex
                                                 over the netting basis. This is consistent               construction or operation.                             nature of such permitting actions. The
                                                 with Oregon’s rules in Division 224.                                                                            one-year time-frame for permit issuance
                                                   LRAPA has divided the State NSR                        Section 38–0025 Major Modification                     is consistent with the EPA’s
                                                 program into two parts: Type A, which                      LRAPA moved the definition of                        requirements for major NSR
                                                 generally applies in nonattainment,                      ‘‘major modification’’ from Title 12 to                permitting.21
                                                 reattainment, and maintenance areas,                     Title 38, to reflect that the former
                                                 and Type B, for attainment,                                                                                     Section 38–0038 Fugitive and
                                                                                                          definition was really a procedure for
                                                 unclassifiable, and sustainment areas.                                                                          Secondary Emissions
                                                                                                          determining whether a major
                                                 Sources subject to Type A State NSR                      modification has, or will occur, rather                  This section was moved and amended
                                                 remain subject to many of the same                       than a true definition. The revised                    to account for State NSR requirements.
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                                                 requirements that apply to such sources                  definition and procedure are intended
                                                 under the current SIP-approved program                   to better explain how emissions                          20 Memorandum from Stephen D. Page, Director

                                                 in nonattainment 17 and maintenance                                                                             of EPA’s Office of Air Quality Planning and
                                                                                                          increases and decreases are tracked and                Standards, to Regional Air Division Directors,
                                                 areas, whereas sources subject to Type                                                                          Region 1–10, entitled Guidance on Extension of
                                                                                                            18 Sources in sustainment areas subject to Section   Prevention of Significant Deterioration (PSD)
                                                   16 SeeTitle 12.                                        38–0245(2) are also subject to Type A NSR.             Permits under 40 CFR 52.21(r)(2), dated January 31,
                                                   17 Key changes are discussed below in the                19 Utility Air Regulatory Group v. Environmental     2014.
                                                 discussion of State NSR.                                 Protection Agency, 134 S.Ct. 2427 (2014).                21 See 40 CFR 52.21(q)(2).




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                                                 36832                    Federal Register / Vol. 83, No. 147 / Tuesday, July 31, 2018 / Proposed Rules

                                                 For sources subject to LRAPA Major                       sources, the ratio may be reduced to 1:1,             LRAPA PSD requirements for one or
                                                 NSR and Type A State NSR, fugitive                       equivalent to the federal requirement in              more criteria pollutants.
                                                 emissions are included in the                            40 CFR 51.165(a)(9)(i).                                  Second, LRAPA revised its
                                                 calculation of emission rates and subject                  The submitted changes also tighten                  requirements for preconstruction
                                                 to the same controls and analyses                        requirements for sources seeking                      monitoring to address another court
                                                 required for emissions from identifiable                 construction permit extensions, and                   decision and the resulting revisions to
                                                 stacks or vents. Secondary emissions are                 limit extension requests to two 18-                   the EPA’s PSD rules. On October 20,
                                                 not included in potential to emit                        month periods, with certain additional                2010, the EPA promulgated the 2010
                                                 calculations for LRAPA Major NSR or                      review and re-evaluation steps. We note               PSD PM2.5 Implementation Rule,
                                                 Type A State NSR, but once a source is                   that, beyond the federal rules, the rules             revising the federal significant
                                                 subject to LRAPA Major NSR or Type A                     applicable in Lane County extend best                 monitoring concentration (SMC) and
                                                 State NSR, secondary emissions must be                   available control technology (BACT)                   significant impact levels (SILs) for PM2.5
                                                 considered in the required air quality                   and offset requirements to new and                    (75 FR 64864). On January 22, 2013, the
                                                 impact analysis in Titles 38 and 40.                     modified minor sources in                             U.S. Court of Appeals for the District of
                                                                                                          nonattainment areas.                                  Columbia, in Sierra Club v. EPA,22
                                                 Sections 38–0045 Through 0070 Major                                                                            issued a judgment that, among other
                                                 NSR                                                      Major NSR in Reattainment Areas                       things, vacated the provisions adding
                                                   LRAPA has made changes consistent                                                                            the PM2.5 SMC to the federal regulations
                                                                                                             In reattainment areas (areas meeting
                                                 with Oregon’s corresponding rules and                                                                          at 40 CFR 51.166(i)(5)(i)(c) and
                                                                                                          the NAAQS but not yet redesignated to
                                                 has specified LRAPA Major NSR                                                                                  52.21(i)(5)(i)(c). In its decision, the court
                                                                                                          attainment), new sources and
                                                 requirements for each of the following                                                                         held that the EPA did not have the
                                                                                                          modifications subject to LRAPA Major
                                                 designations: Sustainment,                                                                                     authority to use SMCs to exempt permit
                                                                                                          NSR must continue to meet all
                                                 nonattainment, reattainment,                                                                                   applicants from the statutory
                                                 maintenance, and attainment/                             nonattainment LRAPA Major NSR
                                                                                                                                                                requirement in CAA section 165(e)(2)
                                                 unclassifiable.                                          requirements for the reattainment
                                                                                                                                                                that ambient monitoring data for PM2.5
                                                                                                          pollutant. In addition, to ensure air
                                                 Major NSR in Sustainment Areas                                                                                 be included in all PSD permit
                                                                                                          quality does not again deteriorate,
                                                                                                                                                                applications. Although the PM2.5 SMC
                                                    New sources and modifications                         LRAPA requires that sources subject to
                                                                                                                                                                was not a required element, where a
                                                 subject to LRAPA Major NSR in                            LRAPA Major NSR also meet other
                                                                                                                                                                state program contained an SMC and
                                                 sustainment areas (areas that are                        requirements for each reattainment
                                                                                                                                                                applied it to allow new permits without
                                                 classified as attainment/unclassifiable                  pollutant. Specifically, the owner or
                                                                                                                                                                requiring ambient PM2.5 monitoring
                                                 by the EPA but have air quality either                   operator of the source must demonstrate
                                                                                                                                                                data, the provision would be
                                                 violating the NAAQS or just below the                    the source will not cause or contribute
                                                                                                                                                                inconsistent with the court’s opinion
                                                 NAAQS) must meet PSD requirements                        to a new violation of the ambient air                 and CAA section 165(e)(2).
                                                 for each sustainment pollutant, but must                 quality standard, or PSD increment, by                   At the EPA’s request, the decision
                                                 also satisfy additional requirements for                 conducting an air quality analysis as                 also vacated and remanded the portions
                                                 obtaining offsets and demonstrating a                    outlined in Title 40.                                 of the 2010 PSD PM2.5 Implementation
                                                 net air quality benefit to address the air               Major NSR in Maintenance Areas                        Rule that revised 40 CFR 51.166 and 40
                                                 quality problems in the area, as                                                                               CFR 52.21 related to SILs for PM2.5. The
                                                 discussed in more detail below. Because                    In maintenance areas, new sources                   EPA requested this vacatur and remand
                                                 such areas are designated as attainment/                 and modifications subject to LRAPA                    of two of the three provisions in the
                                                 unclassifiable by the EPA, requiring                     Major NSR must continue to comply                     EPA regulations that contain SILs for
                                                 compliance with LRAPA’s PSD                              with LRAPA Major NSR requirements                     PM2.5 because the wording of these two
                                                 requirements meets federal                               for attainment/unclassifiable areas (i.e.,            SIL provisions (40 CFR 51.166(k)(2) and
                                                 requirements. The additional                             PSD), and also conduct a demonstration                40 CFR 52.21(k)(2)) was inconsistent
                                                 requirements for obtaining offsets and                   or obtain allowances to ensure a net air              with the explanation of when and how
                                                 demonstrating a net air quality benefit                  quality benefit in the area. Rather than              SILs should be used by permitting
                                                 go beyond CAA requirements for                           setting out the specific PSD                          authorities, that we provided in the
                                                 attainment/classifiable areas and are                    requirements in this section, however,                preamble to the Federal Register
                                                 thus approvable.                                         this section simply references the PSD                publication when we promulgated these
                                                                                                          requirements at Section 38–0070.                      provisions. Specifically, the EPA erred
                                                 Major NSR in Nonattainment Areas
                                                                                                          Major NSR in Attainment/Unclassifiable                because the language promulgated in
                                                   For new sources and modifications                                                                            2010 did not provide permitting
                                                                                                          Areas (PSD)
                                                 subject to LRAPA Major NSR in                                                                                  authorities the discretion to require a
                                                 nonattainment areas, LRAPA                                 For the construction of new sources                 cumulative impact analysis
                                                 reorganized and clarified the                            and modifications subject to LRAPA                    notwithstanding that the source’s
                                                 requirements, aligning with state rules,                 Major NSR in attainment or                            impact is below the SIL, where there is
                                                 including that they apply for each                       unclassifiable areas, LRAPA revised its               information that shows the proposed
                                                 pollutant for which the area is                          rules to address court decisions                      source would lead to a violation of the
                                                 designated nonattainment. Lowest                         impacting federal PSD rules. First, as                NAAQS or increments. The third SIL
                                                 Achievable Emission Rate (LAER) and                      discussed above, LRAPA revised                        provision (40 CFR 51.165(b)(2)) was not
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                                                 offsets continue to be required for such                 definitions and procedures in Titles 12,              vacated and remains in effect. On
                                                 sources and modifications. In addition,                  36, 37, 38, and 42 to remove greenhouse               December 9, 2013, the EPA removed the
                                                 LRAPA’s submitted revisions tighten                      gas-only sources from PSD applicability.              vacated PM2.5 SILs and SMC provisions
                                                 offsets required in nonattainment areas                  Therefore, as required under the EPA’s                from federal PSD regulations (78 FR
                                                 (except with respect to ozone). LRAPA                    federal PSD program, a source is now                  73698). On April 17, 2018, the EPA
                                                 rules now initially require 1.2:1 offsets                subject to the LRAPA Major NSR                        issued guidance to states on
                                                 to emissions in non-ozone areas. If                      requirements for greenhouse gases only
                                                 offsets are obtained from priority                       when the source also is subject to                      22 703   F.3d 458 (D.C. Cir. 2013).



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                                                                          Federal Register / Vol. 83, No. 147 / Tuesday, July 31, 2018 / Proposed Rules                                                     36833

                                                 recommended PM2.5 (and ozone) SILs.23                    emit between the SER and 100 tons per                      LRAPA revised the criteria for
                                                 As stated in this guidance, the EPA                      year in nonattainment and maintenance                   demonstrating a net air quality benefit,
                                                 intends to use information yielded from                  areas (Type A State NSR sources),                       in line with Oregon’s rule revisions
                                                 application of this guidance by                          LRAPA has relaxed some of the                           approved by the EPA on October 11,
                                                 permitting authorities to determine                      requirements, as compared to the                        2017 (82 FR 47122). In addition to the
                                                 whether a future rulemaking to codify                    current SIP, that historically went                     incentives provided to sources subject
                                                 SILs is appropriate.                                     beyond federal requirements. In                         to Type A State NSR in sustainment and
                                                    In response to the vacatur and                        nonattainment areas, if the increase in                 reattainment areas (to obtain offsets
                                                 remand, LRAPA submitted revisions to                     emissions from the source is the result                 from priority sources discussed above)
                                                 several titles. LRAPA revised the PM2.5                  of a major modification,24 BACT rather                  LRAPA made an additional change.
                                                 SMC to zero, as the EPA did, to address                  than LAER is now required. In                           Rules were revised to provide incentives
                                                 this issue in the federal PSD regulations.               maintenance areas, Type A State NSR                     for major sources to use priority source
                                                 LRAPA also revised the definition of                     sources are no longer required to                       offsets for LRAPA Major NSR sources in
                                                 ‘‘significant impact levels’’ or ‘‘SIL’’ in              conduct preconstruction monitoring to                   nonattainment and reattainment areas
                                                 state rules, removed the vacated                         support the ambient air impact analysis                 by increasing the required offset ratio
                                                 language and added text to make clear                    for the source.                                         for major sources to 1.2:1 from the
                                                 that ‘‘no source may cause or contribute                    In both nonattainment and                            current 1:1. If a source subject to LRAPA
                                                 to a new violation of an ambient air                     maintenance areas, LRAPA’s State NSR                    Major NSR obtains offsets of some
                                                 quality standard or PSD increment even                   rules allow a reduction of the offset ratio             emissions increases from priority
                                                 if the single source impact is less than                 if some of the offsets come from sources                sources, the ratio may be reduced to no
                                                 the significant impact level.’’ We                       that are contributing to air quality                    less than 1:1, the minimum offset level
                                                 propose to approve LRAPA’s revisions                     problems in the area (which historically                under the federal nonattainment NSR
                                                 as consistent with the court decision.                   have been woodstoves). As we found in                   program.
                                                    LRAPA also aligned local rules with                   our 2017 action on the Oregon SIP, the                     We note that LRAPA did not submit
                                                 state rules to remove language allowing                  State NSR requirements in sustainment                   Section 38–0510(3) for SIP approval
                                                 the substitution of post-construction                    and reattainment areas go beyond CAA                    because the submissions do not also
                                                 monitoring for preconstruction                           requirements for minor NSR programs                     include a demonstration for inter-
                                                 monitoring. LRAPA added an                               by requiring a demonstration of a net air               pollutant offset ratios as recommended
                                                 exemption from the preconstruction                       quality benefit (discussed below).25                    by the EPA’s inter-pollutant offset
                                                 ambient air monitoring requirement,                      (October 11, 2017, 82 FR 47122).                        policy.28 LRAPA also did not submit
                                                 with LRAPA’s approval, if                                   Because BACT, LAER, pre-                             Section 38–0520 for SIP approval, in
                                                 representative or conservative                           construction monitoring, and offsets are                this case because the section addresses
                                                 background concentration data is                         not required components of a State’s                    ozone nonattainment areas, of which
                                                 available, and the source demonstrates                   SIP-approved minor NSR program, and                     Lane County has none. We propose to
                                                 that such data is adequate to determine                  because the offset requirements now                     approve the revisions to LRAPA’s net
                                                 that the source would not cause or                       provide sources with incentives to                      air quality benefit emissions rules,
                                                 contribute to a violation of an ambient                  obtain offsets from sources found to be                 except Sections 38–0510(3) and 38–
                                                 air quality standard or any applicable                   specifically contributing to air quality                0520, for which LRAPA did not request
                                                 PSD increment. These revisions, along                    problems in the area, we propose to find                approval.
                                                 with the other existing provisions                       that LRAPA’s minor NSR program
                                                 regarding preconstruction monitoring in                                                                          Summary
                                                                                                          continues to meet CAA requirements for
                                                 LRAPA’s PSD regulations, are consistent                  approval.                                                 We propose to approve the submitted
                                                 with 40 CFR 51.166(m)(iii) and therefore                                                                         revisions to Title 38 because we have
                                                 we propose to approve them.                              Sections 38–0500 Through 0540 Net                       determined that, in conjunction with
                                                    Finally, LRAPA added the                              Air Quality Benefit Emission Offsets                    other provisions including but not
                                                 requirement to demonstrate a net air                        The CAA requires that, for                           limited to rules in Titles 12, 31, 34, 35,
                                                 quality benefit for subject sources that                 nonattainment NSR, the proposed major                   40, 42, and 50, the revisions are
                                                 will have a significant impact on air                    source or major modifications must                      consistent with the requirements of the
                                                 quality in a designated area other than                  obtain emissions reductions of the                      federal PSD and minor NSR permitting
                                                 the area in which the source is located.                 affected nonattainment pollutant from                   programs applicable statewide. We have
                                                 This demonstration of net air quality                    the same source or other sources in the                 also determined that the submitted
                                                 benefit is beyond federal PSD                            area to offset the proposed emissions                   changes are consistent with the federal
                                                 requirements, and will be discussed in                   increase.26 Consistent with that                        requirements for nonattainment NSR for
                                                 more detail below.                                       requirement, the EPA’s nonattainment                    the current designated nonattainment
                                                 Sections 38–0245 Through 0270 State                      NSR regulations require that major                      areas in Lane County.29
                                                 NSR                                                      sources and major modifications in                      N. Title 40: Air Quality Analysis
                                                   Title 38 now also specifies State NSR                  nonattainment areas obtain emissions                    Requirements
                                                 requirements for sustainment,                            offsets at a ratio of at least 1 to 1 (1:1)
                                                                                                          from existing sources in the area to                      This title contains the air quality
                                                 nonattainment, reattainment,                                                                                     analysis requirements, which are
                                                 maintenance, and attainment/                             offset emissions from the new or
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                                                 unclassifiable areas. For sources that                   modified source.27
                                                                                                                                                                    28 Gina McCarthy, EPA Administrator. ‘‘Revised

                                                                                                                                                                  Policy to Address Reconsideration of Inter-pollutant
                                                                                                               24 Oregonand LRAPA use the term ‘‘major
                                                   23 Memorandum from Peter Tsirigotis, Director of                                                               Trading Provisions for Fine Particles (PM2.5),’’
                                                 EPA’s Office of Air Quality Planning and Standards,      modification’’ for physical and operational changes     Memorandum to Regional Administrators, July 21,
                                                 to Regional Air Division Directors, Region 1–10,         that result in significant increases to both existing   2011.
                                                 entitled Guidance on Significant Impact Levels for       major and existing minor sources.                         29 See 40 CFR 51.160 through 161, 51.165, and
                                                                                                            25 October 11, 2017, 82 FR 47122.
                                                 Ozone and Fine Particles in the Prevention of                                                                    51.166. See also EPA proposed approval of Oregon
                                                                                                            26 See CAA section 173(c).
                                                 Significant Deterioration Permitting Program, dated                                                              nonattainment NSR program (March 22, 2017, 82
                                                 April 17, 2018.                                            27 See 40 CFR 51.165(a)(9)(i).                        FR 14654 at page 14663).



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                                                 36834                    Federal Register / Vol. 83, No. 147 / Tuesday, July 31, 2018 / Proposed Rules

                                                 primarily used in Title 38 New Source                    visibility, deposition, and ozone                     between baseline and allowable
                                                 Review. By its terms, this title does not                impacts. A visibility analysis for sources            emissions.
                                                 apply unless a rule in another section                   impacting the Columbia River Gorge                       ‘‘Netting basis’’ is a concept in this
                                                 refers to Title 40. Substantive changes                  National Scenic Area, is now required,                program that defines both the baseline
                                                 include revising the definition of                       where applicable, to evaluate potential               emissions from which increases are
                                                 ‘‘allowable emissions’’ at Section 40–                   impacts on that area. We propose to                   measured—to determine if changes are
                                                 0020(1) to add ‘‘40 CFR part 62’’ to the                 approve Title 40 into the LRAPA SIP as                subject to review—as well as the process
                                                 list of referenced standards and                         meeting CAA requirements, including                   for re-establishing the baseline, after
                                                 clarifying the definition of ‘‘baseline                  the EPA’s major NSR permitting                        changes have been through the new
                                                 concentration year’’ at Section 40–                      regulations at 40 CFR 51.165 and                      source review permitting process.
                                                 0020(2), that varies depending on the                    51.166, and the regional haze                            As noted above, the PSEL program is
                                                 pollutant for a particular designated                    requirements at 40 CFR part 51, subpart               used, in part, to implement NSR
                                                 area. LRAPA also revised the definitions                 P.                                                    permitting. For major NSR, if a PSEL is
                                                 of ‘‘competing PSD increment                                                                                   calculated at a level greater than an
                                                                                                          O. Title 41: Emission Reduction Credits
                                                 consuming source impacts’’ and                                                                                 established SER over the baseline actual
                                                 ‘‘competing NAAQS [national ambient                        In Title 41, LRAPA submitted                        emission rate, an evaluation of the air
                                                 air quality standards] source impacts’’ 30               revisions to clarify when reductions in               quality impact and major NSR
                                                 to broaden the reference to include all                  criteria pollutant emissions that are also            permitting are required. If not, the PSEL
                                                 of LRAPA’s ambient air quality                           hazardous air pollutant emissions are                 is set without further review (a
                                                 standards at Title 50 (which include the                 creditable. Emission reductions required              construction permit may also be
                                                 NAAQS) 31 and to specify that in                         to meet federal NESHAP standards in 40                required). For minor NSR (State NSR), a
                                                 calculating these concentrations,                        CFR parts 61 or 63 are not creditable                 similar calculation is conducted. If the
                                                 sources may factor in the distance from                  reductions for purposes of Major NSR in               difference is greater than the SER, an air
                                                 the new or modified source to other                      nonattainment or reattainment areas in                quality analysis is required to evaluate
                                                 emission sources (range of influence or                  Lane County. However, criteria                        whether ambient air quality standards
                                                 ROI), spatial distribution of existing                   pollutant reductions that are in excess               and increments are protected. The air
                                                 emission sources, topography, and                        of, or incidental to, the required                    quality analysis results may require the
                                                 meteorology.                                             hazardous air pollutant reductions can                source to reduce the airshed impact
                                                    LRAPA also clarified and reorganized                  potentially earn credits—as long as all               and/or comply with a tighter emission
                                                 the defined ROI formula at Section 38–                   conditions are met. LRAPA also lowered                limit.
                                                 0020(10). The ROI is the distance from                   the threshold for banking credits in the                 LRAPA submitted a number of
                                                 the new or modified source or source                     Oakridge area—from ten tons to one                    changes to the PSEL requirements in
                                                 impact area to other emission sources                    ton—to encourage trading activity.                    this title, to align with similar changes
                                                 that could impact that area. The ROI                     Finally, the rules were revised to specify            to state rules. Many of the changes are
                                                 and source impact area are used to                       when such credits are considered used                 organizational, centralizing
                                                 predict the air quality impacts of a new                 up, and when they expire. The revisions               requirements related to PSELs in Title
                                                 or modified source. LRAPA continues to                   are consistent with the CAA and the                   42. Other changes are more substantive.
                                                 limit the maximum ROI to 50 kilometers                   EPA’s implementing regulations and we                 LRAPA revised the criteria for
                                                 and has moved the constant values in                     propose to approve them.                              establishing PSELs at Sections 42–0035
                                                 the ROI formula from the table at the                                                                          through 0090 by consolidating
                                                 end of the division into the text of the                 P. Title 42: Criteria for Establishing
                                                                                                                                                                requirements from other sections into
                                                 rule.                                                    Plant Site Emission Limits
                                                                                                                                                                these provisions, and revising them to
                                                    PSD requirements were revised to                        This division contains a regulatory                 take into account the differentiated
                                                 align with the court decision vacating                   program for managing airshed capacity                 major and State NSR requirements.
                                                 and remanding the PM2.5 SIL. Please see                  through a PSEL. PSELs are used in                     LRAPA also updated the source-specific
                                                 Section M. above for a discussion of the                 Oregon, including Lane County, to                     annual PSEL provision, at Section 42–
                                                 court decision. This title now includes                  protect ambient air quality standards,                0041, to account for PM2.5 and major
                                                 language stating that application of a                   prevent significant deterioration of air              and State NSR requirements. We note
                                                 SIL as a screening tool does not                         quality, and to ensure protection of                  that as previously written, the PSEL rule
                                                 preclude LRAPA from requiring                            visibility. Establishing such a limit is a            included provisions for PSEL increases
                                                 additional analysis to evaluate whether                  mandatory step in the Oregon and                      that were not subject to New Source
                                                 a proposed source or modification will                   LRAPA source permitting process. A                    Review. The submissions revoke those
                                                 cause or contribute to a violation of an                 PSEL is designed to be set at the actual              provisions and instead make these PSEL
                                                 air quality standard or PSD increment.                   baseline emissions from a source plus                 increases subject to the State New
                                                    PSD requirements for demonstrating                    approved emissions increases and                      Source Review requirements in Title 38.
                                                 compliance with air quality related                      minus required emissions reductions.                  The comprehensive requirements for
                                                 values were also updated. LRAPA made                     This design is intended to maintain a                 approval of such PSEL increases in
                                                 clear that, if applicable, the analysis                  more realistic emissions inventory.                   sustainment, nonattainment,
                                                 applies to each emission unit that                       Oregon and LRAPA use a fixed baseline                 reattainment, maintenance, and
                                                 increases the actual emissions of a                      year of 1977 or 1978 (or a prior year if              attainment/unclassifiable areas are as
                                                 regulated pollutant above the portion of
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                                                                                                          more representative of normal                         stringent as the current requirements.
                                                 the netting basis attributable to that                   operation) and factor in all approved                    LRAPA updated the short-term PSEL
                                                 emission unit. In addition, the term ‘‘air               emissions increases and required                      requirements at Section 42–0042 to
                                                 quality related values’’ includes                        emissions decreases since baseline, to                spell out the process a source must
                                                   30 See
                                                                                                          set the allowable emissions in the PSEL.              follow to request an increase in a short-
                                                          Sections 40–0020(4) and (5), respectively.
                                                   31 Our  approval of Section 38–0020(4) and (5)
                                                                                                          Increases and decreases since the                     term PSEL—and when that source must
                                                 would not extend to those ambient standards in           baseline year do not affect the baseline,             obtain offsets, or an allocation, from an
                                                 Title 50 that we have excluded from our approval.        but are included in the difference                    available growth allowance in the area.


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                                                                          Federal Register / Vol. 83, No. 147 / Tuesday, July 31, 2018 / Proposed Rules                                                36835

                                                    At Section 42–0046, LRAPA clarified                   Q. Title 48: Rules for Fugitive Emissions                  implementing regulations at 40 CFR
                                                 how the initial netting basis for PM2.5 is                 LRAPA submitted fugitive emission                        parts 50 and 51.
                                                 set and how potential increases are                      requirements in Title 48 for SIP                           S. Title 51: Air Pollution Emergencies
                                                 limited. Changes were made to spell out                  approval, consistent with Oregon’s
                                                 how a source’s netting basis may be                      fugitive emissions rules in Division 208.                    This title establishes criteria for
                                                 reduced—when a rule, order or permit                     This title requires sources to take                        identifying and declaring air pollution
                                                 condition requires the reductions—and                    reasonable precautions to prevent                          episodes at levels below the levels of
                                                 how unassigned emissions and                             fugitive emissions, and may require a                      significant harm. LRAPA submitted
                                                 emissions reduction credits are to be                    fugitive emissions control plan to                         mostly minor changes to this title.
                                                 addressed. In addition, the submitted                    prevent visible emissions from leaving a                   However, significant changes were
                                                 revisions clarify that a source may retain               facility property for more than 18                         made to establish a significant harm
                                                 a netting basis if that source relocates to              seconds in a six-minute period.                            level for PM2.5, and PM2.5 trigger levels
                                                 a different site, as opposed to an                       Compliance is based on EPA Method 22,                      corresponding with alert, warning, and
                                                 adjacent site. However, it is only                       Visual Determination of Fugitive                           emergency episodes. We propose to
                                                 allowed if LRAPA determines the                          Emissions from Material Sources and                        approve the submitted revisions to Title
                                                 different site is within or affects the                  Smoke Emissions from Flares. We                            51 because this title remains consistent
                                                 same airshed, and that the time span                     propose to approve Title 48 into the SIP                   with the EPA’s rules at 40 CFR part 51,
                                                 between operation at the old site and                    because we have determined that these                      subpart H Prevention of Air Pollution
                                                 new sites is less than six months.                       fugitive emissions rules are consistent                    Emergency Episodes.
                                                    At Section 42–0048, LRAPA                             with CAA requirements.                                     III. Proposed Action
                                                 consolidated baseline period and
                                                 baseline emission rate provisions, and                   R. Title 50: Ambient Air Standards and                        We propose to approve, and
                                                 indicated when a baseline emission rate                  PSD Increments                                             incorporate by reference into the SIP,
                                                 may be recalculated—limited to                              Title 50 contains ambient air quality                   specific rule revisions submitted by
                                                 circumstances when more accurate or                      standards and Prevention of Significant                    Oregon and LRAPA on August 29, 2014
                                                 reliable emission factor information                     Deterioration (PSD) increments                             (state effective March 31, 2014) and
                                                 becomes available, or when regulatory                    applicable in Lane County. Most                            March 27, 2018 (state effective March
                                                 changes require additional emissions                     notably, LRAPA updated Title 50 for all                    23, 2018), to apply in Lane County. We
                                                 units be addressed. Changes were also                    current federal national ambient air                       also propose to approve, but not
                                                 made to Section 42–0051, which                           quality standards and federal reference                    incorporate by reference, specific
                                                 addresses actual emissions, and how to                   methods.32                                                 provisions that provide LRAPA with
                                                 appropriately calculate the mass                            At Section 50–005(2), LRAPA added                       authority needed for SIP approval.
                                                 emissions of a pollutant from an                         language expressly stating that no                            As requested by LRAPA and the state,
                                                 emissions source during a specified                      source may cause or contribute to a new                    we are removing certain rules from the
                                                 time period. LRAPA revised this                          violation of an ambient air quality                        SIP, because they are obsolete,
                                                 provision to account for the changes in                  standard or a PSD increment, even if the                   redundant, or replaced by equivalent or
                                                 the program that differentiate major                     single source impact is less than the                      more stringent local rules. We are also
                                                 NSR from State NSR.                                      significant impact level. This change                      deferring action on a section of rules
                                                    We note that Section 42–0055                          was made to address a court decision                       because we intend to address them in a
                                                 unassigned emissions procedures were                     vacating and remanding regulatory text                     separate, future action.
                                                 clarified. The rule section was revised to               for the PM2.5 significant impact level.                       We note that the submissions include
                                                 state that a source may not use                          Please see Section M for a detailed                        changes to OAR 340–200–0040, a rule
                                                 emissions that are removed from the                      discussion of the basis for our                            that describes the Oregon procedures for
                                                 netting basis—including emission                         determination that this change, along                      adopting its SIP and references all of the
                                                 reductions required by rule, order or                    with other related changes, adequately                     state air regulations that have been
                                                 permit condition—for netting any future                  addresses the court decision.                              adopted by LRAPA and ODEQ for
                                                 permit actions. LRAPA also updated                          LRAPA updated the table of PSD                          approval into the SIP (as a matter of
                                                 Section 42–0090, addressing the impact                   increments, also known as maximum                          state law), whether or not they have yet
                                                 on PSEL calculations and permitting                      allowable increases and clarified that                     been submitted to or approved by the
                                                 requirements when sources combine,                       PSD increments are compared to                             EPA. We are not approving the changes
                                                 split, and change primary Standard                       aggregate increases in pollution                           to OAR 340–200–0040 because the
                                                 Industrial Code. The changes make clear                  concentrations from the new or                             federally-approved SIP consists only of
                                                 that sources must qualify to combine,                    modified source over the baseline                          regulations and other requirements that
                                                 and that it will impact the netting basis                concentration.33 LRAPA included                            have been submitted by LRAPA and
                                                 and SER, and trigger new source review                   ambient air quality thresholds for                         ODEQ and approved by the EPA.
                                                 and recordkeeping requirements, if                       pollutants in this title, moved from Title                 A. Rules Approved and Incorporated by
                                                 applicable.                                              38, to centralize ambient standards and                    Reference
                                                    Except for Section 42–0060, we                        thresholds. Finally, LRAPA
                                                 propose to approve Title 42 into the SIP                 consolidated requirements for areas                           We propose to approve into the
                                                 because we believe the revisions to the                  subject to an approved maintenance                         Oregon SIP, and incorporate by
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                                                 PSEL requirements are intended to                        plan, moving ambient standards and                         reference at 40 CFR part 52, subpart
                                                 clarify and strengthen the rules. Section                thresholds from Title 38 into Section                      MM, revisions to the following LRAPA
                                                 42–0060 is not appropriate for SIP                       50–065. We propose to approve the                          rule sections. Each rule section listed is
                                                 approval because it is applicable to                     submitted revisions to Title 50 as being                   state effective March 23, 2018, unless
                                                 sources of hazardous air pollutants                      consistent with CAA requirements and                       marked with an asterisk, denoting it is
                                                 addressed under CAA section 112,                                                                                    effective March 31, 2014:
                                                 rather than sources of criteria pollutants                    32 See   Sections 50–015 through 045.                    • Title 12—Definitions (001, 005, 010,
                                                 addressed under CAA section 110.                              33 See   Section 50–055.                              020, 025);


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                                                 36836                    Federal Register / Vol. 83, No. 147 / Tuesday, July 31, 2018 / Proposed Rules

                                                    • Title 29—Designation of Air Quality                   • Title 14—Rules of Practice and                    IV. Incorporation by Reference
                                                 Areas (0010, 0020, 0030, 0040, 0050,                     Procedures (110, 115, 120, 125, 130,                     In this rule, we are proposing to
                                                 0060, 0070*, 0080*, 0090*, 0300, 0310,                   135, 140, 145, 147, 150, 155, 160, 165,               include in a final rule regulatory text
                                                 0320);                                                   170, 175, 185, 190, 200, 205).                        that includes incorporation by
                                                    • Title 30—Incinerator Regulations                                                                          reference. In accordance with
                                                                                                          C. Rules Removed
                                                 (010, 015*, 020*—except (2) and (8),                                                                           requirements of 1 CFR 51.5, we are
                                                 025*—except (9), 030*—except (1)(I)                         We are removing the following rules                proposing to incorporate by reference
                                                 and (2)(E), 035*, 040*, 045*—except (3),                 from the current federally-approved                   the provisions described above in
                                                 050*, 055*, 060*);                                       Oregon SIP at 40 CFR part 52, subpart                 Section III. Proposed Action. The EPA
                                                    • Title 31—Public Participation                       MM, because they have been repealed,                  has made, and will continue to make,
                                                 (0010, 0020, 0030, 0040, 0050, 0060,                     replaced by rules noted in paragraph A.               these documents generally available
                                                 0070, 0080);                                             above, or the state has asked that they               electronically through https://
                                                    • Title 32—Emission Standards (001,                   be removed:                                           www.regulations.gov and in hard copy
                                                 005, 006, 007, 008, 009, 010, 015, 020,                     • Title 12—Definitions (001(2)), state             at the appropriate EPA office (see the
                                                 030, 045, 050, 060, 065, 070, 090*, 100,                 effective March 8, 1994;                              FOR FURTHER INFORMATION CONTACT
                                                 8010);                                                      • Title 30—Incinerator Regulations                 section of this preamble for more
                                                    • Title 33—Prohibited Practices and                   (005), state effective March 8, 1994;                 information).
                                                 Control of Special Classes of Industry                      • Title 33—Prohibited Practices and
                                                 (005, 060, 065, 070—except, in (1), the                  Control of Special Classes of Industry                V. Oregon Notice Provision
                                                 definitions of ‘‘non-condensables’’,                     (030, 045), state effective November 10,                Oregon Revised Statute 468.126
                                                 ‘‘other sources’’, and ‘‘TRS’’, (3)(a),                  1994; and                                             prohibits ODEQ from imposing a
                                                 (4)(b), (5)(b), (6)(a), (6)(b), 500);                       • Title 34—Stationary Source                       penalty for violation of an air, water or
                                                    • Title 34—Stationary Source                          Notification Requirements (040), state                solid waste permit unless the source has
                                                 Notification Requirements (005, 010,                     effective June 13, 2000.                              been provided five days’ advanced
                                                 015, 016, 017, 020, 025, 030, 034, 035,                     We also are removing the following                 written notice of the violation and has
                                                 036, 037, 038);                                          rules in the table entitled, ‘‘Rules Also             not come into compliance or submitted
                                                    • Title 35—Stationary Source Testing                  Approved for Lane County’’, state                     a compliance schedule within that five-
                                                 and Monitoring (0010, 0110, 0120, 0130,                  effective April 16, 2015, because LRAPA               day period. By its terms, the statute does
                                                 0140, 0150*);                                            has submitted equivalent or more                      not apply to Oregon’s title V program or
                                                    • Title 37—Air Contaminant                            stringent local rules to apply in place of            to any program if application of the
                                                 Discharge Permits (0010, 0020, 0025,                     those requirements:                                   notice provision would disqualify the
                                                 0030, 0040, 0052, 0054, 0056, 0060,                                                                            program from federal delegation. Oregon
                                                 0062, 0064, 0066, 0068, 0070, 0082,                      Table 5—EPA-Approved Oregon
                                                                                                                                                                has previously confirmed that, because
                                                 0084, 0090, 0094, 8010, 8020);                           Administrative Rules (OAR) Also
                                                                                                                                                                application of the notice provision
                                                    • Title 38—New Source Review                          Approved for Lane County
                                                                                                                                                                would preclude EPA approval of the
                                                 (0010, 0020, 0025, 0030, 0034, 0038,                       • Division 200—General Air                          Oregon SIP, no advance notice is
                                                 0040, 0045, 0050, 0055, 0060, 0070,                      Pollution Procedures and Definitions                  required for violation of SIP
                                                 0245, 0250, 0255, 0260, 0270, 0500,                      (0020);                                               requirements.
                                                 0510—except (3), 0530, 0540);                              • Division 202—Ambient Air Quality
                                                    • Title 40—Air Quality Analysis                                                                             VI. Statutory and Executive Order
                                                                                                          Standards and PSD Increments (0050);
                                                                                                                                                                Reviews
                                                 Requirements (0010, 0020, 0030, 0040,                      • Division 204—Designation of Air
                                                 0045, 0050, 0060, 0070);                                 Quality Areas (0300, 0310, 0320);                       Under the CAA, the Administrator is
                                                    • Title 41—Emission Reduction                           • Division 208—Visible Emissions                    required to approve a SIP submission
                                                 Credits (0010*, 0020, 0030);                             and Nuisance Requirements (0110,                      that complies with the provisions of the
                                                    • Title 42—Stationary Source Plant                    0210);                                                CAA and applicable federal regulations.
                                                 Site Emission Limits (0010, 0020, 0030,                    • Division 214—Stationary Source                    42 U.S.C. 7410(k); 40 CFR 52.02(a).
                                                 0035, 0040, 0041, 0042, 0046, 0048,                      Reporting Requirements (0114)(5);                     Thus, in reviewing SIP submissions, the
                                                 0051, 0055, 0080, 0090);                                   • Division 216—Air Contaminant                      EPA’s role is to approve state choices,
                                                    • Title 48—Rules for Fugitive                         Discharge Permits (0040, 8010);                       provided that they meet the criteria of
                                                 Emissions (001, 005, 010, 015);                            • Division 222—Stationary Source                    the CAA. Accordingly, this proposed
                                                    • Title 50—Ambient Air Standards                      Plant Site Emission Limits (0090);                    action merely approves state law as
                                                 and PSD Increments (001, 005, 015, 025,                    • Division 224 –New Source Review                   meeting federal requirements and does
                                                 030, 035, 040, 045, 050, 055, 060*, 065);                (0030, 0530);                                         not impose additional requirements
                                                 and                                                        • Division 225—Air Quality Analysis                 beyond those imposed by state law. For
                                                    • Title 51—Air Pollution Emergencies                  Requirements (0010, 0020, 0030, 0040,                 that reason, this proposed action:
                                                 (005, 007, 010, 011, 015, 020, 025, Table                0045, 0050, 0060, 0070);                                • Is not a ‘‘significant regulatory
                                                 I, Table II, Table III).                                   • Division 226—General Emissions                    action’’ subject to review by the Office
                                                                                                          Standards (0210); and                                 of Management and Budget under
                                                 B. Rules Approved But Not Incorporated
                                                                                                            • Division 228—Requirements for                     Executive Orders 12866 (58 FR 51735,
                                                 by Reference
                                                                                                          Fuel Burning Equipment and Fuel                       October 4, 1993) and 13563 (76 FR 3821,
                                                    We propose to approve, but not                        Sulfur Content (0210).                                January 21, 2011);
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                                                 incorporate by reference, the following                                                                          • is not an Executive Order 13771 (82
                                                 LRAPA rule sections. Each rule section                   D. Rules Deferred                                     FR 9339, February 2, 2017) regulatory
                                                 is state effective March 23, 2018, unless                  We are deferring action on the                      action because SIP approvals are
                                                 marked with an asterisk, denoting the                    following rules, state effective March 23,            exempted under Executive Order 12866;
                                                 rule is effective March 31, 2014:                        2018, because we intend to address                      • does not impose an information
                                                    • Title 13—General Duties and                         them in a separate, future action:                    collection burden under the provisions
                                                 Powers of Board and Director (005*,                        • Title 36—Excess Emissions (001,                   of the Paperwork Reduction Act (44
                                                 010*, 020*, 025*, 030*, 035*); and                       005, 010, 015, 020, 025, 030).                        U.S.C. 3501 et seq.);


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                                                                          Federal Register / Vol. 83, No. 147 / Tuesday, July 31, 2018 / Proposed Rules                                             36837

                                                    • is certified as not having a                        ENVIRONMENTAL PROTECTION                              https://www.epa.gov/dockets/
                                                 significant economic impact on a                         AGENCY                                                commenting-epa-dockets.
                                                 substantial number of small entities                                                                           FOR FURTHER INFORMATION CONTACT:
                                                 under the Regulatory Flexibility Act (5                  40 CFR Part 68                                        James Belke, United States
                                                 U.S.C. 601 et seq.);                                                                                           Environmental Protection Agency,
                                                                                                          [EPA–HQ–OEM–2015–0725; FRL–9981–66–
                                                    • does not contain any unfunded                       OLEM]
                                                                                                                                                                Office of Land and Emergency
                                                 mandate or significantly or uniquely                                                                           Management, 1200 Pennsylvania Ave.
                                                 affect small governments, as described                   RIN 2050–AG95                                         NW (Mail Code 5104A), Washington,
                                                 in the Unfunded Mandates Reform Act                                                                            DC 20460; telephone number: (202)
                                                 of 1995 (Pub. L. 104–4);                                 Accidental Release Prevention                         564–8023; email address: belke.jim@
                                                                                                          Requirements: Risk Management                         epa.gov, or Kathy Franklin, United
                                                    • does not have Federalism                            Programs Under the Clean Air Act                      States Environmental Protection
                                                 implications as specified in Executive                                                                         Agency, Office of Land and Emergency
                                                 Order 13132 (64 FR 43255, August 10,                     AGENCY:  Environmental Protection                     Management, 1200 Pennsylvania Ave.
                                                 1999);                                                   Agency (EPA).                                         NW (Mail Code 5104A), Washington,
                                                    • is not an economically significant                  ACTION: Proposed rule; notification of                DC 20460; telephone number: (202)
                                                 regulatory action based on health or                     data availability and extension of                    564–7987; email address:
                                                 safety risks subject to Executive Order                  comment period; correction.                           franklin.kathy@epa.gov.
                                                 13045 (62 FR 19885, April 23, 1997);                                                                           SUPPLEMENTARY INFORMATION: Detailed
                                                                                                          SUMMARY:    The Environmental Protection
                                                    • is not a significant regulatory action              Agency (EPA) issued a proposed rule in                background information describing the
                                                                                                          the Federal Register on May 30, 2018 to               proposed RMP Reconsideration
                                                 subject to Executive Order 13211 (66 FR
                                                                                                          request public comment on several                     rulemaking may be found in a
                                                 28355, May 22, 2001);
                                                                                                          proposed changes to the final Risk                    previously published document:
                                                    • is not subject to requirements of                                                                         Accidental Release Prevention
                                                                                                          Management Program Amendments rule
                                                 Section 12(d) of the National                                                                                  Requirements: Risk Management
                                                                                                          (Amendments rule) issued on January
                                                 Technology Transfer and Advancement                                                                            Programs Under the Clean Air Act;
                                                                                                          13, 2017. This document is being issued
                                                 Act of 1995 (15 U.S.C. 272 note) because                 to correct technical errors in the                    Proposed Rule (83 FR 24850, May 30,
                                                 this action does not involve technical                   Regulatory Impact Analysis and the                    2018).
                                                 standards; and                                           Notification of Data Availability and                 I. What action is EPA taking?
                                                    • does not provide the EPA with the                   Extension of Comment Period for the
                                                                                                                                                                  EPA is correcting incorrect date
                                                 discretionary authority to address, as                   proposed rule.
                                                                                                                                                                references to the version of the Risk
                                                 appropriate, disproportionate human                      DATES: Comments on the proposed rule                  Management Plan (RMP) database used
                                                 health or environmental effects, using                   (83 FR 24850, May 30, 2018), as                       to extract accident history information
                                                 practicable and legally permissible                      extended by the Notification of Data                  for the years 2014 through 2016. EPA
                                                 methods, under Executive Order 12898                     Availability and Extension of Comment                 used this accident information to update
                                                 (59 FR 7629, February 16, 1994).                         Period (83 FR 34967, July 24, 2018)                   the trend of accidents from RMP
                                                    The SIP is not approved to apply on                   must be received by August 23, 2018.                  facilities discussed in the Regulatory
                                                 any Indian reservation land or in any                    ADDRESSES: Submit comments and                        Impact Analysis for the proposed
                                                 other area where the EPA or an Indian                    additional materials, identified by                   Reconsideration rule (EPA. Regulatory
                                                 tribe has demonstrated that a tribe has                  docket EPA–HQ–OEM–2015–0725 to                        Impact Analysis, Reconsideration of the
                                                 jurisdiction. In those areas of Indian                   the Federal eRulemaking Portal: http://               2017 Amendments to the Accidental
                                                 country, the rule does not have tribal                   www.regulations.gov. Follow the online                Release Prevention Requirements: Risk
                                                 implications as specified by Executive                   instructions for submitting comments.                 Management Programs Under the Clean
                                                 Order 13175 (65 FR 67249, November 9,                    Once submitted, comments cannot be                    Air Act, Section 112(r)(7), April 27,
                                                                                                          edited or removed from Regulations.gov.               2018). EPA also referred to the 2014–
                                                 2000), nor will it impose substantial
                                                                                                          The EPA may publish any comment                       2016 accident information in the
                                                 direct costs on tribal governments or
                                                                                                          received to its public docket. Do not                 Accidental Release Prevention
                                                 preempt tribal law.
                                                                                                          submit electronically any information                 Requirements: Risk Management
                                                 List of Subjects in 40 CFR Part 52                       you consider to be Confidential                       Programs Under the Clean Air Act;
                                                                                                          Business Information (CBI) or other                   Notification of Data Availability and
                                                   Environmental protection, Air                          information whose disclosure is                       Extension of Comment Period (83 FR
                                                 pollution control, Incorporation by                      restricted by statute. Multimedia                     34967, July 24, 2018). In both
                                                 reference, Intergovernmental relations,                  submissions (audio, video, etc.) must be              documents, EPA made incorrect
                                                 Lead, Nitrogen dioxide, Ozone,                           accompanied by a written comment.                     references to the date of the RMP
                                                 Particulate matter, Reporting and                        The written comment is considered the                 database version used to extract these
                                                 recordkeeping requirements, Sulfur                       official comment and should include                   accident data. This document serves to
                                                 oxides, Volatile organic compounds.                      discussion of all points you wish to                  correct the incorrect date references.
                                                    Authority: 42 U.S.C. 7401 et seq.
                                                                                                          make. The EPA will generally not
                                                                                                          consider comments or comment                          II. What does this correction do?
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                                                   Dated: July 23, 2018.                                  contents located outside of the primary                 This document corrects incorrect date
                                                 Chris Hladick,                                           submission (i.e., on the web, cloud, or               references to the RMP database in two
                                                 Regional Administrator, Region 10.                       other file sharing system). For                       locations in the regulatory record for the
                                                 [FR Doc. 2018–16371 Filed 7–30–18; 8:45 am]              additional submission methods, the full               Accidental Release Prevention
                                                                                                          EPA public comment policy,                            Requirements: Risk Management
                                                 BILLING CODE 6560–50–P
                                                                                                          information about CBI or multimedia                   Programs Under the Clean Air Act;
                                                                                                          submissions, and general guidance on                  Proposed Rule (83 FR 24850, May 30,
                                                                                                          making effective comments, please visit               2018). One location is on page 33 of the


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Document Created: 2018-11-06 10:29:37
Document Modified: 2018-11-06 10:29:37
CategoryRegulatory Information
CollectionFederal Register
sudoc ClassAE 2.7:
GS 4.107:
AE 2.106:
PublisherOffice of the Federal Register, National Archives and Records Administration
SectionProposed Rules
ActionProposed rule.
DatesComments must be received on or before August 30, 2018.
ContactKristin Hall at (206) 553-6357, or [email protected]
FR Citation83 FR 36824 
CFR AssociatedEnvironmental Protection; Air Pollution Control; Incorporation by Reference; Intergovernmental Relations; Lead; Nitrogen Dioxide; Ozone; Particulate Matter; Reporting and Recordkeeping Requirements; Sulfur Oxides and Volatile Organic Compounds

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